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What Ails the IAS and Why It Fails to Deliver: An Insider’s View
An unorthodox and maverick administrator, the author worked in top policy positions, but the system rejected the reforms that he advocated. In his career he followed the economic philosophy of ‘socialism for the poor and free market for the rich’. However, the political and administrative system in India seemed to believe in ‘indifference to the poor and control over the rich to facilitate rent seeking’.
The book is full of anecdotes ranging from how the author resisted political corruption that led to the Prime Minister’s annoyance to a situation when the author himself ‘bribed’ the Chief Minister to scrap oppressive laws against tribal women. As Joint Secretary, Minorities Commission, the author exposed the communal bias of the district administration in handling riots in Meerut; he was punished for bringing to light the killing of innocent Muslim women and children by the police. When Bihar became a ‘failed state’ during the Lalu Prasad Yadav era of 1990–2005, the author did not hesitate in rebuking the Chief Secretary who was his senior in service, and accused IAS officials in Bihar of behaving like English-speaking politicians.
Despite their high integrity, hard work and competence, IAS officials do not exercise sufficient control over the field staff who collude with the junior staff in reporting false figures on hunger deaths, malnutrition and usage of toilets, leading to erosion of accountability. Not only do many welfare programmes such as NREGA, ICDS and PDS have design flaws, governance in India at the state and district levels is also quite weak, manifesting itself in poor service delivery, uncaring administration, corruption, and uncoordinated and wasteful public expenditure.
Analysing the present Indian situation, the book suggests policy changes in all cross-cutting systemic issues such as the role of politicians, tenure, size and nature of Indian bureaucracy, accountability, monitoring of programmes and civil service reforms, which will transform individual competencies of IAS officers into better collective outcomes.
The book is full of anecdotes ranging from how the author resisted political corruption that led to the Prime Minister’s annoyance to a situation when the author himself ‘bribed’ the Chief Minister to scrap oppressive laws against tribal women. As Joint Secretary, Minorities Commission, the author exposed the communal bias of the district administration in handling riots in Meerut; he was punished for bringing to light the killing of innocent Muslim women and children by the police. When Bihar became a ‘failed state’ during the Lalu Prasad Yadav era of 1990–2005, the author did not hesitate in rebuking the Chief Secretary who was his senior in service, and accused IAS officials in Bihar of behaving like English-speaking politicians.
Despite their high integrity, hard work and competence, IAS officials do not exercise sufficient control over the field staff who collude with the junior staff in reporting false figures on hunger deaths, malnutrition and usage of toilets, leading to erosion of accountability. Not only do many welfare programmes such as NREGA, ICDS and PDS have design flaws, governance in India at the state and district levels is also quite weak, manifesting itself in poor service delivery, uncaring administration, corruption, and uncoordinated and wasteful public expenditure.
Analysing the present Indian situation, the book suggests policy changes in all cross-cutting systemic issues such as the role of politicians, tenure, size and nature of Indian bureaucracy, accountability, monitoring of programmes and civil service reforms, which will transform individual competencies of IAS officers into better collective outcomes.
272 pages, Paperback
Published September 1, 2019
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Displaying 1 - 10 of 10 reviews
March 18, 2020
An extremely well researched offering about what ails governance in the country. However, the problem is that the author seems to use the data (on many occasions factually incorrect) to prove his preconceived notions about the Indian Administrative Service. His analyses appears to be in order as does his prescription but only in parts. However, the real problem is his inability to come up with a "do-able" prescription. Some of what he prescribes is already known but not happening. A civil servant with so much of experience should have been able to prescribe something that was "practicable". In fact, he doesn't appear to be bothered about "making-things-happen". Thus, despite some examples, his entire effort appears to be a theoretical one. And the reason for this isn't far to seek. All his "heroes" are those that "fought" against the system and/or quit it. He himself ran into issues with almost everyone. Whereas it is imperative to think in terms of changing the system, if the civil servant "runs" away or always fights with the system, he will end up either becoming a rebel or an intellectual criticizing and prescribing something which he himself was unable to do and wants someone else to do it. If a civil servant himself cannot demonstrate that it-can-be-done, he has no moral authority to assume the role of an "expert" to advise others. Efficacy of any idea should be demonstrated, especially in the case of a civil servant. The author could have alternatively examined how and the manner in which some civil servants "performed" and survived (not resigned). He could have then prescribed on the basis of those success stories. It would have carried much more conviction. However, the author has just sung praise of those that ran away and provided a prescription in the hope that it would happen. In this sense the book disappoints.
The author does, however, prove a point. Being only intellectually sound doesn't really make for an effective civil servant. UPSC needs to take a note of it.
The author does, however, prove a point. Being only intellectually sound doesn't really make for an effective civil servant. UPSC needs to take a note of it.
February 9, 2021
Naresh Chandra Saxena, a former IAS Officer of 1964 batch, has worked in multiple capacities such as Secretary of Planning Commission, Secretary of Rural Development Department (GOI), Director of Lal Bahadur Shastri National Academy of Administration etc. In his book What Ails the IAS and Why It Fails to Deliver: An Insider’s View he scrutinises the Indian Civil Services and IAS in particular. The book identifies the reasons as to why the IAS is not performing as per the expectations of the founding fathers and myriad of other factors that contribute to the phenomenon. Though initially the title might sound to have a negative connotation, it gives a constructive criticism of IAS highlighting both inspiring successes and failures of the system. It also provides suggestions for improving the functioning of IAS with the help of some positive examples within the service. The author had an impeccable career in the IAS and has written the book with an intention to point out the scope for improvement in the functioning of the IAS and to a large extent remains successful in achieving the objective.
The Indian Administrative Service (IAS) was continued post independence with an intention of creating countervailing centripetal forces that can ingrain national unity and stop breaking away of a nation with multiple fractions. In the initial two decades the IAS Officers functioned with high morale with stalwart politicians like Sardar Vallabhai Patel, Morarji Desai etc. promoting their independent functioning. Even the Senior Officers groomed their juniors with their support and trust. However they prioritised political neutrality and strict adherence to rules over public satisfaction which led to poor outcomes. And post 1967 with coalition politics making individual MLAs very strong, regional parties focusing on local interests, many intermediaries mushrooming and the Emergency of 1975 led to a sense of disillusionment and greed in the Officers.
According to the author, IAS was able to deliver excellently in infrastructure sector like roads and electricity where there is involvement of contractors. But it failed in delivering the welfare schemes in education, nutrition, land records, ground water, crime control etc.,. The main reason for this is the poor designing and implementation of schemes by the IAS officers which he explains through the design flaws of schemes like ICDS, PDS, MGNREGA etc. The other reasons for poor performance is legislative incapability to hold them accountable, low tax base, archaic laws, non-liberalisation of land market, shortage of frontline staff etc. He goes on to say that IAS Officers are status quoists who don’t comprehensively evaluate the schemes as there is no financial implication in doing so.
One of the main reasons for decline in morale of the service is the uncertainty in the reward structure with politicians controlling the postings, transfers and post retirement jobs. He gives an interesting example of how Bihar suffered due to mis governance until 2005 and post which it witnessed significant growth because of efficient and honest bureaucrats with support from political leadership. The book concludes with suggestions to improve the IAS such as stable tenure of at least two years especially of Chief Secretaries and DGPs, rationalisation of Civil Service as done in military, parameter based evaluation of departments such as police and rural development which have significant interaction with public, effective action should be taken based on reports about functioning of schemes etc. He finally concludes by saying that IAS Officers are a group of talented and competent people but their collective performance must be scaled up for which the environment under which they perform must promote excellence.
The author, N.C. Saxena, does not shy away from accepting the flaws of the system that he was part of. He also gives anecdotes of his own failure which increases the credibility of his criticism. He also gives the examples of S.R.Shankaran, P.S.Appu, Armstrong Pame, Prashant Nair, Durga Shakti Nagpal etc., showing that not everything is bad in the service and in fact majority intend to do good work. The book accurately identifies the problems that are affecting the proper functioning of IAS. It doesn’t merely criticise but also provides the practical solutions that can improve the overall governance.
Although the author provides examples of other Officers, there are too many examples from his own life and his personal biases can influence readers’ mindset. The author also sounds too idealistic at some instances like implementing land reforms etc., and following such advices on field can be next to impossible. The author also hails bureaucrats like Ashok Khemka and Arun Bhatia as crusaders against injustice whereas they are seen as obstructionists and inefficient by some fellow IAS Officers.
Also most of the suggestions provided by the author are already in the public discourse. Nearly 50 commissions and committees have been set up on administrative reforms since Independence. So there was never a dearth of ideas but their implementation hasn’t been satisfactory for which political will is sine qua non. However some suggestions such as emphasis on group activity in training institutions, extensive use of technology in governance, nurturing strong political will etc., are worth pursuing.
Overall, the book provides a comprehensive analysis of the working of the IAS and provides some key suggestions for their improvement. It provides interesting anecdotes which give detailed description of situational aspects of administration. The author through his illustrious career experience gives a strong message that one should not shy away from having and expressing an independent thought. The IAS was supposed to give independent and neutral advice to the politicians and must continue to do so without fear and getting subjugated. The young recruits can benefit from reading this book by learning the intricacies of the service and be aware of the pitfalls beforehand. Finally the book leaves with an important message that the Officers must not be obsessed with what they can get from the system rather should focus on what they can give to the system.
The Indian Administrative Service (IAS) was continued post independence with an intention of creating countervailing centripetal forces that can ingrain national unity and stop breaking away of a nation with multiple fractions. In the initial two decades the IAS Officers functioned with high morale with stalwart politicians like Sardar Vallabhai Patel, Morarji Desai etc. promoting their independent functioning. Even the Senior Officers groomed their juniors with their support and trust. However they prioritised political neutrality and strict adherence to rules over public satisfaction which led to poor outcomes. And post 1967 with coalition politics making individual MLAs very strong, regional parties focusing on local interests, many intermediaries mushrooming and the Emergency of 1975 led to a sense of disillusionment and greed in the Officers.
According to the author, IAS was able to deliver excellently in infrastructure sector like roads and electricity where there is involvement of contractors. But it failed in delivering the welfare schemes in education, nutrition, land records, ground water, crime control etc.,. The main reason for this is the poor designing and implementation of schemes by the IAS officers which he explains through the design flaws of schemes like ICDS, PDS, MGNREGA etc. The other reasons for poor performance is legislative incapability to hold them accountable, low tax base, archaic laws, non-liberalisation of land market, shortage of frontline staff etc. He goes on to say that IAS Officers are status quoists who don’t comprehensively evaluate the schemes as there is no financial implication in doing so.
One of the main reasons for decline in morale of the service is the uncertainty in the reward structure with politicians controlling the postings, transfers and post retirement jobs. He gives an interesting example of how Bihar suffered due to mis governance until 2005 and post which it witnessed significant growth because of efficient and honest bureaucrats with support from political leadership. The book concludes with suggestions to improve the IAS such as stable tenure of at least two years especially of Chief Secretaries and DGPs, rationalisation of Civil Service as done in military, parameter based evaluation of departments such as police and rural development which have significant interaction with public, effective action should be taken based on reports about functioning of schemes etc. He finally concludes by saying that IAS Officers are a group of talented and competent people but their collective performance must be scaled up for which the environment under which they perform must promote excellence.
The author, N.C. Saxena, does not shy away from accepting the flaws of the system that he was part of. He also gives anecdotes of his own failure which increases the credibility of his criticism. He also gives the examples of S.R.Shankaran, P.S.Appu, Armstrong Pame, Prashant Nair, Durga Shakti Nagpal etc., showing that not everything is bad in the service and in fact majority intend to do good work. The book accurately identifies the problems that are affecting the proper functioning of IAS. It doesn’t merely criticise but also provides the practical solutions that can improve the overall governance.
Although the author provides examples of other Officers, there are too many examples from his own life and his personal biases can influence readers’ mindset. The author also sounds too idealistic at some instances like implementing land reforms etc., and following such advices on field can be next to impossible. The author also hails bureaucrats like Ashok Khemka and Arun Bhatia as crusaders against injustice whereas they are seen as obstructionists and inefficient by some fellow IAS Officers.
Also most of the suggestions provided by the author are already in the public discourse. Nearly 50 commissions and committees have been set up on administrative reforms since Independence. So there was never a dearth of ideas but their implementation hasn’t been satisfactory for which political will is sine qua non. However some suggestions such as emphasis on group activity in training institutions, extensive use of technology in governance, nurturing strong political will etc., are worth pursuing.
Overall, the book provides a comprehensive analysis of the working of the IAS and provides some key suggestions for their improvement. It provides interesting anecdotes which give detailed description of situational aspects of administration. The author through his illustrious career experience gives a strong message that one should not shy away from having and expressing an independent thought. The IAS was supposed to give independent and neutral advice to the politicians and must continue to do so without fear and getting subjugated. The young recruits can benefit from reading this book by learning the intricacies of the service and be aware of the pitfalls beforehand. Finally the book leaves with an important message that the Officers must not be obsessed with what they can get from the system rather should focus on what they can give to the system.
December 15, 2019
While it is a well-researched book and while Mr. Saxena has been in a unique position to view things, much of the content is what is usual public knowledge or commonly held views in editorials. That IAS are individually brilliant but fail collectively, or that they have been reduced to political puppets in many cases is nothing new. The fact that there is little incentive to correctly measure the result of public program or upgrading professional skills of bureaucracy are also quite obvious.
I did find the chapter on Bihar transformation, corruption and Minority rights interesting, though.
I did find the chapter on Bihar transformation, corruption and Minority rights interesting, though.
September 12, 2020
I'll be extremely blunt. If this book wants to stake credibility for assessment of Indian civil services, the only thing it has going for it is that the author was an ex IAS person - if you follow news related to the civil services even moderately closely, pretty much everything that he speaks of would be quite obvious.
That said, it can definitely serve as a good primer for those who have only a superficial understanding.
That said, it can definitely serve as a good primer for those who have only a superficial understanding.
March 17, 2022
The book contains challenges faced by IAS, list of initiatives by publicly spirited civil servants. It has also documented corruption, ways, officials with doubtful integrity. The author has given solutions to fight corruption, civil services reforms. He is very frank to document one to one chat with ministers, even opposing political executive. The book is guide to civil servants for inculcating values, courage, and learning ways to deliver than remaining idle or honest-inefficient.
May 17, 2022
It is a decent read. Does justice to its title, can also be a slightly enhanced version of a self-righteous retired revenue secretary's documentation of his service, but is legitimized by his struggles with the Diplomats. It can also be a little boring at times. The author could have delved into the more intricate aspects like lateral entry into IAS, and its constructive criticism. However, it is still a meticulously chapterized summary of what is right and wrong in/with the Indian Bureaucracy.
November 24, 2020
A critical analysis of the bureaucratic system in India. Having worked within this grand machinery which runs the country, the author has a privileged opportunity to observe the system within. Recommended.
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April 28, 2020Suspiciously provides only partial information about Harsh Mander. The omitted content is not insignificant.
September 8, 2021
Its time for the elite administrative service to introspect the issues that make them fail to deliver.
November 15, 2021
Well researched, insightful and gives a close look to the working of Indian state apparatus and the forces that affects it.
Displaying 1 - 10 of 10 reviews