-1
BUREAUCRATIC VALUES IN DEVELOPMENT
's
.rt.
.
ureaucratic Values
in Development A Comparative Stucly of Value Orientatlon of Bureaucracy Engaged in Developmental and N on- D ev elo pment al Tas k s
R. B. JAIN P. N. CHAUDHURI
Under tbe Auspioes of Centre for Policy Research
IJFPAL PUBLISHING HOUSE .
NEW DELHI
UPPAL PUBLISHING HOUSE 3, Ansari Road, Daryagani New
Delhi'110002
8. Yasbwani Place, Chankvapuri, New Delbi-!10021
@ Centre for Polioy Research
New Dolhi First Published,
PRINTBD
IN
1982
IND1A
Pubtished by B.S. Uppal, Uppal hrblishiog Houee"
N€w Delhi-1100m and Printed at Saarwati Printing Press, Moujpur, Delhi.
FOREWORD
'
Under tho auspiccs of Indian Council of Social
Scionoo
Research's Sponsored Research Programme on Governmental Systems and Development, thc Contre for Policy Research has boen coordinating the work on the various studies. The prcsent study by Dr R B Jain and Shri P N Chaudhuri attempts a comparative study of bureaucratic values and orientation in developmental and non-developmental functions of the Govcrn' ment in two States, viz,, Punjab and Madhya Pradesh.
For obvious reasons the systemic importanoe of the bureaucracy has been widely accepted, both by the academio commu' nity and the politicsl leadership for rescarch and study. We fecl that the prcsent study is a useful contribution to the literature and should enable development of wide perspectives if interproted along with other related works.
V A Pai Panandiker Centro for Policy Researcb, Now Delhi
Junc, 1982
Dircctor
.
PREFACE
Max Weber's theory of bureaucracy delineates some of the oharacteristics of modern organisations which distinguish tbem, from traditional forms of administration. These characteristics include, division of labour, hierarchy and authority, written rules and regulations, impersonality and the like. The present administrative structure in India is a continuation of the legacy of the British administrative apparatus which was built on the
of the Weberian characteristios of bureaucracy. has been argued and assumed by scbolars in India and elsewhere that administrators steeped in such value- systems may be less useful as developmental enterpreneurs than those who are not so rigidly tied to notions of bureauctatic statusn hierarchy and impartiality. The rule-bound behaviour, the precise delineation ofjurisdiction and the centralization of authority tend to be dysfunetional in the contoxt of develoment. Thc fundamental values of a development-oriented administrative apparatus are supposed to be difrerent from those of a traditional bureaucracy abd the belief that the dcvelopment bureaucracy provides a positive tbinking and a creative outlook has almost becomc a clich6. Thus the crucial question that emefges. in Indian context is whether the traditional bureaucratic structural and behavioural values and norrDs arc contradictoty or' complementary to the requirement of a developmental adminisvalue-systems
It
tration.
With a view to enquire into such fundamental issues, the towards a comparative study of the bureaucratic values, orientation and behaviour of the present study makes an attempt
officials engdged in developmental and non.develpomentat tasks in the two comparatively good and not-so-good performance ctates of Punjab and Madhya Pradesb. The officials chosen for study belong to tho developnrental tasks of Irrigation and Rural Electri8cation programmes and primarily'non devclopmental' tasks of Revenue administration in the three blocks of the two districts in these states selected oo the basis of th€ir level of
vlrt performanco
in
development tasks. The constellation
of
burca-
ucratic valuos chosen for empirical investigation is limited to only a few important ones having significant impact on the performance of development goals, Such a comparative study of the value perceptions of two sets of officials working in two different fields -developmental and non.developmental and in two different settings will, it is hoped, prcvide some insights into the kind of value constellations tbat impede or are conducive to the developmental process, and hopefully enlighten us on the ques(ion whether the much maligned bureaucracy in India, while largely remaining wedded to tho Weberian model of bureaucratic organization, has in fact adapted to the changing needs of the situation. Inter-alia, the study also seeks to enquire into the validity ofthe oft-repeated plea for debureaucratizing the administrative systems for achieving developmontal goals. We gratefully acknowledge the help and cooperation ol of the two State Governments of Punjab and
various officers
Madhya Pradebh, a number ofinstitutions, friends and colleagues
in undertaking the project. The University of Delhi, Punjabi University, Patiala and the Indian Instirute of Public Administration, Ncw Delhi gave kind permissirrn to work on the projcct.
Sardar S.S. Puri, Chief Secretary to the Governmeot of Punjab and Shri Birbal, Additional Chief Secretary to the Government of Madhya Pradesh instructed their Secretaries in the Revenue and
lrrigation Departments and Chief Engineers (Irrigation) who in turn fequested theif junior officers at different levels for extending'cooperation for the field work. Sardar T.S. Madan, ChairmaD, Punjab State Electricity Board and Sbri G, Jagatpati, Chairman, Madhya Pradesh State Electricity Board also instructed their ofrcers to extend cooperation in the field work. Collectors of the two selected districts, Sardar S.S, Daura and Shri Sekhar Dutt were also of great help to '"rs. We are also grateful to the Indian Council of Sbcial Science Research for financing the study. We also ow€ our debt to th6 Centre for Policy Research which providcd us tho basic administrative facilitios to conduct our research studics. Our decp sensc
of gratitude aro due to Dr. V. A. Pai Panandikor, the Dircctor
tx
of the Centrc, who has Dot only evinc'cd keen interest in the study, but has also guided us through each phase of its oomple' tion. His deep insight in the subject, firm commitment to such researches, and the academic fervour that he had lont through his discussions. have been a source of constant inspiration and encouragement to us' We are also grateful to Mr. Y'L' Nangia, Chief of Administrative Services of the CPR, who along with his band of very efficient and hard working staff has putlod us through many difficult circumstan@s in the course of our study. Wo are tbankful to our colleagues at the CPR, especially Dr. O. P. Shar$a and the team of research iovestigators comprising of Mr. Yogesh Kumar Sbarma, Mr. J.P. Noor, Mr. R.C. Yadav and Mrs. Achla Gupta and others who have rendered valuable ossistance in the completion of the field work and in the collec' tion of data. We record our appreciation for typing assistanco rendered by Trimbak Rao, P.K. Yegneswaran and Kalpana Missar.
We are howeve r, entirely responsible for any shortcomings that might have inadverstantly crept in this study.
R. B. Jain P; N. Chaudhuri
.
CONTENTS
Foreword Preface List of Diagratns Llst of Tables 1.
v
vii xiii xv
Burcaucracy and Development
Pcrspective
: An
Analytical
I
Design
2.
The Research
3,
The Bureaucracy at tho Grass Root Levol : A Study of its Profilc and Job Satisfaction
49
The Structural Characteristics of Bureaucracy: An Analysis of Offioials' Perception
9
4. 5.
3t
Sooio-Penonal, Socio-Cultural and Socio-Adminis-
trative
values
r23
Values
6.
Official Porception of Bebavioural
7.
Cliontele's Pcrception of the Officials'
8.
Relationship Between Buroaucratic Characteristice and Dovelopmontal Orientation
9.
t
Bureaucratic Values
Overvicw
and
Pcrformancc
149 181
213
Devetopmont: An 255
Appendices
275
Bibliography
307
9r7
LI$T OF DIAGRAMS
l.
Hierarchy
95
2.
Division of Labour
98
3.
System
4.
Impersonality
lt3
5.
Integrity of Character
127
6.
Equality of Individuals
l3l
7.
of Rules
103
Values Scales in respect of Caste/Class Considerates
135
8.
Socio Administrative Values Scales
142
9.
Rationality
154
Authority
158
Change/Result Orientation
170
12.
Hierarchy and Development
2t6
13.
Division of Duties and Dcvelopment
220
t4.
System of Rules and Developmeot
223
15.
Imp€rsooality and Development
226
10.
I
l.
16.
All
Structural Characteristics of
Bureaucracy and Development
229
xlv
17.
18.
Integrity
of
Character and Develop-
Equalityoflndividualsand Develop-
menr
x6
19, Socio Administrative Valucs and Development
20.
Bg
Personal and Socio Administrative Values and
Development
21.
Rationality and
22,
Authority and
241
Development
Development
23. All Behavioural Characteristics Pevolopment
,+3
Us
and 249
LIST OF TABLES
t1
Number of Officials lnterviewed in Morena by Dopartments and plaoes of 37
Posting 2.2 Numbe r of Ofrcials Interviewed in Patiala by D€partments and Placcs of Posting
38
2.3
Districts
3.1
Distribution of Ofrcials by Age Group and Class of Sorv ice
3.2
50
Age Composition of Developmental and Non-developmental Personnel by
5l
Districts J.J
by Classes of and Maximum Time Uved
Distribution of Officials Service
Upto 20 Years of Age
53
3.4 Rural/Urban Background
of
Officrrs'
Engaged in Developmental and Nondevelopmental Functions by Districts 3.5 Parental Occupation vice 3.6
by
56
Distribution of Parental Occupation of Developmental and Non.develop58
Economic Background and Class of Scrvices
3.8 Economic Background of Officers by Types of Work and Distficts 3.9
Class of ser-
mental Personnel by Districts ).t
38
Marital Status of Respondents
60
6l 62
xvl
3.10 Number of Dependents of Officials in 3.1
I
Districts of Patiala and Morena
63
Lcvel of Education by Class of Service
64d
.l
3.12 Distribution of Ofrcers in the Developmontal and Non-developme ntal Departments by Districts and Levels of Education
67
3.13 Upward Mobility of the Officials 3.14 Upward Mobility of the Ofrcials
68
by
Dcpartment and Districts 3.15 Job Satisfaction of Officers by Districts and Depadments
69
t+
3,16 Chances of Promotions bv Districts and Departments 3.
l7
77
Utilisation of Education, Training and Experience of Officials by Districts and De
partments
8l
4.2 4,3
ties by Districts and Departments
83
Respondents' Scores on Value of Hierarchy by Departments and Distriots
93
Scores on Division of Labour by Departments and Districts
97
Scores on System of Rules ments atrd Districts
by Depart-
t0l
4.4 -Scores on the Fceling of Getting a Government Job Without Using InBu. encc
4.5 4.6
Scores on Impersonality by Dcpartments Districts
108
u2
Distributron of Ofrcials' Tondency to Become Friendly with the People in Course of Officials Dealins.s
4
i
3.18 Officials' Perceptions about capabili-
4.1
d
u5
tv|l 4.7 State Electricig Boarde
l17
4.8 Department of lrrigation 4.9 Department of Revenue 5.1 Distribution of Opinions about
ll8
.
r20 tho
Integrity of Character by Departments and Districts
t25 ,
5.2 Distribution of Opinions About Equality of Individuals by Departments and Districts
130
5.3 Distribution According to the Ofrci-
'
als' Value Scales in Respect of Caste/ Class Considerationd by Districts and ' Departmcnts
t34
5.4 Distribution of Socio.Administrative Values by Districts and Departments
140
6.1 Distribution of Values Attached by tbo Officials , to Rationality by Dis" tricts and Dopartnents
t52
6,2 Distribution of Respondentg According to Their Perceptions of Authority by States and Departmentg
156
6.3 .Distribution of
Scales of Valuog of Attitudes and Bchaviour of Visitors by Districts aud Dcpartmonts
6.4
l6)
Meetings with the Clientele and Boha-
viour of Ofrcials
by
Districts and
Departmontt
t62
6.5 Dietribution "of Scale Vatues About Orientation of Ofrcials Towards Changc and Torg€ts Achiermonte by Districta and Dcpartmetrts
t67
Opinion About'Partiolpativc :Decidion. mrking in Paliala and Moreoa
t72
6.6
xviii
7.1
Supply of Canal Water and tbe
Mdin:
I
t85
tenancc of Canals
7.2 Supply/Interruption and Utilisation of t88
Power
7,3 Perceptions of Villagers About
i,
the
l9l
Officials' Crpabilities by Districts
7.4
Villagers' Perception
About the Beha-
viour of the Govornment Officials Towards tho Beneficiaries and Non-bene-ficiaries
194
7.5 Aptitudc for Department Work 7,6 Viltagers' perception of their Cooper.
.
r97
ation with the Officials
199
7.7 Aloofness of tbe Officials from
the
' Villagers
200
7.8 Political Pressure on Ofrcials 7.9 Villagcrs' Perception of the Influence of Political Lesders on
201
Bureaucracy
202
8.1 Retationship Between Perception on . Hicrarchy and Development Orienta-
'
tion by
States
215
8.2 Division of Dutics and in the two
statcs
Devolopment 219
8.3 Ofrcials Porcoption
oa
Rules and tbeir Oriertation
lopmont by
Statos
Syetcm of
to
Dcvo-
. 8.4 Impersonality and Dovclopnect
Statos
'
by
225
8.5 Rclationship of Officials'
'
222
Combiued
Perceptions of Structural Chatactcris-
tics of Buroauoraoy ald. Their Dey+ lopment Orienlation
by,$Iata
.
228
8.6 Rclationship Betwe€o Integrity of Character aod Dovelopment Orionta-
tion by
Statoe
8.7 Equality of Individuals rnd meut by
st4tes
231 Develop-
2y
8.8 Socio-Adminlstrative Values and Development by
8,9
States
237
Sooio-personal and Socio-Administrativc Values and Dovelopment by
States
240
8.10 Ratiouality aad Dcvolopmen! by
Statos
8.ll
Authority and Development by
8.12
All
242
Statos
Bohaviour/ll Characteristtcs and
Dcvclopment by States
244
..'
I Bureaucracy and Development
r
An Analytical Perspective
The concept of "dcvelopment administration" is of recent origin but has become quite a popular and a fashionable expression in administrative
partance. While an argument can
this is somewhat an artficial conccpt, whose meaninq is unexplored .and deceptively vague, most writers including Swerdlow himself, tend to agree that the conccpt is a useful one. It involves special understandings required in developing countries. Such understandings be madc out, as Swerdlow has done, that
ate more perceptiblc at the operating levels of an administrative These imply that officials must make enough different decisions, adopt cnough differcnt policies, cngagc in enough differmt activities, and sharc difcrent value systems and orientation to warrent the distinctivc dosignation.l
system.
In simplistic terms, therefore, as Edward Weidner, one of the poineers in this field has suggested, development administration is synonymous with "an action-oriented, goal oriented adminis. trative system."2 He furthcr defincs it as .,the process of, guiding an organization toward thc achievenrent of developnien* tal objective."s Fred Riggs characterised developmcnt administration as an administrative problem in government reforms.. He views developmcnt o'...as a process of incrcasing auronomy (discretion)of social systcms made possible by rising levels of diffraction."5 Development admiuistration, thoreforq oncompa-
Bureaucratic Values in Developm ent
of new agencies such as plannilg organizatisns and development corporations; the reorientation of established agencies such as. departmotrt of agricdlture; the delcgation of administrativc powers to deveiopment agencies; and the creation of a cadre of administrators who can provide lcadership in stimulating and supporting programmes of social and economic improvement. It bas the purpose of making change attractive and possiblo.o sses thc organization
The goal of development is, therefore, not westernization or modernization into industrial but the employment of modern technique, both technical and social in the pursuit of societal .objectives. As Caiden suggests, it is the attainment of results, not rationality, form or ritual.? "In common usage of the term", therefore, as Weidner has put it, "a rapidly'developing country is a goal oriented country, headed in the direction of modernity, with special emphasis on nation'building and socio'economic progress."s Development administration is thus that aspect of public administration that focusses on government-influcnced
change toward progressive, political, economic and social objoctives.
As the dominant concern
of
of development administration is change', in countries' which have
with the 'management .development as a major national goal, an effective bureaucracy should, therefore, function more as an agent of change tlan an instrument of stability and continuity. ln order to be an agent of chango, a bureaucratic system must have the capacity to .(a) forecast, project and understand the direction and tempo of major or significant changes in its environment; (b) to plan for neccssary or desirable changes; (c) to adapt its€lf to changes demandcd or planned by the political system, or to other unforeseen changes; and (d) innovate on its own.o
In the context of devolopment administration, the Weberian model of buroauoracy has beon much criticiscd on the ground that it being a product of particular historical, social aad political milieu is not conducive to the fulfilment of the developmental objectivos.lo It is argucd that in his burcaucratic model
Eureaucracy and
Development
3.
Weber has treated administrative system as 'stoady state' systems. Consequently he was neither interested in the problem .of consciously stirnutating develofment in a society nor in the problem of directing social change. Developmont situations require risk-taking and achievement orientation whcn decision making is situational, innovative and creative. In many dovelop'ing countries, including India, burcaucracies have come in for -sharp attacks for not bcing able to appreciate tho problems of .development, Where commitment to development needs and programmes have been called for, bureaucracies have been r.found
to
take shelter under conservative neutrality.ll
Joseph
.J-a Palombara, therefore, suggested tbat (for developmental proposes) the Weberian cbaracteristics of bureaucracy like .organisational rules and procedures, division of duties etc,, should not get procedence over target achievement.lz Thus in .a place like India, he maintains, public administrators steeped .in the tradition of the Indian Civil Service may be less useful .as developmental entrepreneurs than those who are not so rigidly tied to notions of bureaucratic status, heirarchy and ,impartiality.ls The. rule bound behaviour, precise delineation ofjurisdiction, centralization of authority and systenr of promotion based upon seniority in the administrative oranization of India are dysfunctional in tbe context of development.ra The Indian Bureauuacy and Development Administration
The
present. administrative structure
of India has emerged from systen. As one of Britain's major interests 'in India, as in other parts of her colonies, was to use its rresources to her best int€rests, little attention was given by the British to devolop administration as an instrument of economio .the British colonial
.and social change. The administration was solely concerned with the maiotcnance of.law and order and the collection of reve. .nues. After attaining .indcpendence, the functions of government have undergone a fundamental change. Instead of beinp -the guardian of law and order alone it has now assumed thi rols ofa custodian of welfare and thc well-being of its citizeqs. This has led to a greater intervention of tbe state into economic ,a nd social fslds. The pengtfation of the state into economic
Bweaucrattc Values in Developmettt' and social developmcntal activities has acquired new importance" in the task of nation'building' The odium for bringing about' greater' desired economic, and political change in India has in over' up built been has wbich bureaucracy, on thc part fallen bureau' The objectives' suit tbeir to British by the ih. y.ut. cracy in India has now to undertake several complex socio'econ' functions and bring about the necessary social and econmic'
omic
.iuog" for nation-building purpose in the
society' With' the style of thc' goals objectivcs, and in. uioptioo of these new changes' For' undergo to iun"tiooiog of bureaucracy had atso merly the bureaucracy in India had to function in the back' ground of a colonial rule and imperial order but it was now set up with Iuppored to work in the framework of a democratic the Stata welfare aciiue involuement of the people for whose bas' of India existed. The fundamental question io the context in...fo*, been whether the administrativs system developed' ani nurtureO in a colonial setting could aew play an appropri' rof" in a free demooratic State committed to a socialistiq "t" pattcrn of society and simultaneously respond to the oxigencies
of
development?
Witb the initiation of the process of national planning, heavy" responsibility now rests with the administrators for bringing about welfare goals in tbe society. The functions accruing to the governmental bureauoacy thus go beyond the t-raditional fraJe of reference of a laissez faire state' The officials aro now called upon to act as catalyst to tho process of social and economic transformation' It has been generally argued that the economic dovelopment of a society particularly il it is' public ' to bc implemented by a massivc intorvontion of the type from the different of bureaucrat sector, requires a breed of bureaucracy primary concern the when of man who is useful is the maintenance of law and order. Thus the need of the' hour is a kind of bureuacrat, wbo is more free'wheeling, less adhering to administrative forms, less attached to the importance oflhiararchy and seniority.ls Therefore th€ basic issue' that has einerged in recent timcs in India has been whether thE administrative'system inhcrited from tbe British c*n respond -to the changing values, aspiration and gorls' of' the- societyt
thureaucracY and
DewloPment
J
'The old bureaucratic conservation and indifrerenca o1' 11-ts civil .€ervants, the closed system of imporsonal operations of develop'
mental progrommes, thc
rigid
adherence
to
formal
rulss'
precedents and procedures must be replaced by a
forward look'
Thc difference betwecn a traditional and
developmental
iog, change, action and result'oriented system. Thc bureauuatic 'syiiem stroutd be in communication with outsido groups and 'pcrmit initiatives, responsibilities and innovations' bureaucracy is partly structural and partly behavioural' The traditional concept of bureaucracy stems oot oi the Weberian characteristics like efficiency, impersonality, predictability' speed' precision, discretion, unambiguity, continuity, unity and heiralchy. Its role is that of exercising and expanding control over -people and other sphercs of life either in its own or in the 'inteiest of its masters. The Indian bureaucracy has so far been ,conspicuous by its nonpartisan, neutral' and constitutionally .based status and its paramount role in the governance of the .country. Its formal exercise of traditional' State authority has
genarally been without any conpulsion of responsivcness to tho rpeople's needs, demands, aspirations and desires. Howcver, the rtasks of a developmental bureauaracy are supposed to be different inasmuch as it is concerned with promoting creativity and
growtl with the stability of thc system. Developmental pro' '€esses are also involved in bringing about appropriate changes 'in the values. attitudes and b€haviour of the individuals in the
society. The success in respect of developmental activities ban. ,not, therefore, be achieved without the concurrence and active ,involvement
of the people, [n contrast to the
traditional
thus needs different which should and attitudes oricntation *inds of valucs, .govern its behaviour, and the bslief that the development 'bureaucracy prescribes a positive thiuking and a creativc -outlook has almost become a clich6. A signifioant questionthat arises in this context is whether such dichotomization of the role of administration is realistic and even conducive {o development? Even if such administrative jargons do carry some distinctive notions, can the importance of traditional administrative funotions bo completcly ignored? Cannot the old 'bcreaucracy, a developmontal bureaucracy
6
Bureaucrutic Values in Developmeao
administrative apparatus be revamped to give adequate support: to the developmental offorts of a devetoping society? Is it: conceivable that one
part of the administrative system
shouldu
continue to collect revenues for the maintenanee of the statc. macbinery and another part be concerned exclusively with the. developmental activities of a welfare state? In what way the two parts in such a situation will be different and antagonistic, or complementary to each other? If economic and social change. is the goal ofa developmental administration, is ir also essential. that an attitude of cbange orientation on the part of bureaucracy differentiates it from the status quo orientation of the traditionat, bureaucracy? If we consider developmental tasks as separarofrom those of keeping law and order, the fact remains that inr many countries today the.two tasks are performed by the same type of persons and there is considerable interchange and trans-fer of personnel between the routine and revenue departments. . on the one hand and'the developmental departments on the other. And even in the days of traditional administration, withl heavy stress on 'order' and 'revenue,' mauy of the officials wereinvolved in what might have been. then interpretsd as developmental aotivities. Thus, the crucial question that emerges is. whether the traditional bureaucratic structural and behavioural. values and norms are conftadictory or complementafy to the. requirements of a developmental administration? The basic purpose of the present research study is to attempt to find answers. to such questions in the Indian context.
Bureaucracyi The Weberian Model Bureaucracy bas been defined as "the type of organisation designed to accomplish large-scale administrative tasks by systema-.
tically coordinating the work of m4ny individuals.'10 It is not intrinsic to any particular ideology -communism, socialism orcapitalism, but can be found in any type of socjety with or without private property and in a basically dictatorial or a basi-.
cally democratic climate.u Bureaucracy is useful to the organisational system in societies with varied political systems, tbe context and character differing a great deal according to the, political set up. Thus a bureaucratic system controlled bv th*
.
BureaucraeY and
DevelaPment
'
I
Communist party in the Soviet Union or The Poople's Republic of China is a different system from that oporating in a liboral society like that of the United Kingdom or the United States of
'
Amcrica or France.
A Weberian form of bureaucratic organisation is characterised by the existence of hierarchical arrangement of offices' division of duties, observance of rules and procedures, selection of personnel on merit and meticulous recording of administrative decisions in writing. This classic modcl of bureaucracy not only incorporates the essential structural charecteristics that have been postulated as definition of bureaucracy as a form of organization-hierarchy, differentiation and qualification' It also specifies a network of interrelated characteristics, both sructural and behavioulal, which identify bureaucracy of this type'l8 It establishes certain standards of integrity, impersonality and professional competence and has been found to be useful and efficient in carrying out its responsibilities' But its capacity for adaptation to change has been rather slow. In the develop' ing countries whcre quick changes are necessary for bringing
about socio-economic transformation' such a concept of bureaucracy has not been found to adequately respond to these tasks. Its role in development administration has, in fact, been questioned in many countries.
its critics' failing to by is subjoct to various dysfunctional consequences of aspects take into account the individual and behavioural Weberiau its members. In an atmosphere of development, model of bureaucracy is said to be unable to meet the demands of the stuation. Robert K' Merton, the eminent social scientist, was the first to point out that although close control by the rules favoured reliability and predictability of behaviour, lack of flexibility affected the fundemental aspect of development' The Weberian model of bureaucracy, according to
i.e. good service to the people.re Excessive formalism becomes counter-productive, especialty tn rural development where the beneftciaries are illiterate and ignorant of government rules and regulations. Another writer, Philip Selznick, oonceives the central dilemma in bureaucracy as arising out of the need for delega-
8
Bureaacratic yalues in Dsys!6pnst$
'tion
of power to organisationsl sob-systems. The increasing complexity of organisational tasks makes decentralisation and delegation of responsibility to the intermediaries inevitable. The bifurcation of interest between the central system and its decentralised sub-units has again.the danger of
Weberian model is not suitable
for transplantation in
the
developing societies.22
in recent times bave even predicted tho of bureaucracy. According to Warren Bennis, bureaucracy has served its purpose-to provide civilization with a great social machine for reorganizing rural life into industrial society, Bureaucracies are highly efficient organizations for mobilizing thousands of people into routine tasks fighting trench wars, building Model T-Fords, licensing automobile drivers, distributing agricultural products. They thrive on the sort of institutional plaoning that can develop only where organisations are allowed to pursue fixed goals within a relatively stable environment. When rapid change erases that stability, the bureaucratic form loses its utility. A leading futurist Alvin Tofler, thus observes, that it is "not surprising to find that whenever organisations today are caught up in the stream of technological or social change, wherever research or development is important, wherever mea must cope with frst-tirne probtems, the decline of bureaucratic forms is most Some social scientists
demise
of
Weberian concept
pronounccd.2s
The problem of bureaucracy is somewhat complex in developing countries where social and political institutions are relatively less developed and whero the State has mainly to depend
Sureaucracy anrl
Developmenl
9
upon the admilistrative structure for the accomplishment of its goats. Thus, ihe bureaucracy in India aod other develofing 'countries have to perform functions which in developed coun' tries aro performed by a variety of other institutions' In socialist 'countries. bureaucratic systems are more integrally interwound with their political and party systems, while in a developing 'society tho poli ioal system may be less developed in comparison lo the bureaucratic apparatus. However,'wbatever may be thp
nature of political system. all modern bureaucracies do possess
the Weberlan characteristics to bureaucracy also exhibits sonle
a varying degree' The lndian of these charactcristics in the
following manner: (a) Bureaucracy is heirarchically organised 'inasmuch as "principles of office heirarchy and of levels of graded authority mean a firmly ordered systcm of super and sub.ordination in which there is supetvision of the lower oliqer by the higher ones" (b) Bureaucracy is based -op a systematic division of labour (c) All bureaucratic operations are governed by a system of rules and the application of these rules to particular cases (d) Bureaucracy is impersonal in "character, i.e. its members function without regard to individual persons, and (e) Personnel for manning the bureaucratic organi'
.
sation are selected on merit and technical qualifications'
' Notwithstanding ttre Weberian characteristics, in practical terms a bureaucrat in India must seek to reconcile the tlto different worlds in .which he lives and works-the little world of
his office with its files, rules and routine procedures which call for his adherenc€ to the Weberian principles and another world of men and women with their growing problems, aspirations and demands, The environmental constraints ol this world 'and the special consideration for backward castes, classes and -other weaker sections and communities necessitate deviation in his actual behaviour from the strict Weberian model'
Thus no study of bureacracy in India can be complete and fruit' :ful without an analysis of its behaviour and attitudes. Amongst
values, the most significant .of these relate to: (a) Rationality in decision-making, i.e. choosdng between alternatives puroly on consideration of efrciency
'a large number of behavioural
10
Bur eaucrat
ic
Value s
in
D eve I op
ment-
it has been asserted that bureaucracies in developed countries. are well known as being capable of eliminating fiom official" business all kinds ol emotional and other personal biases like love, hate or contempt, (b) Impersonality, i.e. the functioning ofbureaucracy without regard for any particular persons, places orthings, (c) Authority-the existence of superiority or inferiority' complex in the heirarchy of bureaucracy ensuring authority tbr execution of various measures, and (d) The Change/Result Orientation-bureaucraay and particularly developmental bureaucracy shouid have change orieotation and/or result orientation,.. for being successful in its mission as compared to the status-qua" as
orientation.
In order to explore the content of values and orientations ofi the bureaucracy in India, this study is specifically concerned with an analysis of their perceptions about the kind of. Weberian,. behavioural and socio-admi nistrative values that they seem .to cherish. It also seeks to examine the relationship between the, social background of the officials and the impact of such factors. like their training, work experience, psychological make-up, and the political environment on therr accomplishment of develop. mental and non.developmental tasks. A further investigation in the nature of commitment of .the officials to the traditional values particularly the ascriptive, and the modern liberal and. rational values is also attempted in order to determine if any. particular constellation of value-orientation affects thc functioningof the officials in the achievement of the develoomental goals.
As the bureaucracy in India is the principal tool for bringing about socio-economic changes in the society, it is also important to examine how far the bureaucracy is able to perforrn the growing development tasks. From the academic ooint of view. it would also be worth .investigating if the Indian bureaucracy.
engaged in development tasks is in any way actually differeni from the old traditional bureaucracy. Il the differences exist, are they significant or merely unimportant variations? Is the Indian bureaucracy static or dynamic? Are its structural and behavioural patterns interrelated? If there are significant variations",
l1l
Bureaucracy and Developnent can they be related administration?
to
differeacos
in
patterns
or
systelns
of'
A Brief Review of the Earlier Studies
Many studios in India in recent times have focussed theirattsntion to some of the above questions and to several aspect$' of bureauoratic petformance in the developmental field. It wouldr be fruitful to review briefly the findings of some of the more important of thcse works for providing a proper perspective to thepresent undertaking. It is significant that most of these studies ' havo been critical of the way the lelics of a colonial bureau' cratic system in India have hindered tho processes of developmetrt. A voluminous study undertaken by Ralph Braibanti and his associates ot Asian Bureauodtic System rn 1.966 had clearly shown that thr British values still continued to set the tone of bureaucracy in India, and there had boen no radical departure in their bohaviour from the pre-indepcndence norms'e4 Thu$' one rrf the earlier empirical studies in this rcspect had argued that the Indian Civil Service of yesterday had a penchant for' strictly adhering to rules and regulations, like obsequious depen' dence on superior's instructions and thc ostrichlike attitude to changing external conditions. And, therefore, the new bureau" must require,'new orientations' new activations, and new work ways."2s
"ru.i[iJInaiul new environments Similarly,
in a survey of Block Devolopment Officers
in
Rajasthan and Uttar Pradesh, Kulde:p Mathur found a clear linkage betwedn administrativo culture and social environtlrsnt' In tho performance of development officials, the admioistrators seem to have admired inter'personal behaviour, morality and hooesty mote than their qualifications, comp6tence and intelli-
geqce. Mathur noticed that even though the need to fulfil devclopmont programmes was nrost u(geBt, much of the' bureaucratio pursuit was directed towards aotivities other than. the achievement of developmental goals.26 Thus, he argued'' that if change was the basic purpose, a new-look development bureaucracy was needed in place of the Weberian model..
tl2
Bureaucratic Values in Development
A
recent study by V.A. Pai Panandikar and S.S. Kshirsagar revealed the existence of some interestiog pattern of felation. 'has ship between the bureaucracy and development administration in India, Thc authors concluded that the bureaucracy involved in the tasks of agricultural development at the field level necessita,ting mass participation tended to be less rigid and behaviourally
more flexible than the headquarter bureaucraey, while the in a regulatory and non-developmental- agency rtended to be more rigid and behaviourally less flexible.2? 'bureaucracy
In a searching probe into the structural properties of the ?anchayati Raj bureaucracy and its rote in agricultural development in the Mehsana district of Gujarat, Ramasbray Roy's findings indicate that the feeling of self-reliance and self-confidence on the part of bureaucracy in inter-personal relations at various levels and interaction patterns uith the ,environmental needs were found to be both facilitating and restraining factors in the role performance of the administrators.28 Although rigidity in administrative procedures and tbe absence of a tradition of allowing the ofrcials ro take instant decision restrained the adniinistrators in employing their .experience for improving the implementation of agricultural
programmes, the offcials were lound generally to have structural properties of the organisation modified to suit their role 'effectively and efficiently.
In a similar study of community development in Rajasthan, Ftr.R. Chaturvedi has eramined the interbction between bureaucracy and the local community in the task of rural .development witbin the framework of Panchayati Raj. He 'came to the conclusion that the existing bureaucratic organisation developed for the maintenance of law and order and collection of revenue was inadequate for chrrying out the tasks of developmental change. Thus, he argues, that there is the necessity of restructuring the bureaucratic organisation on the one hand and a radical change in the orientations, attitudes and behaviour patterns of the bureaucrats on the other for the transformation of tbe rural society steeped in ignorance and laoking in resources.tn
Bureaueracy and
DeveloPmefi
13
In an illuminating article, J'N' Khosla has likewise suggested get that stfuctural de'emphasis of heirarchy is necessary to centralisation to rid of the conventional pyramid which leads most of and creates tension and inter-personal conflicts' As decentralisa' the developmental activities take place in the field, the lion of auihority enables the field units to take decision on spot without seeking clearance from the centre' Dccentralised decision making thus creates autonomous units of administration and is con
the bureaucratio norms show both in regard to one attribute and perception greater non-rational There is thus a laclc of other' the iat onal p€rdeption for ment. The
rresponses to
which he thinks is necessary for the o"ttrrn oi "ooristency, lack of impa*iaf functioning of bureaucracy' He also found a and socialism' goals of compatiUifity between the ^democracy bureaucrats on of values the and hand rationalism on tbe,sne India tends to have in bureaucracy of the other. Tbe structure greater caste-like structure and the higher bureaucracy has
in the Iudian society' Jxaggeraterl sense of status'consciousness part of the personality of the becomes filii".tutor consciousness behaviour' Despite actual their reflected bureaucrats, which is
i
both of over-organization tU" ftign pcrceptions of dysfunctions routines which within of those development invotv-ioj excessive of under'organization and necessary' itit. "-t" f\tnctionally graft'.corruption' favouritism' nepotism, like ioAoalos those ills with their roles is of bureaucrats of adjustments eic., tne'qualitv bureaucrats oflhc Half oriented' positively .orc prestig€ of jobs, nature "o-purutin"ty their iJt[h satisfaction-with -work' Thc dysfuoctional perception- of buroaucracv is ;;;;t. level rise in rational expectations at the aspirational
ft;i;;;"
'14
Bureaucratic Values ln Develoom ent
and its lag at the level of actuality, He, therefore, concluded that as thd present bureaucratic system weighed heavily in
'favouf ofroutine administrative tasks and concentrated authority and decision-making in the hands of tbe elite class which tended to be power-oriented, it was unsuitable for the achievement of the goals of national development. The realisation of an , effective welfare society based on justice, equality and democracy thus needs new values, structure and method of work and hish ' commitment to goals of national reconstruction.
In yet another study on the Administrative Development in Indio,3z Prem Lata Bansal has made an empirical examination ofthe capacity of the civil services in India to respond to change. Her principal concern was to investigate whether the Indian Administrative Service (the IAS) alleged to be embedded in the traditions of the Indian Civil Service (the ICS) accopts, rejects 'or is indifferent to change, and if it accepts the change, whether 'the change is merely tolerable or is it one about which the IAS ,
is enthusiastic. Her findings indicate that a majority of administrators are developmentalists, but the level of their.commitment to modernizing values is low. Thus they cannot be expected to be the advocate-leaders of developmental planso who can put ''their prestige and influence to develop the support bases for a proposal. Her study further domonstrates that the administrators, "having scienco and engineering degrees are more developmentalist than those having degrees in Arts. The concentration of too much power in the role of the generalist administrator at the district level not only makes hirn authoritarian iu his attitude but also isolates him from the masses because of the heavy 'burden of paper work. Her analysis of the attitude of the administrator toward equality reveals that while on the one hand the administratirrs believed in the equality of opportunity for ..all, at the same time, howover, they wire opposed-to the policy
aimed
to
achievc equality
of
to
all in concrete .terms. Bansal's enquiry suggests that the modernizing values -are penetratiog into th€ IAS with only limited impact on those offcers whose tendency is retrospcctive and whose acceptance -of the new order is slow. The IAS omcers, who are intolerant opportunity-
.EureaucracY and
DewloPment
I
5
'to modernizing processes despite m.odifications il-training and position to politioal executives' are non-
,iiJ.- r"t.t-oi[*e l"urfopt.nrofist.
i"
"nrl
are younger Howevero the admioistrators wh,o
atmosphere' tat*,ed in the post-independent social and who are from is
u"in! laid on initiative'
"liit'"" ;"cio economic bockground ;l;;L;"* "tpi"ti.
are- dcvelopmentalists towardchange' Bansal's study has
,il""i"g p;tititt orientation administrative ,f".l"tjngnt ort significant revealations about the development to rttl.;i;;" higher civil services in relation .administratiotr'
and the prevalent valueThe impact of cultural environment has been the tyr;;;;-il; ,o"ioty oo the bureaucratic behaviourHigginbotham' ,'oUjr.t of another important study by Stantey of lndian ir-fiJ""av ot Culturei in Conflict : The Four- .Faces be' ..Bureaucracy,'" he dtscusses bureaucracy and bureaucratic changing ,nunioo, in a setting characterized by conflicting and many bureaucrats' Indian the ,cultural patterns' He has studied as they environments' Hindu of whom were raised in traditional structures' which aalry oo, their dutios in formal bureaucratic pre'Independence the of ll rirgg*r- are strongly reminiscent control procedures' regulations' stf;-i""dtilttration. Rules, remained have practicc-s mechanisms, and basic maoalemint concluded that *r"otiuttv oo"Uanged over the past 25 ycars' He by tbe British used the firmness, harsbness and impersonality were in turn suborditrf,tes .auiUorities in handling the Indian villagers' with dealing employed by those subordinates in thoir disparagingly known approach which became
The colonial way"' u-oog *-.oniiy develpoment workers as "the -official bureauoracy' of colonial was a-product boih of the paternatism emotions .and of the relatod sense that fear and awe were the co' otherwise anC *o*iiittfy to causo farmers to pay taxes 'operate with tbe rcpresentative of oxtraotive bureaucracy'
on tbe "Tho official way" of dealing with citizens relied attempt no .authority and prestige of ofrce' Bureaucrats made They emphasizerJ to gain the fricndship or trust of villagers' citizens endless uncooperative causo to instead their ability to aim."itv and expense. Offieials felt thcmselves accountable
16
Bureaucrattc Values ln Development.
in the service of an administrative machine, that was not ultimately responsible to the people. Their goalr and those of the agency were to control citizens and to extract. resources from them. The bureaucracy,s strict rules became weapons in the hands of its offcials, Blaborate regulations. facilitated their postures of aloof and formal inflexibility, but were ebsily forgotten when they received offers of grfts to appease the harshness of their feelings. Thus Heginbotham has. argued that colonial bureaucratic culture was opposed to the community development model inasmuch as it was based on close supervision, excessive control by higher-ups, and widespread distrust oflndian subordinates. The villagers had a wellestablished image ofthe exploitative, extractive and diadainful govornmcnt worker wbich they naturally applied to extension, agents when they first began to appear in rural areas. superior.ofrcers and
The above brief review of some of the existing Iiterature on, Indian bureaucracy has invariably emphasised the fact that thc. effectiveness of the bureaucracy as an instrument of socio-. economic dcvelopment is very much dependent upon its cultural.
i.c. its systems of values, belief and work-ways. However, many of these studies have not given sufrcient atteBtion to the stujy of constraints on bureaucracv and value orientations,
and on factors presumed to hinder its innovative capacity. Thai there are constraints is generally admitted, but what is the,
of such constraints has not been fully investigated. Whether the procedures adopted by or for the bureaucracy are relevant in the light of policies it must execute? Or do the, bureaucrats themselves stand in the way of efective goal imple. mentatron is one of thc crucial issues of the functioning of nature
bureaucracy? Whether the government itself suffers fro a lack of will or clarity of goals and is, therefore, the major barrier to devclopment is another question. Answers ro some of these important questions require sound and cmpiricallybasod analysis rather than a mere impressionistic acceptance or rejection without any systematic study. There is thus a need of. a,;r enquiry into the value-orientations of tbo bureaucracy in India.
Bureauctacy anil Development
t7
Any organizational form embodies values, Tb us efrciency good; wastefulness is bad. The organization as a peopled entity become value conscious; survival is good; threats to
is
survival, and those who makc them are bad. The political arena often influences institutional value. Parties in power make better allies than parties who are not. Individual employees bold values: like fat people are lazy; thin people arc energetic. These four value-orientations-the bureaucraticr the institutional, the political and the individ ual-permeate administrative policy. Altliough their presence is ubiquitous, their influences are over-lapping.sr Thus
the bureaucratic valuc of efficien:y and "value.neutral'n
expertise provide the governmental organization with much of its power and autonomy. Efficiency and expertise win deference from the traditional branches of govetnrnent.ss Similarly organizations, as peopled structures, are social systems and bave goals like survival. Survival is an institutional value expressive of tho
instrument that employees have sunk into the organization. One survival technique is to maintain and augment supportive elements in tbe environment-while intermediatine or otherwise neutralizing i{eologies.sg While bureaucratic values are part and parcel of the organizational form, institutional values arise out of an ideological or pecuniary comm,tment to particular goals of the organization. Political party values are, however, rather unique to the govertrmental organization. Wheo values of political parties are opera. tive, adminisrators attribute extra weight to policy proposals solely on the basis of the political colouration of their source.s? The most important of the value systems are individual perceptions of the administrators through which values are tfanslated into administrative policy. Decision makers are ofte n awarc. of their perceptions. As a result, decisions are consciously: frittered through ono or more biasos,38 As all officials are human beings possessing value judgements and biases, human values and orientations are regarded as enduring long-term goals which regulatc behaviour adaptation. Since,
18
Bureau$atic Values tn Development
the values of an official form part of his work environment and orientation and since lhe value systems of the civil services in India have been undergoing chacges due to factors like chanpe in educational system, processes of urbanisation and industrialisation, parliamentary democracy, impact of mass media, etc.. the pace at which the developmerltal goals could be realised in India depends mainly upon its officials' orientation towards certain types ot values and the extent to which their own values are consistent or in contradiction with values necessarv for realisation of new goals of a democratic welfare state. The Objectives of the Study Tbe present study thus makes an attempt towards a comparativo
study of tbe role-perceptions, values, attitudos, orientation and behaviour of the Indian bureaucracy engaged in developmental and non-developmental tasks. It is hoped that such a study will examine the prevalent bureaucratic norms and values and their impact on the developmental orientation of the officials with a view to understand the changed character of bureaucracy since Independcnce.
I'he Focus of Enquiry
of bureaucratic values towards development orientation a're vast and varied, it was thought necessary [o limit the scope and coverage ofthe present study. The segmeot of the Indian bureaucracy that is proposed to be the focus of .enquiry is restricted only at the district level in two different felds of dcvel,opmental and one non-developmental activities in two diferent States of Punjab and Madhya Pradesh. These States are selocted purposively on the basis of thcir oomparatively
.As the problems
good and not-so.good perflormance in developmental tasks. The .developmental tasks proposed to b6 studied are Irrigation and
Rural Electrification Programmes and the non-developmental task relates to the Rovenue Adnrinistration. Similarly thc con. stellation of bureaucratic values selected for empirical iuvestiga-
'tion is also limited
to
onty
a few
significant impact on its performance
importatrt ones having developmental goals.
of
l9
iBurcmtcracy and D evelopment
The Research Design is discussed fully chapter.
in
detail in the next
tHypotheses Proposed ta be Tested
.r.r"t, a distinction betnon-developmental functions can be maintained, the project.is undertaken with a view to test the following prevalent hypotheses concerning the value.systems of ,the bureaucracy in l.ndia at the grass.root level: ,Assuming that in an administrative
"\veen the developmontal
and
,(a) does the bureaucracy in India whether
engaged in developmental or oon-developmontal functions still, by and large, shares the same role-perceptions and values ? '(b) whether a different set of values and attitudes is necessary for the officials engaged in developmental tasks, ,(c) whether value-orientations of the Indian bureaucracy are dissonance with the developmental goals and are ambivalent, complex and contradictory,
'(d)
{e) '.(f)
of the
bureaucracy
tic system still continues to be based imperial traditions, and finally,
on colonial
whether the value constellation
reflect the ethos of the social systenr from which rhe officials are recruitedo whether the possible inbuilt resistance of the bureaucra-
whother the bureaucracy in India has no clear conccpt, perception and evaluation of its capacities for developmental tasks.
'Theoretieal
A
ssumptions and Policy Per speottves
As has been discussed above, most studies of public administra-tion in developing countries have stressed the viewpoint that the band of ofrciale who have been brought up and trained in the colonial administiative culture, wedded to the Weberian .characteristics of heirarchy, status and rigidity in the adherence of rules and concerned mainly with the enforcemeot of law and 'order and collection of revenues, were quite unfit to perform thc ,duties expected in the changed situation of an administration
'20
Bureaucratic Values in' Developmeit
As the government is the main institution throogh which the development goals are to bc accomplished in the changing turbulent and unstable political, environment of a democratic framework in India, it is thought. desirable that the' officials engaged in developmental worlc sbould be the kind, who "emphasise results, rather than procedures, teamwork rather than hierarchy and status, ffexibility and decentralisation rather than control and authority" The develop. ment administrator, it has been argued, had to be outgoing and people-oriented, 'he had to be responsible to the new political. pressures, and must know how to get along with politicians."sF The kind of qualities and personal traits that a successful new administrator should possess, viz., " tact, pragmatisrn, dynamism,. flexibility, adaptablity to any situation and willingness to take rapid, ad ftoc decisions witbout worrying too much about procedures and protocol,"t0 has now become a well accepted theory geared to the task of developmcnt.
of bureaucratic capabilities India.
in
the developmental context of
Against such widely accepted and prevailing notions, in his. of the profile of a single IAS officer brought up. in a colonial b:rreaucratic culture, Anil Bhatt has raised some. very pertinent and relevant questions which need to be answered in the context of any empirical study on development administration. His study analyses the profile ofthe IAS officer who" bclieved in the Weberian principles of hierarchy, line of command, and adherence to rules and regulations. Bhatt did not find him in any way less democratic. His adherence to rules did not prevent him from going out of his way to extend the benefits of thc area development plojects to adivasis. The respect for authority did not come in his way when he rcfused to attend th€ MPs meeting. On the contrary he asserted thc principle of locat autonomy against the directives of the highest administrative authority-the State's Chief Secretary. While he did not go out of the way to mix with the people he was not less people oriented. His experience, as Bhatt analyscs, suggests that what is ofteo criticised as rigidity has another dirnension and that is resilencq and firmness. On the othel hand adaptability;. pragmatism, aBd tact in their operational rnanifestations have: recent study
2t
Bur e auer-acy an d D e v e lopme nt
/
.ofteo meant doing iregular and uqiust things, allocating unfair priorities, and striking t€nuous consensus and pseudo'compron:ises.a1 Biratt therefore, argues that what requires reorganisa'tion and investigation is whether the prescription prepared for the oew bureaucrat-go.getting, free-wheeling, flexible, dynamic, adaptable and so on-is couducive to development aad rvhether "it equips him to cope with the turbulence and uncertainty of tho political envitonrnent. The irnportant theoretical qucstions that need further investigation in this context are:
(l)
Are the values imparted by the colonial bureaucratic system really impediments to development?
(2) Did qot tbe pre-independence
bureaucratic tradition
also train the bureaucrats to respect political masterc, to '5bserve the rule of law, to develop a sense of dedicatiol and maintain high standards of intcgrity and per-
.
. formance? , {3) Were these qualities really unimportatrt in adapting to thc demouatic developmental framework? , "{a) Are
(5)
.
the classical attributes of capability and honesty all that irrelevant to development? For the sako of achieving results and getting along with colleagues, supervisors, and politicians, qan administrators afford to ignore all rules, regulations, procedures and norms,. criteria of fairness, just distribution and allocation? Would this lead to development?4z
The prescnt study seeks to throw some light on such type of questions that have been posed by scholars in this respect. It attempts to examine the the oretical dimensions of the socialisation process of Indian bureaucracy, the socio-economic milieu
,in which
it
operates, the cducntional system
in
which it is
'brought up and the theoretical framework of its vision in which it worlcs. An analysis of the typ€ of motivation, value percep ;tion, environmental milieu, would possibly enable us to derive certain specific suggcstions for the recruitment and socialisation 'process of the bureaucracy in India and to dcvelop policy altematives for the implementation of developmental tasks. It 'inay also enablc us to devise certain concrete steps that oould
22
Bureaucfatic Values in Development.
be undertaken for mouldipg the present bureaucratic system for' increased performance-achievements, The study would also help us adopt certain policy measures with regard to the. structural components of the bureaucracy that might be conducive to changes desired in the bureaucratic behaviour for promoting developmental tasks. A comparison between the value orientations and attitudes of sets of bureaucrats working in two different fields-developmental and non-developmental (if the non.development&l task of revelrue colloction could be trcated as a continuuar of thtt oldl colonial bureaucratic values in the post-independence period)" and in two different settings, one wbere the developmont hac taken place comparatively repidly and in other comparatively at a lower pace would, it is hoped, provide some insights into. the kind of value constellations that impede or are conducive to the developmental processes. It is also expected that thE study would enlighten us on the question whether the much, maligned buroauoacy in lndia, while largely remaining wedded to thc Webefian model of bureaucratip organization, has in fact: adapted to tho changing noeds of the situation. And finally,. the study is also supposed to enquire into the oft.repeated plea. for debureaucratizing thc administrative system for achieving. dovelopmental goals. To what exteot such steps are feasible or conducive to the processes of development ls an enquiry tbat is being presently attempted. two
NOTES See Irving SwErdlow, (ed.), Deyelopment Admlntstration
i
Conceplg and Problems (Syracuso, N.Y., Syracuse Universiry press, 1963), p, ixThero is a ipowing literaturo in the field of development administration and administration in developing countries, Besides the $orks citod in
this cbapter, other important workr aro
F.W.
Riggs, (ed.), Frontiers
af
Developmenl Administration (Durham, NC, 1970) J.D. Montgornory and W,J. SiffiD, (eds.), Approaches to Development , Politics Admlnbtration and Change York, 1966) ; Harry Maddick, Democfey
;
(N*t
Bureaucracy and
DeveloPment
23
Decentru|izattott and Development (Bombay, 1963) ; Ralph Braibaati' Development (Durham, N.C'' Dukc Bjorkman, Politlcs of AdministruJames W' 1969) University Press, ; tire Alienation in India's RwaI Dewlopment Prcgrammes (Dalhi. l9?9)' sec also A. Roy, (ed.), Development Admlnistation in the Middle East (Beirut, 1973) ; B.K' Dey, "Buroaucracy and Developmenr : Somo Reflectioos", Indian foarnal of Public Administation, vol' 15 (1969)'
(ei.\, Polittcat and Admtntstrattve
V.A.
pp. 223-43;
Pai Panandiker, Development Administalion ln
Inilia (Dalhi, Macmillan, 1974), S'K' Sharma' (ed.) Dynamics of
2 Vols, aod Goorge F. Gaat, DeYelopment ,4dministration i Concepts, Goals Methods, (Madison Wisconsio, Univer' sily of Wisconsin Press, | 979). 2 Edward W. WEidner, "Development Administtation-A Now Focus for Research", in Ferrel Heady and Sybil Stokes, (eds.), Parers ln Compara' Detelopment (Dolhi, 1977),
tive Public Ailministrctlon (Ann Arbor, Michigan, Iostitute of Public Administration, 1962), p. 98. 3 Edward W. Weidner, Technical Assistance in Public Adminhtrnlion . The Case for Development Administrutlon (Chicago' Public Adminis-
tralion Service, 1964).
4 F.W. Riggs, Adninistrction in Developing . Countrles-Theories Prismatic.tociett (Boston, Houghton Mifrin Co., 1964).
5 F.W. Riggs,
The
Erology
of
of
Development (Bloomington, IDdiana Uni-
versity Pr€os, 1964). 6 G.F. Gant, "A Notion Application of Dev€lopmeot AdmiDisttation", Publlc Poltcy, vol. 15 (1966), pp.200-1. 7 Gerald B. Caiden, The Dynamics of Public Admlnlstration t Guideline s to Current Tran{ormation in Theory and Practice (New York, Holt Rin€hart and Winston, Inc,, 1971)t p. 269. 8 Edward W. Weidnei, ted.), Development Admlnstrutlon in Asio (Durham, N.C,, Duke University Prors, 1970) p. 7. 9 See Unitcd Nations, Development Administratlon i Current Approaches and Trends ln Public Adminlstration for National Dewlapment (New York, Uaited Natiotrs, Departm€nt of Economic and Social Affairs" 1975),
p.
21.
l0 Joseph La Palombara, Bareaucracy and Politlcal Developnent (Princetoni Princeton University Fress, 1953).
ll
Kuldeep Mathur, Mobit Bhattacharva and Sudipto I\tundle, IIow Crisis-Three Studies (Indian Institute of Public Adminisfatioo, New Delhi, 1975), p. 54. Bureoucracy Meets a
12 La Palombara, n. 10. 13 Joseph La Palombara,
"An Overview of Bureaucracy and Politicai Dovelopmont", in Josoph La Palombara, (ed.,), Burcaucracy and Politi' cal Development (Princeton, N'J., Princeton Univcrsity Press' 1963)' p.
12.
P, Taub, Bureaucrats Llnder Slress (Berkeley, University California Pr€ss, 1969), pp. 196-98.
14 Richard
of
Bureaucratle Valuet ln Development
24
15 La Palombara, n. 13, p. ll. 16 Pstcr M. Blau and Marshal W. Mayor, Bureaueracy ln the Modern Socre4, (New York, Random House, 1966). 17 Joseph B€nsmen and Barnard Rosenberg; Mass, Class and Bureaucracy (Englewood CIifrs, N.J., Prentice Hall, 1963). 18 For a discussion of Max Weber's theory of bureaucracy see Max Weber, From Max Weber : Essays in Sociology, Translated and edited with an iDtroduction by H.I{. Genb and C. Wright Mills (New York, Oxford University Press, 1946) j Max Weber, The Theory of Social and Economic Orgonisation, Edited with an introduction by Talcott Parsons (New York, Free Pross, 1947) and Martin Albrow, Bureau$acy (London, Macmillan, 1970), and Ferrel Heady, Public Admlnistration.
A ch.
Comparative Perspective (New
York' Marcel Dekkee, Inc.,
1969),
lI.
19 Bobert K. Meion, Social Theory and Social Structure (New York, The Free Press, 1968). 20 Philip Selznick, TVA and the crassroots : A Stdy in the Soclology of Formal Organisatfar (Berkelely, University of California Press, 1949). 2l Alvin W. Gouldoer, "Cosmopolitans and Locals : Towards an Analysis of Latent Social Roles, I and II", Administrative Science Quarterly,II, 3 & 4, December 1957 and March 1958. 22 Robert V. Picsthus, "Weberian vs. Welfare Bureaucracy in Traditional Society", Administrative Science Quarterly, June, 1961.
23 See Wafr€n Beu,ris, Organization Development (Reading, Mass., Addison-Wesley Publishing Co., 1969); Warr€r Bennis and Pbillip E. Slatcr, The Temporary Socierl (New York, HarDer and Row, 1968); Warten Bennis, Changing Organisdtions (New Yofk, Mccraw tlill Book Co , 1966);lAlvin 'foffier, Future Shocti(Now York, Bantom Books, 1970); and Howard E. McCurdy, Publia' Admtntstration i A Slnthesis (Menlo Park, Calif., Cumming's Publishing Co., 1977),W,268-295. 24 Ralph Braibanti (ed.)i, Asian Bureaucralic Systems Emergent from the British lmperial Tradition (Dtrham, N.C., Duke University Press, 1966). 25 Shanti Kothari atrd Ramashray R.oy, Relations betveen Polltieians and Admlnistrators at the Dlstrict Level (Delhi, 1969) p. 155. 26 Kuldeep Mathrt, Bureauffatic Response to Development-A Study of Block Development Offrcer in Rajasthan and Uttar Pradesh (Delhi, National Publishing House, 1972). 27 V.A, Pai Panandikar and S.S. Kshirsagar, Bureaucracy and Development Administrat bn (New Delhi, Centre for Policy Research, 1978). 28 Ramshray Koy, Bureaucracy and Development i The Case Study of Indian Agriculture (New Delhi, Manas Publications, 1975). 29 H.R, Chaturvedi, Bureaucracy ancl Local Community i Dlnamics of Rural Developmenl (Delhi, Allied Publishers, 1977). 30 J.N, Khosla, "Development Administration-New Dimcnsion.", Il e Indian Joumal of Public Adminlstraltoz, January-March 1966, 3l N.K. Singhi, Bureaucracy : Posltions and Percons (Role Struttures
,Eureaucrucy and
DeveloPment
Interactlons and Value Orientations
of
Bureaucracy in &aiasthan\
25
(New
Delbi, Abhinav Publications' 19;4). (New Delhi' 32 Prem Lata Bansal, Administratlve Developmen' ln Indla Sterling Publishcrs Pvt. Ltd,' 1974)' :: StanleiJ. Higginbotham, Cr,ltues inConflict:The Four Faces of Indian Burcaucracy (New York, Columbia UDiversity Press, 1975)' 34 Samuel J. Bernstein and Patrick O' tlara, Public Administratlon ' 1975)'' Organisatlons, People and Public Policy (New York' N'Y ' pp.258-62.
.35 rbid, 36 lbid. 37 rbid. 38 lbid, .39 See Aoil Bhatt, "Colonial Bureaucratic Culture and Development Administration: Portrait of an Otd'FashioneC Indian Bur@ucrat" ' Journal of Commonweahh awl Comparatbe Politics, vol' 17 (July 1979)'
p.
159.
/t0 Itrid. *41 lbid.
-42 lbid., pp. 169 snd 171.
The Research Desigtt
The main objective ofthe study, as stated in the earlier chapter' is to examine the value systems of the officials at the block and village levcls in two districts engaged in developmental and nondevelopmental tasks, one oach in a good developmcnt performance- Stat€ and another not so-good development performance' State. Since the o6cials work within a oertain organisational' framcwork, their performance is conditioned by the roles de' fined in their respective departments aud by the methods oftheir operation. In coutse of time tho incumbents develop their own perceptions about the role performance and operate in a system conditioned by the socio-cultural and socic'economic environment. The effectiveness with which an ofrcial performs'' bis own role depends, ultimatoly, upon his perceptions in the prevailing environments. The study is, therefore, intended to' aoalyse the role relationships of the incumbents aqd their departures from thEir formally assigned roles. ln other words' the study also propores to exmine the relevance of bureaucratic
theory to an understanding of bureaucratic behaviour ag visualised in the existing context of development tasks in India' The study further aims to enquire lnto thc extent to which. tha development orientation ofthe officials helps them in effective" implementation of the dcvelopment programmes ar.d interalio' proposes to assess the significant factors in the personal and"
28
Burcaucratie Values in Development
.departmental lives of the bureaucrats oi authority and responsibility.
which
.sxercise
influence their
The Scope of the Study
'The
of the members engaged in developmental and primarily aon-developmental activities. The oficials chos€n belong to the irrigation and rural electrification departments, who are engaged 'in carrying out development programme in the rural sectors, and the officials of revenue adminisftation, engaged in collection of 'revenue.which has been assumed to be primarily a non.devclopment activity for the purpose of this study. study has been conducted amongst a sample
-of the bureaucracy
The agencies chosen for study bclong to two different States stages of development. The States chosen on the basis of this criterion are Punjab and Madhya Pradesh. Punjab is a State where considerable developmental activities have takcn place with respect to both irrigation and electrification. It is a State which is the best irrigated ia India (75 per cent ofnet sown area .is.irrigated by all sources) and where all villages are 'electrified. Madhya Pradesb, on the other hand, is a State with the lowest percentage ofirrigation and electriflcation (9 per cent of not sown area is under irrigation from all sources) and 19.5 per cent villages are only electrified. These States werc purposively selected for our study as examples of good and uot-so.good 'performance in development functions, whereas the regulatory activities remain almost on the same par in both the cases.
with different
Unlike most other States in the country, punjab gives a larger share of electric power to its farmers. All villages are electr! -fied and the tubewell connections for irrigation pulposes are readily given. The agriculture sector is thc largest consumer of power in the State. ln 1976, the annual per capita consumption .of electricity for irrigation in Punjab was 6l .K.W,, which was the higbest in India. Against the 77,450 electric connection for tubewells given during 1972 to 1977 in punjab, 47,429 were given between ltne, 1977 to F'ebruary 1979.
The ResearcklDesigi
'
2*
The belief that the State inherited a iast nbtwork of canals from the British is not true. ln 1947 at the time of Indepen'
oflndian Punjab had only 30 per cent of the Punjab and half of its land was agriculturally of undivitled canals poor. The present irrigation system is mostly developed by tbe normal investments of the State Govarnment. The per hectarc yield of wheat, rice, cotton and potatoes in Punjab is the highest in India today. During 1971-72, the production of' wheat rose to 56.2 lakh tonnes from a mere I lakh tonncs in, 1965-66, ln 1965-61 the Coopbrative bodies in Punjab gave Rs. 25 crores in short-term crop loans, out of which only Rs. 4 crores was meant for fertilizers, while in 197l-72 the fertilizer distributed on loan, increased to Rs. 34 crores. The long term, loans for sinking tubewells by Cooperatives amounted to Rs. 3l' lakhs in 1960 which increased to Rs. 16 crores in 1972. The
dence, the portion
National Agricultural Cooperativo Marketing Federation of India now maiotains 5,000 depots of.fertilizers for 11,000 villages, These statistics are good cnough to indicate the rate of development of Punjab in the field of agriculture. The yield' of wheat and rice rose to 2,537 kgs. (next only to Mexico in' wheat) and 2,910 kgs. respectively per hectare in 1978. Similar production records have also been maintained for cotton" potatoes, sugarcane, etc,
In
Madhya Pradesh, the percentage of electrified villages in 19.51. Upto 3lst March 1977, only 249 cities and towns and 13,829 villages were electrified. The total number. of new consumers under irrigation during the year came to 35.5 thousands in the irrigation sector. fhe State has lately' made considerable progress in rural electrification. Against at averago (per consumer) consumption of power of 3,249 K.W., the average per consumer consumption of power in the agriculture sector iryas 1,075 K.W. or 33 per cent approximately. 1976-71 was
The State lacks in a network of cau.ls. The oanals arc mainly meant for distribution of stored water accommulated
rainfall.
The geographical position and configuration are such that Madhya Pradesh is one land masses of cultirrable in India. For increasing agriculturatr States of the least irrigated
from the
-30
Bureaucratic Values
ln
Development
"production, conjunctive use of undergrourd water is a very -important factor for supplying watcr input. The Statc does not have a good network of effestive cooperatives and sale depots for supplying loans for financing agricultural production and -the oarketing of the produce, The private moncy-lenders and traders havo still a large grip on the cultivators who are often doprived of their fruits of labour. The introduction of high yielding varieties of wheat and paddy and the application of 'fertilizers in assured irrigated or rainfall areas have no doubt increased the per hectare yield of the crops under the Integlated Agricultural Production Plans, but the increase in total yield of crops is very small, compared to that of Punjab.
In
Madhya Pradesh, the district of Morena which has a of physiological tcxture was selected for our study as . a result of discussions with the Secretary, Department of Irrigation & Power and Secretary, Revenue Department at Bhopal and Members, State Electricity Board at Jabalpur. In Morena, there are some areas where canal irrigatiou has been undertaken and where the Chambal Ayacut authorities have completed some works. This area has also been developed .through a number of rural elcctrification programmes and gained some prosperity. The areas around Amba, Jawra and Sabalgarh have also beeome prosperous to a varied degree, These factors would be clear from the irrigation map of Morena : given on tbe opposite page. complex
In Prrnjab, all the districts are welFirrigatcd and electrified. Patiala district, Patiala, Rajpura and Dera Basi blocks have different degrees of irrigation. Villages by the side of the Grand Trunk Road in Dera Basi block have higher elevation . and therefore canal irr.igation has not been extended to these areas. Of course, all the villages in patiala district are electrifi:d but the number of rural consumers of power is vet to increase in ertain areas. The irrigation map oi patiala on p"g,
'In
32 illustrates these facts.
The development pfocess in thc sectoral dimensions of irriga_ . t tion and eleetricity in Morena and patiala districts, as elsewhere
I
I
iir
33
'The Research Dedgtt
in India, has .iin" -itav
Although for purposes from these soctors are treat€d as officials
been a continuous
ono'
"mcials and ofrcials - from tbe Revenue oerformiog deoelopment tasks cslntiailv involved in non'dovelopnental *orL*
#ilffi;;t
Governments have also The Revonuc departm€nt of the State various rni promotion of development activities in t"* instance' For work' "tritfi to their revenue collection -"* it addilion to. the fatmers relating to asricultural inputs loans ;;;;t;;;; and power' a village Patwari' iik.t;; *"t.., t rtilize., pesticideis stilt a key person. Therefore . ll.iii"n_iraar or a Tehsitdar in the develop' Jo"n foo.tioouries have also some involvement engaged of8cials mont activities. The distinction made betwoen thus..somewhat i3 a.G"ptti,rf or non-developmental tasksbetween tbeir value a vicw to differentiate
,JiUitt"ty with systems,
Selection of the Unlts
for
StudY
Patiala srcrg As stated earlier, the two districts of Morena and at the state .;i";;t;t a rssult of discussions with the ofrcials in each of the l-.".i. af,"t selection of districts' three blocks principles' followiog the on two States were solectcd Morona in the State of Madhya Pradesh has position of blocks in respect to rural electriblocks and tho
The district
of
l0 fcation is as on
: I
I
t
Page 34.,
good In the selection of the three bloclcs for our study' with 660/" of criterion the .medium and poor stages of development, a block in villages ..and above of olectrified and irrigated 33% was taken as the well-developed bl'ock' A block with be to taken was -oi l"tS of eiectrified aod irrigated villages 33% between io th" poo, stage of development. A block having "ana a6o/" of electrified and irrigatcd villages was considered to be one with medium dovelopment. With these criteria' 'three blocks, Amba, Jawra and Sabalgarh wcre setected for our -study. Theso three blocks also satisfied the criteria of develop..ot io irrigation. Amba Blook is very well irrigated whilc Jawra Block is onty partly irrigated. Sabatgarh Block is ill-
B ureaucratic Vahies
34
,Sr,
Block
No.
in'Delelopment
Total
Electrified
villages
villages
Perc.ntage
l.
Porsha
73
69
95
2.
Amba
7l
62
87
180
74
39
4.
Jawra
Morena
99
46
46
Pahargarh
127
27
22
6.
Sabalgarh
t24
28
JI
7.
Kailaresh
99
49
47
8.
Vijaipur
r54
38
24
9.
Sheopur
213
t4
6
Karhal
109
9
I
1249
4t3
10.
Total
SourcB:
Executivc Engineer, M,P. Electricity Board, Morena.
irrigated. Thus Amba, Jawra and Sabalgarh blocks were taken
as repr€sentativcs of good; medium and poor developmental performance blocks ln the Morena district of Madhya pradesh. Applying tho samc criteria of developmcnt so far as irrigation
and electrification were concerncd, three villages in each of thesc blocks were selected for dctailed study. These villages.
were chosen somewhat subjectively.on the basis of discussions. with block lcvel ofrcers, ae thc rolevant statistics about the irrigation and clectrification programmes were noi available for all villages in tho selected blocks. Good, medium and poor. pcrformancc villagos, in fact, fopresent a comparative concept. In a good performance block a good performance villagc meanr a village well irrigated and welFelectrffied, while mediul performance village meaut a village which is only partly irrigated and partly electrified, A poor performance village in a gJoC Utock moant a village where irrigation and/or o'iectricitl facilitics,
I
The Research Design
35
are very meagrely available or not available at all,. although
it
is geographically located within th€ jurisdiction of a block, one third or less of which is irrigated and electrificd. Similarly, in a poor performance blook where electricity or irrigation facilities are available in
criteria the villages that were chosen for study in the sclected blocks of Morena district in Madhya Pradesh were: those
I Amba
perJbrmance
2.
J.
Good villageThara
Sabalgarh (poor perfor-
performance
block)
block)
L
III
II Jawra (medium
(good
l.
mance block)
Good villageChhaira
t. Good village-
Medium
Medium
,,
village-
villagc-
village-
Bharatpura
Belgaon
Lakhanjhari
Poor
village-
Paikapura
3.
Poor
village-
Manjra
Sunhera
3.
Medium
Poor villageRampahari
The same methodology was apptied in the selection of blocks and villages in thc district of Patiala in the State of Punjab. The Patiala block is very well irrigated by the Det-work of Punjab irrigation canal system as well as by the Bhakra-Nangal canals. Patiala is also the hcadquarters of the Punjab State Etectricity Board. Although all the villages of Punjab are electrified, the numbcr of agricultural connections differe from area to' area. In Patiala block the agricultural connections are very
common. As tbis block fulfils our criteria for good pcrfor-
Burcaucratic Yaluet in Development
36
it was tak€n as representative for a good performance block. The Rajpura block is well-elcctrified (although not to the extent as Patiala block) and only a portion of it is irrigated. This block was, therefote, taken as representativc of the medium performancc blocks. Dera basi block which is mance,
near the Grand Trunk Road between Chandigarh and Rajpura has little irrigation facilities but some elcctrification work bas been carried out, It was, therefore, chosen as a r€presentative of poor performance blocks. The same criteria used for seiection of good, medium and poor performance villages in the Morena district of Madhya Pradesh were also applied for seleotion of villages in the tbree blocks of the Patiala district in Punjab also. The villages. ultimatelv selected in the Patiala district were as follows:
II
I Patialn (good
performance
performance
Re
was
-
|. Good Village Chhat
Dera Basi (poor performance
block)
block)
t. Good Village
III
Rajpura (mediunt
block)
-
1. Good Village
'-
Ghanoune
2. Medium Village-2. Medium Village- 2. Medium Paher village.Khera Jatta
Bankberpur
3. Poor
Village-
Old Sular
3.
Poor VillageBasi Sikha
Universe of Oficials Selected
3. Poor VillageMohmedpur
for Study
for lrrigation, Blectricity and ofthe Madhya Pradesh Government and postod in the headquarters of the district of Morena and thc three selected blocks consisted of 92 officers at the time of the Survey. These officers at the district and at selected block leadquarters consisted of the Executive and Assistant Engineors The universe of ofrcials working Revenue departments
lIIe
Rescarch
Design
37
-and sub*ngineers, Revenue Sub'Divisional OfEcers (SDOs)' Tehsildars, and Naib Tehsildars' Out of thesc 92 ofrcors, 88 -were available for interviews and-ctructured questionnaires were
_.
-
.canvassod alter personal discussioirs. Thc overall position ,;the three types of officials intorviewed is given ia Table 2'1'
of
The universe of officials working for the two developmental -and one non-devclopmental departments of the Governmcnt of -rPunjab an$ posted in Patiala and two other blocks consisted of '136 officers. The city of Patiala has the largest concentration of officers on account of the shortage of acoommodation at .other block headquarters. The rovenue work. of Dera Basi -block was, in fact, managed by officers posted at Rajpura. On account of the reorganisation of the Revenue Department of Ponjab, a number of promotions and transfors were taking
TABLE 2.1 Number of Ofrcials Interviewed in Morena by Department and Places of Postine Place of Posting
Departments Elecitricity Irrigation
Revenue
Total
l8
Morena Headquarters
4
9
Amba Block
4
6
Jawra Block
3
20
6
29
Sabalgarh Bloch
t
t6
8
26
13
51
24
88
Total
5
15
at the time of the survey. The number of officials belonging to the Revenue Department, that wc.could contact, was, therefore, somewhat less. The total number of officials of 'the Government of Punjab interviewed was "thus 124. The dis. ,tribution of the thrce types of the officials in Punjab who were :interviewed during the enquiry was as follows: place
Bureaucrat
ic
Yalues tn Development
TABLE 2.2 Number of Officials Iuterviewed in Patiala by Departments and Places of Posting
Departments
Place of Posting
Electticity Patiala tleadquarters and Block Rajpura Block Dera Basi Block
Itigatlon
8
?l
8
3
35
39
l1
l8 t24
32 24
JI
l8
Total
74
tRevenue officers posted Dera Basi Block.
Revenue Total
at
Rajpura do the revenue work for
Sanple of Villagers Interviewed
In addition to the officials, a numbor of beneficiaries irr the. selected villages were also interviewed on a structured qu€stionnaire in order to know their reactions and attitudes to the value systems of the ofrcials in their dealings with them. The table below gif.bs the number of villdgdrs iiiteiiiCw;d inl6e niiE selecte d villages each of the Morena and Patiala districrc.
TABLE2.3 Districts Morena Ambo
BIock
Jawra Sabalgarh Block Block
Thara Chhara
20
Patiaia
Sunhera
18
Bharatpura Belgaom
2t
Patiala
Rajpura Dera Basi
Block Rewas Chhat Block
Bloclc
Ghanoune,
l5 20 20 20 Lakhanjhari Khera Jatti Pahar Bankh-
20
20
20
20
t9 20 erpur 20 Paikapura Manjra Rampehari Old Sular Basi Sikha Mohmed22 pur 20
19
20
The Research Deslgn
39
Thc villagers contacted were eithor benefioiaries of development
of irrigation and/or rural clectrification or nonteneficiaries but knowledgeable persons in the areas. The total number of villagers interviewed was L74 in the Morena district lprogrammes
and
180
in the Patiala district, giving an average of
'schedules respectively per village.
'The
,19
and 20
Design of Questionnaires
A study of
valuc-orientation
of
officials engaged in develop-
'mental and non-developmental tasks]is important for an analysis of buteaucratic performanc;. Values are enduring long-term goals directing and regulating bohaviour patterns and adapt. .ations. Values refer to thosc aspects of individual's orientation wrich commit him to ths observation of certain rules, various 'standards and criteria of selection of certain courses of actions. "Such orientation is not random but .system having some organised set
tends to srow out of a of rules. Values may be explicit or implicit, and restrictive to an individual. In other words, they enable bim. to tako actions in terms of certain €valuative standards. Since the attainment of independence the value system of the society in Indiahas been undergoing rapid changes, A number of complex, interwoven and diverse factors are responsible for ,it. In relatioo to the sub-systom of bureaucracy, the officials' ,commitment to the nature of value-orientation assumes a great .significance. The problem of bureaucratic capabilities and preparedness for development tasks is intimately conneced with the problems of its values, orientation and behaviour. This study 'is, therefore, concerned with a comparative analysis of values, ,perceptions, attitudes, orientation and behaviour ol tho bureau,cracy in India engaged in developmcntal aod non-developmental {traditional) tasks (assuming, of course, that such a distinction €an be maintained structurally). The questionnair€, is thus designed to provide scope for analysing the bureaucratic capabilities and preparedness for dovelopmental tasks as also to {rnderstand tho change in the character of bureaucracy sinco
Bur eaucrallc Values in Development
4,0
Independence and to examine if the Indian bureaucracy and large, shares the same values and role-perceptions. Values Selected
ctill, by'
for Enquiry
Kee ping thesc considerations in mind, the scale and items in', the questionnaire were designed to probe into the following sets'" of values and characteristics otit of a large constellation ofr values that the ofrcials possess in a bureaucratic structure. S t ruc tur al
Character
is t
ics
l.
Hierarchy of AuthoritY
4.
Selection on Merit
5. Inpersonality
Section I Section lI Section IIIr Section IV" Section V
Social Per sonal Values
S€ction
2. Division of Labour 3. System of Rules
II
l. 2,
III
IV
Integrity of Character Equality of Individuals Section VII{
Socio-cultural Value
1.
VI.
Caste/Class Consciousness
S ocio-
adminlstrat
i
v
e
Value s
Section
VIlft
Status Consciousness
V Behavioural Values
L
Section lX.
Rationality
2. Superiority/Inferiority Complex 3. Change/Result Orientation 4. Participative Decision-making For investigating relationship betweon tho social background
4L,
The Research Design
of the officials ald their role perceptions and for inquiry into factors like education, training, work experience, age, income' class of jobs, promotions received, exposure to larger environment having varied influences on their accomplishing developmeotal or non{evelopme ntal tasks, .some questions on persona} particulars were incorporated in the questionnaire fieant for tno officials (Sections X and XI of the questionnaire in Appendix II). For the measurement ol the degree of bureaucratisation we had to dovelop Likert type scales for the various charactsristics of bureaucracy. To avoid the problem of summated rating in
or decrease "strongly possible from scores, coding in the in the variation or dismerely disagree" of "agtee instead agree" to "strongly uEi.J' *u. 'ntroi'iced .6 that u higher scorb on a particular item indicated stronger agreement or disagreement with thc attitude being scaled. The medium scores thus reffected differences from the highest and lowest groups. The irrobable anti" cipated replies were given in codes which could be used manually or directly for mechanical tabulation. Some of the quostions were, however' negatively framed to facilitate the spontaneity of replies, say for instance the question 1.2 (Appendix II). It was asked if the respondent official could take action at his discretion immediately aftor the question 1.1 where the rcspondent was askeC if he was guidcd by his senior officers for taking a decision. Sirnilarly, after asking the responclent if there was any clear.cut division between his and hie senior/junior officers'duties (questions 2.1 and 2.2) it was again asked if the respondent had to do things performed by his supe' rior officers at his level (questions 2.4 and 2.5), A number of sucb positively and negatively oriented questions were includert in the officials' schedule. This was only for facilitating clearcut replies with the least possible thinking and hesitation. scales measuting the same concept and the increase
of the felt
ol'tho the active involvement of the people. The developmcrtal outlook of the people can give some concrete shape to programme implemen' tation. In order that the officials are assured of people's Developmental cfforts on the basis
needs
people in a clearly de8ned geographical area need
42
Bureaucrutic Values in Ilevelopment
booperation in the development programme, it was felt trecessary that the people in villages should be enquired as to what extent did they appreciate the officials' actions, role performance and capabilities. Thus a villager's schedule was also designed for the eramination of thc people's perc:ptions of the officials, performance (Appendix III), Section I of the Villagers' Schedule started with the enquiry into the nrost important agricultural development programme and the frequent natural calamities in the locality that the people had to face. Questions on administrative inefficiency and delay, inadequate staff, insufficient funds or people's cooperation etc. wero included in this cluster. Questions about rbgular/ interrupted supply of irrigation water and power, state of maintenance and the availability of agricultural spare parts locally formed the subject matter in Section II. Questions o n the behaviour of officials and their aptitude for development work were put in Section III. Questions in Section IV elicited information about personal particulars of the rural respondents. The replies expected in five scales of values were all coded. A
dmi ni st ra t ion
of
Que
s t
io
n n
aire s
After our meetings with the oflcers of lruigation, Blectricity and Revenuc Dcpartments, we approached the officers selected for interviews through their heads to get responscs on the offcials' schedules. The respondents were all cducated and ought not to have had any difficulty in answering the self-explanatory qucstions. But our experience was otherwise. As the response to our request was very poof, we had, ultimately to afrange personal meetings with them for getting responses to the officials' schedule.
Diffculties
In
the bcginning, there were some difficulties, both on the parts
of the offcials and the villagers to respond €xactly to the inten sity scales which the Likert scales provide for a useful analysis of agsociation between different variables. This happened parti-
43
The Research Design
cularly during the filting up of the viltagers' schedules. The levels of rating which created confusion in the minds of the villagers was resolved after some time through personal dis.cussion w th the villagers. The ofrcials, however, had no difficulty in grading their replies. 'The
St,uctural Linkages of the Field Oflcials
It will not be out of place to mention some of the
broad
Iinkages of tho field ofrcials that we interviewed for the purpose .of our study with their parent departments at the head-
.quarters for obtaining a proper perspeotive of their positions. In Madhya Pradesh the offce of the Superintending Engineer. '(Irrigation) responsible for development of thE Chambal Ayacut
Project is situdtod at Gwalior. The irrigation officers and 'staff in the Morena district worh undcr this Superintending Engineet (lrrigation). Ao Executive Engineer (Irrigation), with his Assistant Engineers and other staff, posted at the head' .quarters of the Morena district is responsible for th€ construc' tion, maintenance and distribution of irrigation water. As more :irrigation water became available on account of the develop' ment of the canal network, a different irrigation .cirole under an Executive Engineer, assisted by Assistnnt Engineers and othqr 'technical staff, was created and housed at ttre headquarters of "the Jawra block.
Similarly the development of power, transmission and distri' in the Morena district is under the chargc of an iExecutive Engineer (Power) posted at the headquarters of the Morena district. He works under the supervision and guidance .of a Superintending Engineer of the Madhya Pradesb State iElectricity Board stationed at Gwalior and is assisted by Assis' tant Engineers and other technical staff Another division in
bution
at Sabalgath under the Superintending Engineor, Gwalior on account of the
'charge of an Executive Engineer has been created increased electrification
work for making conjunctive use of
underground water resources and for industrialisation. The staff is housed at Vidyut Colony, Sabalgarh from where it operates.
Bureaucratic Values in Develoommt
44
The Revenue Department officers posted at Morena and other block headquarters work under the Collector of Morena. District at Morena subject to the overall supervision of the' Divisional Commissioner, Chambal Division,
The Headquarters of the Chief Engineer (Irrigation), Punjab' is at Chandigarh, The Offices of two Superintending Engineers, one for Irrigation Branch of the Governnent of Punjab and another for Bhakra Main Canal System, assisted by a r,umber of Executive Engineers, Assistant Engineers and technicat staff, are located at Patiala. t he engineers and overseers are, however, responsible for maintenance and distribution of water. .line-w ise and canal-wise. As already mentioned, the headquarters of the Punjab State Electricity Board is located at Patiala. Tbe Supsrintending Engineer of the Patiala Circle works under the Chief Engineer (Soutb Punjab) posted at Patiala. The Superintending Engineer has a number ol Executive Engineers supported by the power staff stationed at Patiala and Rajpura. The maintenance, generation and distribution of power in the selected block of Dera Basi is done from Rajpura. However, for depositing the. electricity dues, villagers have to travcl long distances to the Head Quarters to avoid thc possibilitv of the disconnection of electric supply. The officers of the Revenue Department, Patiala and Rajpura, Commissioner, Patiala, located at Patiala.
work under the supervision of the Deputy The Field
llork
During the State level discussions at Bhopal, the Additional Chief Secretary to the Madhya Pradesh Government, Secrotary, Departmcnt of Irrigation and Power and Secretary, Department of Revenue were reguested to issue instructions to tbe local olficers in Morena to render assistancs to our research team. The Divisional Commissioner, Chambal and the Co ector, Morena received instructions from Bhopal to see that the revenua
The Research Deslgn
45
department officors posted in Morena oxtended all coop'eration to our study team in the field rvork. Similar instructions were issued by tho State Elsotricity Board, Jabalpur to tho Supcrintending Engineer (Power), Gwalior and Executive Bngineer
(Power) and Morona and Sabalgarh. The Chief Engineer' (Irrigation), Bhopal and Superintending Engineer (Irrigation)'. Gwalior also issued instructions to the Executive Engineers (Irrigation) at Morena and Jawra which facilitated our feld investigltion work.
At our instance the Chief Secretary
to ths Government of
Punjab requested the Chairman, State Electricity Board, Patiala' the Secretary, Department of Revenue, Govcrnment of Punjab"
Chandigarh, and the Chief Eogineer (lrrigation), Chandigarh to extend all cooperation in our survey work. Thdse officers in turn requcstod the looal officors of the three departmeDtc posted at Patiala to render facilitios for the survey. The field work in Patiala was thus facilitated en account of the coopera. tion receivcd from all the dopartmental officers. The field survcy in the district of Moiena was 'conductod in January 1979. After meeting tbe senior officers of the depart* ments of Electricity, Irrigatiiin and Revenueo the offlcials' schedules.for 6lling were distributed amongst the various officers of the Madhya Pradosh Government. Subsequently appointments had to be made with the officials (as they were mostly freld offioers having touring dutios) and the schedules were gof, filled after iotcrvicws and discussions, The same procedure was followed in thc fcld survey work in Patiala district in February 1979. Thereialso the officials' schedules were got comploted aftor interviewg and discuesions on tho appointed days. Similar field survoys wero conductcd in the headquarters, sglccted blocks and villages oftho:district of Patiala'in Punjab during February 1979.
At the distribt, block and village levels, discussions were held with officials and non-offncials like the District Collector/Deputf Commissioner, District Revcnue Officer, Project AgricultureOliicer for Intensive Area Development, Chairman, Zila Parishad, Panchayat Offioer, President of District Cooperative
46
Bureaucratic Values in,Development
'Unions,
etc., who gave us mase of information rclating to the 'development and non-development prograromes of the area, -and the attitudes of the officers and citizeos towards dewlop ment etc. Discussions with the villagers in the remote areas of the 'selected districts offered good opportunities to know about the
ofthe people in the area, the shortcomings and advantages of development plans, the cooperation ofrered by 'the people to the ofrcials in implemcnting developmental plans and value perceptions about tho ofrcials. . Village level workers, school teachers, Tehsildarr, Naib Tehsildars, and persoDs like political leaders, beneficiaries of developmental activitiesland other non-beneficiarics (but knowlodgeabte persons) werc of gr€at help io this exercise.
"desired needs
-Pre-testing
of
S chedules
During the first round of the field survey,
thc draft
question.
naires for (a) the oftoiatr and (b) villagers were
prc.tested. A number of officials proposed to bo interviewed were given "copies of the rclevant questionnaircs. The questionnaire was revised in the light ol oommcnts givcn by the ofroials in the sample.
Although some doubts were exprcssed about the retention of fvc sceler of values for offcials' perceptions, the number of 'qcales was not reduced, But on account of inadeouate entries
in thc scale values of replies, throe scales of values were taken for tabulatiotr, The two extreme values on cach side were -combined while the middle values were retained intact. With this proccss thc tabulation of data became more neaningful. Regarding the quertionnaire for villagers,
the pre.testing of to make 'thc quertionnaire oore comprchensive, But at the tabulation stagc retcntion of fivc scale valuer for eaclr reply seered to be 'supetfluous on account of inadequate frequenciec in some cells
'schedules enahled us to delete and add romc qiestions
4T
The Research Design
of extreme value, Ultimately the analysis of village schedules" had to be restricterl to three value scales. Margin of Errors The offioials' schedules were canvassed on a complete enumeration basis as the number of available officials according to the proposed schemo ofthe survey was only 212 in the two districts of tle two States. The question of margin of error did not,. therefore, arise.
The most important numerical entries
in the villagers''
schedule wero (a) age and (b) income. Income figures, as is. well-known, arc not free either from under-estimation or over' estimation. As propor representation was given large,
to
medium and small farmers and landless labourers while visiting a village, the variance of mean income was found to be high. and erratic. The mean and variance of age of selectcd random, villagers were calculated in respect of sampled villagers for one . village each in the two states. The coefficient of variation for this characteristic for 18 villagers in the Morena district and. 20 villagers in the Patiala district was found to be less th'rn 4.. Thus, on an average, a sample of 19 and 20 villagers in the
Morena and Patiala districts rospectively was considered adequate to keep the margin of error within tolerable. limits.
It is with these limitations that the work of the survey was completed during December 1978-February 1979, the results of which were tabulated. The interpretations drawn from the various statistics and tables are analysed within the framework of our hypothoses and objectives.
3
The Bureaucracv at the Grass Root Level : A Study of its Proflle and Job Satisfaction
orler to
trn
[nclerstand the value system of the officials at the India it is essontial that their personal profile .and socio-economic background be analysed fully. This chapter is devotod to an analysis of the personal characteristics of the .officials that we had interviewed for our study. grass root level in
The investigation
into personal profiles of the officials
,ao irnportant elcment
of the study as
it
is
provides an occasion
for an analysis of their attitudes and Lehaviour in the porspecdive of their social environment. It is also expected that the background ioformation about the offcials may further reveal -the capabilties and potentialities of thc officials for developmen.
tal
tasks,
in terms of marital status, number of dependents, rural/urban back.ground, educatiorr, parental occupation and economis class .origin, class of present service, promotion received, etc. Profiles of the official.respondents was examined
,age,
.Age of Classification
'Table'A'of Appeodix I gives the ilistribution of respondents by age-groups, State and Class of service, It may bc seen that imoro than half (52 per cent) of the respondents of our study
50
Bureauuatic Yalues ln Development
belonged to the middle age'group 26-35 years and about another'
one.third (33.5%\ belonged to thc higher middle age-group 36.45 years and thc remaining rcspondents belonged cither to" tho old (46-58 years) or young (below 25 years) categories. Thc age distribution of the relpondents acoording to age-groupt.
in tcrms of percentages was
follows:
as
TABLE 3.I Distribution of officials by Age Groups and Class of Service. (Percentage) Age Groups Qlsss
l
I
Class of Service Class Class
II
25 years and below
III
7.0
Totat 4.2
(young) 26-35 years
47.4
63.r
47.6
52.4
26.3
30.8
35.9
33.5
26,3
6.1
(Middlc aged) J.
36-45 ycars
(Higher Middle) 1.
46 yearc & above
9.5
9.9
(old) Total
100.00 100.00 100.00 100.00, (N='le) (N:65) (N:128) (N:212) Mean age-Class
.
I-38.4
years
Class II-34.4 years Class III-35.2 years
Total-35,3 ycars
It is clcar from the above table that 86 per cent of officers. cngaged in developmental activities in both the developmental, dcpartmcnrs of electricity and irrigation and the non-developmental dcpartment of revenue administration oosted in Morena and Patiala districts belongcd to the age-group of 26-45 ycars-
.A Study
ln Profiile and Job
Sotisluction
5l
The highest pcrcentage viz 63 of Class II officers belonged to the ag6 group, 26-35 ycars, The lext highest percentage* w€ro in the same age-group of Class I and Class III offi""r*
(47 per cent each). Thus the civil servents in the developmental, ald non.developmental bureaucracy were quite young. Howcvcr, the mean age of Class I offccls was somewhat higher at 38.4 yeare. This was so beoause according to the respondents the main criterion of promotion and advancement of career in their departments was seniority and many incumbents occupy_ ing Class I positions had been promoted as such.
of Class II and III cadres also,oftho whole group varied between 3"+ to 35 years. Analysing tbe details of age composition of developmental and non.developmental personuel in Morena and patiala we fiind the peculiarities shown in the fo owing table. Theaverage age of the omcers
as
TABLE 3.2 Age Conposition of Developmental and Non-developmental personnel by Districts. (Parcentage)
Morena
Age Groups
DAtoF- N;; mental detelop-
mental
lopmental
mental
t.
25 years and
o.J
8.3
)7
below 2.
26.35 yearc
54.7
20.8
58.3
45.4
?
36-45 years
3t,2
37.6
34.s
27.3
4.
46 ycars and abovc
7.8
33.3
4,5
27,3
Tolal
100.0 100.0 100.0 100.0 (N:64) (N:2a) (N:113) (N:ll)
52
B
reaucratic Values in pgvelopment
Tbe largest conccntration of ofrcials engaged in developmental work in both Morena and Patisla belongs lo the age group, 26.35 years and.the proportion excreds 50 per cent' In fact 186-93 p€r cent of devolopment pqsonnel in both the States comc from the age group 26-45 years' The officials of the non'ceve{opment departments of both the States of Madhya Pradesh 'belong to higher age group. In Moreira ancl Punjab seem to
more than one-third officials each of the non-developmenlal d€partment belong to the two highest age-groups. viz,' 36'45 years and 46 years and above. Similarly in Patiala more than one-fourth each of officets of the non'development department of Revenue belong to the two highest age groups' although 45 per cent of such officets wete comparatively young belonging to the age-group of 26-35 years. This showed that tbc r€ctuitment of tcchnical personnel for the development departments !vas, of late, heavy and fast while the recruitment to non'developmental jobs was lagging far behind. In fact the expansion of tbe Revenue departments of the two State governments was less on account of reform in land revenue laws and the Stato assuming directly the responsibility of collecting revenue from ,the ownerr of land. But compared to the expansion of develop' mental activities of the two Stat€s and heavy recruitmerit of development personnel, the non-devclopment dgpartmeot failed to otfer increasing opportunities of ncruitment and promotion fo older staff. This characteriitic was more conspicuous in Madhya Pradesh than in Punjab Rural lUrban Background
.A popular belief prevailing in academic circles is that the "ofrcials who have spent a good part of their lives in rural areas
undcrstand better the problems
of rural
development. We
'wanted to examine how far the rural or irnall town background was responsible for the existencc of such an outlook amongst the officials choson for our study. For this purposc, we put a
question to our cfrcial respondents enquiring about their .maximum place of stay until thoy attended the age of upto 20 ycars. Thc places of their rcsidence were divided into fivc categories, (i) village with 5000 p€oplc or less (rural), (ii) a towl
.
.A Study in Profile and Job
Satisfaction
53
with a population between 5,000 and 10,000 (small town), .{iii) a town with a popularion between 10,000 and 1,00,000 -(big town), (iv) a city with a population betweon 1,00,000 and 10,00,000 (city) and (v) a metropolitan city with more than 10,00,000 people (metropolitan city), Thc replies wcre analysed .and are given below while the main inrbrmation is shown at Tablc 'B'(Appendix I). TABLE 3,3 Distribution of Officials by Classes of Service and Maximum Time Lived Upto 20 Years of Age Percentage Lived. M aximum
Time Upto 20 Years
of
Age
l. Rural
Class
I
Class
II
Class
areas
III
Total
26.6
16.0
l;
32.0
23.r
3.
Small town Big town
57.9
52.3
23.4
35.4
26.1
12.5
18.9
5.
36.8 City Metropolitao City
10.8
5.5
6.6
i00.00 100.00 100.00 (N-re) (N:6s) (N:128)
(N-212)
2.
Total
5.3
More than one-third stated to have spent
100.00
of tho respondents
their
adolescent period
(35 per cent) arc in big towns and a
'littlo less than one.fourth (23 per cent) of the respondents spent their early formativc lives in a small town. In the absence of high schools and technical schools and colleges
in
villages
and small
towns, they had to spend their school/college lives in bigger {owns. The respondents felt that this exposure to urban surroundings in a way broadened their outlook and ultimately .helped thom to carry out their tasks.
The majority of higher civil servants (58 per cent) had exposrrres to big.towns followed by one-third (36 per cent) of officeis rbrought up in an atmosphoro of a city life. Thir pattern was
Bureauc rat ic Va lues in D evelop
54
rn
ent
noticed among Class III officers also. In Class III positions'we find all types of background cbaracteristics, having leaning toivards small towos and villages' In the course .of interviews' it was discovcred that migration to towns of smaller and bigger' sizes was necessary for availing educational facilities in bigh schools and engincering schools/colleges' Any way, the presenl
officials were not completely found cut off from the rural surroundings, An important feature in the social, background variables in the rural/urban cxposures of the ofr'csrs as revealed by Table 3:2, is that in Class III services of the' state governments, ofrcers of botb the developmental and nondovelopmental departments had the background of rural, semirural and urban areas. As is evident fronr. a comparison of corresponding percentages, the Class II officers of the State ser. vice had groat€r exposure to urban areas compared to the Class III service officers. 'I'he Class I officers of course had greater exposure to towns/cities, Examining the details of ruralurban background of the officers interviewed in Morena andr Patiala ws find the following particulars' set
of
TABLE
3.4
Rurat/Urban Background of Officers' Engaged in Devclopmental aod Non-developmental Functions by Districts (Percentage)
R.rallUrban Background.
t. Rurel
)
Patiala
Morena
Develop- Non-deve-
mental
lopmental
t6.7
Dnelop- Non-deve-
mental
areae
29.7
Small town Big town
20.3
2s.0 17.0
20.8
2r.l
4. City
Metropolitan City Total
5.3
45.s
16.7
24.2
45.5
45.8
41.6
9.0
7.8
7.8
100,0
lopmental
100 0
(N:64) (N:24)
100.0 100.0 (N:ll3) (N:Il)
,tl Study in Profile andtob
Satisfaction
We find that a large p€rcentago
of
5j
developmental personnel
tad the background of a big town (25 por cent in Morena and 42 pet cent in Patiala) while the lowest percentage belonged to metropolitan towns. Rural areas, howover, offered the highest percentage of development ofrcials in Morena. Both the States 'do not have a melropolitan city and the officers with the background of a metropolitan city wcre educated outside their 'States. In Patiala officers having rural background and enga'ged in developmental activities wete very few. In Madhya ?radesh and Punjab it was found that the ofrcials engaged in developmental activites came in good numbers from small towns and cities where technical institutions in both the States wero 'locatdd.
of Madhya Pradosh and Punjab, the perof officers engaged in non-developmental work was 46. However, the background of these officials differed in the two states. While in Madhya Pradesh thoy had the In both the states
€entage 'close to
background of big towns, in Punjab the same officErs had the backgound of rural areas and small towns.
Xarental Occupation The parental occupations of the official respondents are given in Table 'C' in Appendix I. The most numerous family occupa-
tions wcre reportcd to be service and agriculture. A large majority of respondents in Class III service of the Government .of Madhya Pradesh came from agricultural households while a sajority. of respondents in Class II service reported their ?arents' occupation as service, Similarly, respondents in Class III of the Government of Punjab came mostly from service
service ,and
agriculture class of people. In fact, Punjab has a large
sectioo oI population ia the military service. Thus service in general was reported to be the main occupation of the parents of the ofrcials in all thc three categories of respondeqts, Moreover children from the families with background of scrvie were more attracted towards the government servic€. Agriculture being the occupation of moro than half of the population of lwo States, the lower cadres of servioe class are manned by
Bureaucratic V alues in Development
56
The distributiorv by our
people mainly ftom this parental occupation.
of the parental occupations
of
respondents, as revealed
enquiry, was as follows:
TABLB 3.5 Parental Occupation by Class of Service (Percentage) Service
Parental
occupation
l
Agriculture
,
I;dustry
Class
I
Class
31;l
15.4
5.0
4.6
II
Class A1
'
?.0
III
Tbtal 33.0 6.1 1]t4
Business
2l.l
13.9
4.
Profersion
21.1
13.9
1.0
10.4
5.
Service
21.1
52.2
30.5
36.3
t
-r.
J
100.0 100.0 100.0 100.0 (N:le) (N:6s) (N:128) (N:212)
Total
The above table reveals that more than one.third (36 por cent) of the official respondents belonged to the families with service occupations. The incumbent were perhaps attracted by sorvice occupations of their fathers. The occupation of service, includes both the civil and military jobs. The respondents in Patiala were widely found to belong to families with military. service. The next highest group of respondents came irom the families having tho agricultural occupations. Over tbe years,
the State of Punjab had made good prog..r, in the field of
agriculture which had become a good commercial occupation of, a large number of families in patiala. In comparison to this, however, in Madhya Pradesh, because of the abience of other occupations, agriculture is
still the mainstay of the economy,
although there is a trend among the people to move away from
the profession of agriculture marnly as a subsistence economy
and to get settlod
io
other sectors of ocoupationS. Thus the
A
Stutly ln Frofrle and lob
Satlsfaction
57
officers in the Class III category of both the States belonged overwhelmingly to the parental occupation of agriculturists and the servico class. Our findings also support the conclusions of other similar studies. For instance in their study, V.A. Pai Panandiker and S.S. Kshirsagarl have found the highest per-
centagos of parental occupations of bureaucrats having government service which varied from 19 to 36 per cent and' agricultural occupations which varied from ll to 5l per ceflt according to the types of reporting agencies. Kuldeep Mathurt found agriculturo as the main parental 'occupation of the Block Developmcnt Officers of Rajasthao and Uttar Pradssh. H.RChaturvedis also found agriculturo to be the parental occupation of l7 and 25 per cent of the development officers working. respectively at the district and block levels of Panchayati Rai administration in Rajasthan, while 38 and 25 per cent of such officers working at the district and block levels respectively had the parental background of government service. V. Subra-
maniao's studya of I.F.S./LA.S./I.P.S,/I.A.A.S. officers foue&' 3J and 14 per cent of such ofrcers having government service and farming occupations respectively. Similarly, in other develoging countries like Bgypt and Pakistan civil servant$belonged mainly to families having such occupations. Morroe Berger's studys in Egypt and Muneer Ahmed's studyo in Pakistan showed that about 40 and 66 per cent respectively of the civil servants in their countries were drawn from families ofthe govcrnment servaots. However, tbe opposite is the case in the U.K. where 10 per cent of the senior civll servants were found to bave parents in the civil services.T If we look into the, break-up of percentagos of the officers of Madhya Pradssh and Punjab (Table 3.6), so far as their parental occupations are concerned, we find agriculture and services (which includo military services in Punjab) contributing about three-fourths of ' the personnel engaged in developmental activities. The maxi-. mum number of officials in Madhya Pradesh and Punjab was from agriculture and services respectively. Regarding the officials of the non-developmental department in the two States, it is obseded that the maximum percentage of such officers came from agricultural families in Madhya
Bureauuatlc Values in Development
5E
TABLE 3.6 Distribution of Parental Occupation of Develoymental and Non-developmental Personnel by Dlstricts. (Percentage)
Parental
Morent
Potiala
Develop- Non- Develop. Develop- Non- Developmental mental
Occupation
mental mental
l. Agriculture
43.8
45.E
24.8
2. Industry
3.1
4.1
8,8
? Business
15.'l
t6.7
11.5
LI.J
6.2
t6.7
8.8
36.4
31,2
t6.7
46.0
9.0
4. Profession Services
Total
100.0
(N:64)
100.0 100.0
27.3
100.0
(N--24) (N-lr3) (N:11)
Pradesh (46 pcr cent) aod io Punjab (36 per cent)
from familics belonging to teaching, legal and medical professions, etc. Very few ofrcers having industry as the father's occupation were attracted towards jobs in both the development and non.developiment offces of tbe two States. Economic Background of the Officials
!t is gcnerally argued that the fepresentation of the various economic classes in the administrative services in accordance with their strength makes bureaucracy representative in character. Tbe bureaucracy in India is not considered to be representative as it is mostly filled by the incumbents belonging to the middle and upper economic classes. This is largely due to the botter educational facilities which the parents of the officials fiom this class could afford and also due to a greater awareness of the employment opportunities on their part. The pre-entry
A
Study tn Profile and Job
Sotisfaction
59
.education and training that they are able to get help them to Eet entry into the services. Thus if one is abte to afford better €ducation in a good university or a good engineering college/ school, one's chances of selection for a good job are bringhtened. 'Every candiCate is not, how-ever, in a position to migrate t6*a -top institution for obtaining higher education. On this account many candidates are victims of unmerited disability, To investigate into the economic class of origin of the respondent ofrcials we canvassed a qucstion to identify the economic class to which 'their parcnts/guardians belonged at the time of the first eDtry
into the scrvioc. The economio classes were divided into five categorics-(i) upper class, i.e., parents/guardiaos having .income of more than Rs. 1500 p.m., (ii) upper middle class, i.e., income between Rs. 751 to Rs. 1500 p.m., (iii) middle class, i.e., income between Rs.25l to Rs. 750 p.m., and (iv) lower
middle class, i.e., income between Rs. l0l to Rs, 250 p.m. and {v) Iower class, i.e ., incoms of Rs. 100 p..m. or less The replies, 'shown in Table D in Appondix I show that more than half the 'oftcers (53 pcr cent) belonged to families having income between Rs. 251 to Rs. ?50 p.m. One.fifth of the officers belooged "€ach to the categories of income ranges Rs.751 to Rs. 1500 p.m. and Rs. 101 to Rs. 250 p.m. Few officers belonged to the upper class and lower class of income categories, The replies of the respondents iirdicate that most of the Class I .officials in Patiala or Morena belonged to the upper middle and middle class families, Most of the officers of Class 1I .eatogories in Patiala und Morena either belonged to the middle 'class or upper class, More than half of the officcrs in Class III in Patiala and a little less than half the number of officers in Class III in Morena came from the middle class families. 'Curiously enough although no officer in class I and class II in Patiala came from the upper class, 10 out of 73 class III off0cers .of Patiala stated that they belonged to the uppcr economic class. .In Morena only one class III officer out of 55 identified himself with the upper cconomic class. The distribution of the officials according to main economic background is given below.
Bureoucratic
60
TABLE
Va
lues in Deve lopntenr
3.7
Econornic Background and Class of Service (Percentage) Income
of
ParentslGuardians Class of thc official at the
I
Class
II
Class
III
Total
tlme of getting the
first job. 8.6
\)
8.5
7.8
20.1
52.6
55.4
5l.6
5.3
6.1
30.4
20.8:
1.6
0.9
t00.0
100.0
More than Rs. 1500 p.m. a
Between
42,1
3
Rs. 751-1500 p.m.
3.
Between
e
Rs. 251-?50 p.m. 4.
Between Rs. 101-250 p.m.
Rs. 100 and below
Total
100.0
100.0
Thus it can be secn that all the catesories of the services. derived their staff mostly from the mid-rlle class (percentage. varying between 52 to 55). Tho upper middle class provided most of the Class I and Class II officers and the Class III officers largely came from the lower middle olass. The details of break-up of the economic class background ofthe offcials enagaged in the developmental and non.developmental acrivities can be seen in Table 3.8 on p. 61,
Most of the ofrcers, engaged both in the development and, nod-developmental departments came from the middle clasc. household income group of Rs.25l-750 p.m. with the exceprion of the officers of the non-developmental department in punjab,.
6t
A Study ln Profile and Job Satisfaction TABLE
3.8
Economic Background of Officers by Types Work and Districts
of
(Percentage)
Patialo
Morena
Parents' lGuardian's
Income at the
time of first appointment
DeveloP'
mental
Au.Non-deve'
lopmental
Deve-
lop-
Non-deve
lopmmtal
mental
t.
Morc than Rs. 1500 p.m.
4.1
Between
Rs.75l-150O
8.8
26.9
8.3
18.6
50.0
41.8
57.4
28.1
37.5
15.2
54.5
p.m. B€tween
Rs.25l-750 p.m. tt.
.4
5.5
Between
Rs. 101-250
p.m. 5.
Rs. 100 and below
Total
8.3
100.0 100.0 10u.0 (N:24) (N:113) (N:ll)
100.0
(N:64)
55 per cont of whom belonged to the higher household income range of Rs.75l and 1500 p.m; This was not surprising begause Punjab had been having the highest per capita income agriculture and industry since and enjoying prosperity
in
long. In Morena and Patiala the next
highest percentage of-
the officers engaged in developmental activities belonged to the lower middle income group of Rs. l0l -250 p.m. and the higher middlo income range of Rs.751-1500. In Moreqa 38 per oent of Revenue Dcpartment Officers and ia
62
Bureauuatic Values in Development
Patiala 46 per cent of such officers belonged to the parental 'income groups of Rs. l0l to Rs. 250, and Rs. 250 to Rs. ?50 .and Rs. 251 to Rs. 750 respectively.
Marlnl
status and Dependents
As shown in Table 3.9 below, only 6 respondents in Patiala and ll respondents in Morena were found to b€ young and unmarried out of 124 respondents in Patiala and 88 respondonts in Morena, respectively.
TABLE 3.9 Marital Status of Respondents
Patiala Morena
Mafital Status
1. 2, 3.'
Unmarried Married Widowed/Divorced
Total
Total
6
1l
17
(4.9)
(r2.5)
(8.0)
113
7l
184
(91.1)
(80.7)
(86.8)
5
6
7l
(4.0)
(6.8)
(s.2)
t24 (t00.0)
88
(100.0)
212
(r00.0)
(N,8. Figures in brackets are percentages) Recruits
in Morena
were found to be comparatively young and
'unmarried (compared to Patiala district) while the widowed/ 'divorced respondents in the two areas were more or tess
'similar. About
87 per cent of respondents were married.
The social obligations of unmarried and widowedidivorced respondents were not materially different from married respon-
.dents. While the former had to look after parents, brothers and sisters, as is normally expected in the Indian society, the widowcd and divorced respondents had many children to 6upport. Thc number and percentage of dependents that the respondents had to look after ie shown in tablc 3.10 on page 63.
A Shdy in Prcfi,le and Job Satlsfaction
TABLE
63
3.IO
Number of Denendents of Officials in the Districts of Patiala and Morena Number of dependents
Morena
1. Nil
2, l-2
petsons
3-f 4.
5.
5-6
pcrsofis - 'Persons
2
I
J
(1.6)
(t.l)
0.4)
23 (r 8.5)
t4
37
(1s.9)
(17.4)
6l
36
(49.2t
(40.e)
?l
(N.8.
26
(25.0)
(29.6)
(s.7)
(r2.5)
1l
More than 6 oersons
Total
Totnl
97
(4s.8) 57
(?6.9)
(
18
8.5)
124
88
212
(100.0)
(100.0)
(100.0)
Figures in brackets are percentages)
dependency ratio is observed in thc dependcnt 3-4 persons (46 per cent) followed by the next higher dependent group of 5-6 persons (2? per cont) and tho lower, group of 1-2 persons (17 per cent); 8.5 per cent of the official respondents said that they had more than 6 perons to support. It seems that the government servants both in Patiala and Morena arc normally aware of family planning programmes of the government and small family norms are vety muoh in evi. dence among the officials.
The highost group of
Levels
of Education of Various Classcs of Offcers
is highly correlatod with the present study related mostly to (with class of sorvicc. But lhe th€ exception of a fow r€venue offflcers having been educated in Normally tho level of education
'64
B
reaucrctlc Values in D*elopment
'the generalist tradition) the civil engineers of the Irrigation 'Departments and electrical engineers of the State Elcctricity Boards having professional qualifications which they usually acquired after passing the Highcr Secondary or Intermediate examination, The percentage of respondents in vario $ ',categories of educational levcl is shown below. .
TABLE
3.1I
Level of Education by Class of Service (Percentage)
Levels of Educatton I
.
.2. .3.
Class
I
Matriculation Bachelor's Degree Post-graduate
Class of Service Class Class
II
III
Total
6.2
tt.7
9.0
6.0
4.6
1t.7
9.0
21.0
15.4
9.5
t2.2
72.9
73.8
67.1
69.8
-4. Technical/Professional
*,
qualifications after high school or higbar secondary education,
Total
100.0
100.0
!00.0
100.0
(N:te) (N:165) (N- r28) (N:212) percentage of respondent offcers in Class I, Class II and Services witb technical/professional qualifi iations after high school or higher secondary varied between 70to 74 per .cent. These related to the engineer respondents. Tbe next important level of education that is revealed in the sample is the 'post-graduate degree usually acquired by offigers of th.e Revenue iDepartments '
__The
Class
III
ofthe two State Governments,
fh"
p.r..niug,
'varied between l0 and 2l among the tbree classes ol services. Tbe smaller percentage (10 per cent) of the post-graduate
levcl of education in the case of Class III oficers oo the- *hol, ,r, *oompensatod by the higher percentage (12 per cent) of bachelor
A Study in Profile atd Job Satlsfaction
65
degree level. Many Tehsildars and Naib Tehsildars with gradu'
ate and matriculation levels of education were working io II and Class III Services' Tho direct reoruits in the State Civil Service working for the Revenue Department were
'Class
mostly post-graduates. Executive engineers in the State Electribity Boards or thc Irrigation Departments, who are in Class I Service, are promo' tees with expcrience and seniority from direct recruits as assistant engineers in Class II Service. The scales of pay prescribed by the Punjab and Madhya Pradesh Governments exclusive ,{of allowances) are moro or less similarDesignarion
of
posts
Puniab
Madhya Pradesh
Engineers. Rs.450'900 Rs. 425'850 Engineers Rs,40G650 Rs. 350-650
Assistant
Junior
'0verseers/Lino SuPerin'
'0endents/Sub-engineers
Rs,200'450
Rs.280-480
The State Electricity Boards, being autonomous, scales of ttheir oficers aro marginally higher and the officers have com,paratively more allowances. There are two engineering collegos in thc State of Punjab at {.udhiana and.Patiala and one engineering colloge in the Union Territory of Chandigarh awarding engineering degrees and a 'number of enginoering schoolslpolytechnics producing diploma'holders in engineering. Tl?e graduates ofthese institutions form {he bulk of the candidates for rccruitment to the various posts in Ponjab State Etoctricity Board. The diploma-holders, are usually tho Class III services of thc State Government' 'inducted for Linesman
Even diploma-holding ongineers are recruited as lClass IV) who are eventually promoted on th€ basis ofseniority .as Line Superintendents (Ciass III). Thorc has boen lot of resentment overitagnation, porticularly in thc Class III and Class .lV positions. In order to facilitate the scope for promotion.to .Class Il positions of ongineers, the Govornment of Punjab has
66
Bureaucratic Values in Development
fixed the quota of promoticns and has also created posts of. junior engincers (Rs. {00.650) in Class II service. The Govcrnment of Madhya pradcsh has also created posts of Junior Engineers (class II) in tbe scalc of Rs,350-650 to givo relief to the sub.engineers/ovcrsecrs who have becn working for long time in their own scales of pay. The Class II engineor officers are rrcruited as follows (i) 75 por cent as direct recruitment of-graduate cngineers, (ii) 20 pei cent from promotion of. sub.eagineers/overseers and (iii) 5 per cent as promotion of draftsmon.
In the Dcpartments of Revenue of the two State Govcrnments recruitmont is done in senior and junior scales of the State Civil Servicc (Class II). - Junior-scale civil servants pro*ot.d
*.
with soniority and good record of."rui." to-r.nio, Jcales and. senior scale officcrs are promotcd to the Indian Administrative, Service rrndor the assigned quota, promotees from various. Class III serviccs of the State Govcrnment$ aro taken in the_ State Civjl Service Claes II with seniority and meriJ under tho assigtred quota system. The ofrcem oi th. R.uroue Departments that we interviewed wcre usually goneralists and did not. have any particular specialist or professioial qualifications. The collection of electricity and irrigatiotr charges are made. by the rovonue staf of these- dopartmJnts, Therl was a pro* posal somc time back to draft a few
Departmcnt
to the
Departmente
exercising magist€rial powers
of
ofrc"r,
oiin.
RevenuE.
tnigation: aiJpower for
in order to .iAu6 thu a".ufnotn_
tion of the eloctriciry and irrigation duos in M;;y; pradesh. But thc ofrcers in the Revenue Department Oia noi-slow -to'them any ioterest as thc extra allowauce thai was uAmissiita for this p-urposc was only to the tune of Rs, 100 or Rs. tSO p.-.. and thc scheme fell through. dotails of eduoational levels of the oftcors cao be see& - Tbothe from following table 3,12 on page 67. ------ -'"
4
Study ln Profile ond
lob Statisfaction
67
TABLE 3.12 Distribution of officers in tho Developmental and Non.devolopmental Departments by Districts and Levels of Education (Percentage)
Morena Letels
-Devehp-lop:-fr ;n'Aev4op-
of
mental
education
l.
mental
Matriculatiotr. Baoholor's
'
33.4
Patiala Develop- Non-deve-
mental
lopmental
l 1.58
54.6
9,7
9.0
Degree. J.
Postgraduate
66.6
4. Technical/
100.0
36.4 78.8
Professional
Total
100.0
(N:6a) '
100.0
(N=24)
100.0
100.0
(N:113) (N,,-ll)
It will be seen that all the ofrcers posted in the Morena dig: trict for developmental work were stated to have teohnica[ professional qualifications after the high school/higher secondary education while the corresponding pe{cpntage of ofrcers engaged in the developmental activities in Patiala was 79. The ofrcers of the Revenue department in Morena had either a Bachelor's degree or a Post.graduate degree, But most of tbe officers of the non-development departqrent . in Patiala had cducational
qualifications either graduate.
(Ipwartt Mobility
qf
of
the lpvels of matriculation or po$t?
the Officials
Bur eaucr at i c Yalues in
68
index
D
evelo pmen
t
for studying their job satisfaction. It will be noticed
from Table 3.13 below that 55 per cent of the officers surveyed did not have even one promotion and most of them were young recruits. Only 33% of officers had one promotion at the time of the survey. Th.e details are given in Table F in Appendix I,
TABLE
3.13
Upward Mobility of the Ofrcials (Percentage)
Promotionsreceived ckss I l.
Nil
2. 3. 4.
ffi
Officers
{?
49.2
65.6
55.2
One
68.3
36.9
25.8
33.0
Two
2r.l
10.8
8.6
r0.4
5.3
?1
Three
Total
100.0
(N:19)
100 0
(N:65)
t.4
100.0
100.0
(N:128) (N:212)
Only onc young Indian Administrative Service Ofrcer wbo lvas on probation was found to be working in a Madhya Pradesh block for the Revenue Department. It was in fact his first training in revenue administration. About two-thirds of Class III officers (66 per c€nt) did not have a single promotion. Of course, a large majority of them were direct ricruits to Class III and were comparatively young in age. A quartor {26 per cent) of Class III ofrcers came to this Class as a result of promotion. Thus it can be said that thefe is not enough
,causc of demoraiisation amoogst the officials which would effect devclopmcntal programmes in the two selected districts. Most of the Class I officers (68 pcr cont) came to this class as a result of one promolion while 2l per cent came as a result of two promotions. Among class II officers, 49 per ccnt and 32 per cent .came to thig class as a result of one and two promotions respectivcly. The casc of Claes III ofrcors, aE statcd carlior, also did not pr€scnt I gloomy picture, as will be seen from'the above
A Study in Profle and fob
Statisfaetion
69
table. The team of ofrcers belonging to all ther three classes rrere on tbe whole, found to be enthusiastic about the duties .assigned to them.. ThiS donclusion is based on our field study
.and observatioo, In certain cases an individual ofrcial had, trowever, remained too long in his cadre for the next promotion, but such cases are not exceptidnal and do not contradict our
findings. The stagnation which was made out to us during
.the course of discussions and interviens not borne out by .facts and statistics. The details of_ promotions
is
i.c.,
in
upward
Morena and patiala working in the .development and non.development department will be seen from 'the following table. mobility of the ofrcers
TABLE
3.14
Upward Mobility of the Officials by Departmeut and Districts (Percentage) Promotlons received
Morena
DevAop-
m;
mental
l.
Nit
2. One 3. Two
mental
n;;A*lopmental
68.7
29.2
56.6
18.2
25.0
33.3
38.0
27,3
6.3
29.2
4.5
54.5
.4. Three Total
mental
Patiala
Deveioy
8.3 100.0
(N:64)
100.0
(N:24)
100.0
100.0
(N:113) (N:11)
Most ofthe interviewed o$cers of the development depart'ments of Madhya Pradesh and Puojab were comparatively -young and did not receivc any promotion till the time of the .survey. Thc perccntages wefe 69 and 57 in the two States. Theirs w*s the first app.iatmctrt. Twenty-five pcr cent and 38 pcr ccnt of the officers ia thc ttcvelopment departmcnts of 'Madhya Pradcsh aod Patiala rcceived one promotion. This rindioercd 6omc alvancement in thcir gflcial positions on tho tpart of a good number of offic,crs. Four and five ofroers rcs-
.tO
Bureauqatic Values in Development
the governments of Madhya Pradesh and Punjab were beneficiaries of two promotiotrs as well.In the non-develop mental department of Revenue of both the State Govcrnmentg' the officers were comparatively aged, and were bentificiaries of
pectively
of
one or two promotions. However, 7 and 2 ofrceIs of the Revenue departments of Madhya Pradesh and Punjab respectively
were working in their initial scale of appointment. Two officers of the Revenue Department of' M"anya Pradesh even stated to have received three promotions and more than half of such officers in Patiala received two
who were very young
promotions.
.:
In-servlce Tralning The Civil Engineers of the Irrigation Departments and Electrical Engineers of State Electricity Boards in Class II service have to ooi"rgo training after they .are recruited. But no training is proviJed for the Executive Engneers in Class I after their .
of
subingiaeets/ovetseerslline supervisors/line superintendents in Class IIi servico have. to,undergo Jhree .months'---training. after - their
progotioo " from Class lI- posts. The direct'-recruits
appointment. But no trainidg is given 'io the promotees in Class- III from the posts ofi Jinesmen. ' The officers of the Revenue Departments in Class I and Class II services are kept on probation for two years aftor recruitment. This period is taken for rraining the officers in revenus laws, rules, procedures, etc. .Tehsildars apd Naib Tehsildars are in subirrdinatg executiie service .who also bebome familiar with rules and iegulalions during their career and 50% of them q9 eveqtulllv plgmoted to the State junior civil services. coufso Thus,.
A
Study ln Profile and
lob
Satisfactlon
€ompetence of those qualified officers
7l'
for development adminis*
tfation. 'The Canal Departmonts have their own Patwaris for looking 'to irrigation facilities and ccllecting revenues. A Ziladar (Canal Patwari) in Punjab is of the ranlc of a Deputy Collector witb powers of prosecution and stoppage of irrigation in tbe follow' ing scason in case of the non'payment of caoal ducs for the previous season, The State Electricity Board collects ellectricity dues from private parties through their own collecting agcncies, In Punjab, overdues are not a big problem. But in Madhya Pradcsh, prob;cutions are yet to be made for non-pay' ment of canal and irrigation dues, although irdgation and power suppties are being made in Morena during the last 7/8 years. {t can be said that the stoppage'of power or irriga. tion faoilities for non'payment of dues is no doubt detrimental to the development efforts in the region. But this is one anea where rules have to be followod in a more stringent manner.
Professional Intercst wero asked a question, whether in the professional duties thev could find tioc to read midst of their journats professional or were they mernbers of a profe' tome
The respondent officials
ssional society. 'fhe answer was invariably 'No.' Koeping in touch with new dcvelopments through professional journale or membership of a professional body'could give an indication about their professional itterest and furtherance of profesfional knowledge. Th€ nbgative r€sponse in this rcspect indicateg an apathetio attitudo on the part of the officials to develop thcir capacitios further. This is probably beeause of the lack of any motivation to sustain their profossional interests. In fact, .rnost of tbe staff seemed to be ignorant of the name of any professional journal or association in their own fields .of activities. Job Satisfctction of Offictals
There has lately been considerable interest
in the efforts to
'72
Bureaucratic Valu'es in Development
indentify factors that directly or indirectly shape the behavrour of civil servants in a govcrnmental organisation. One set of such factors that had interest€d tho researchers relates to the family origin, background, sttd educational attainments of thE civil servants *hich greatly influence their soiialisation process and which have been discussed so far. The behaviour of the officials is found to be further influenced by the kind of satisfaction they derive on the job and whether or not they have a feelingl that their qualifications and training are being properly utilizcd" In other words, the officials'own perception about their capabi lities to perform the assigncd tasks has a considerable bearing on their behavioural pattern. Here we propose to analyse the officials' perceptioD about thcir job satisfaction and their capabilities to cope up with the environmental situations.
and is comof various component elements. The interest of the incumbent in the assigned job brings in him a feeling of initiative and responsibility. Even though an incumbent may be an insignificant part of the organisation he can make significant contribution if he finds interest in his assigned work. The efficient performance of the officials depends on the intere$t Job satisfaction of the ofrcials has many facets
posed
that their jobs create for tlem.
Another factor that is important is the job requirements and the related qualifications that lhe incumbent posscss€s for discharging efrciently his official responsibilities. The full utilisation of the incumbent's qualifications and capabilities not only bring greater productivity but also make him more wedded to his work. kiconsistency in these may bring a senso of helplessness and frustration amongst the ofrciirls, In order to determine purpose of evaluating the officials' feeling of job satisfaction we put a set of four questions to our respondents -(i) is the work you ar€ doing interesting; (ii) when you do good work, is it appreciated by your superior ofrcers (appreciation by senior ofrcers boosts up the mcrale and spirit of thc incumbent); (iii) how good are your chances of promotion in your department; and (iv) a negatively framed question-would you
A Study in Profile like
to
aqd
change over
fob Satisfaction
73
to atrother officeidepartment, if
given a
chanco to do tbc same work.
The replies of the first two questions were tabulated,
and
are
presented on page 74.
abofi 2l-27 p€r cent of the officers in the dislricts of Patiala and Morena found the work interesting. The pattern of job satisfaction is more or less similar in the two States and in the three departments. Broadly spcaking a quarter o[ the respondent officcrs had found their work interesting. The officials in the higher scales ofthe departmetrts On the whole
engaged in developmental tasks usually expressed their satisfaction over the work they were performing. In th€ Departmentg of Revenue of both the State Goveroments some officors in tho highor s4lary scales, who were on deputation from their original postings r€port€d tbat they had to 8uffcr in. their carcer ultimately on account of their deputation as on completion of their assignment they had to revert to their origioal posts as they were not allowed to have benefits on both the counts.. They could not be promoted to higher class posts in thu Revenue Service from their deputation posts as a result of which they had somc setbacks. This dwarfed their initiativc and impeded their progress in the departments. 8o far os departmonts engaged in developmental activities arc concerned, the officcrs were mostly technical and they had a chance to rise to highcr posts through seniority and chan records. There was thus much loss frustration among those ofrcers. Tbe progress of development in the State was perhaps rapid because of the .intergst of these
group of officers in their work.
Between 37 -47 per cent of ofrcers, however, thought that they found fheir work interesting only sometimes. And about onethird of tho ofrcers, on an average, fcund thcir work seldom. interesting. The absence of ample scope of promotions, small incremerts, particularly in the lower scales of pay, abs€nce of cheap housing facilities, etc. addcd to the lack of interest by the eoployees in thcir assigned work. This is true of ofrcers of all the tbree departments of the two State Governm€nts.
.
74
Bureaucratic Values in Development
a)
g.S*tl € . o !t) !/?6
In E^o
t9q)
lq
,=
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ra)
a.l
a.l
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ad
Study in Prafile
75
Job Sattuf.tction
The appreciation by the senior officers of tbe work done by .junior officers also showed mot€ or less the same trend. A little lhighei percentage of officers, varying from 27 to 35 reported thet their work was well appreciated by the senior officers. This is in Tespect of the oftwrs in all the three departments of the two 'State Goveroments. The percentage was somewhat lower in nen-developmental department of Revenue compared especially 'to those of developmental departmont of Irrigation in both the
States. The percentags
of ofrcers
whose work was only
sornctimss appreeiated by their senior ofrcers was found to be .somewhat higher in Punjab than in Madhya Pradcsh. The lack
of appreciation of the juniors' work by the sniors dwarfed, in turn, the initiative and interest of the officers in the assigned work. The percentage of officers who felt that their work was not appreciated by the senior officers rangod from 15 to 24 only. One possible explanation for the nbn'appreciation of the
irrork done by thc officials in respect of both development and non-tlevclopmcnt progtammes could be that thc respondents' standards ofl self'waluation is based very much on their own subjective criterion rather than on an objective one.
'
Applying the
'
,('
test
on whether
the
work performcd
wa$
{ntcresting, the valucs for Patiala and Momna wore' 0.93 and 2.t8 (d. f.+4) respectively, which arc vcry insignificant at 5 per ocnt level of probability. It means that the perception of ,the officials in ths. three departments of the two State Goverrments.aboirt interest in their work was not correlated end had no similarity.
The I'z values of work-apprecialion by senior officers of Patiala. and Morena werc 3.96 and I .17 respectively for 4 .degrees of freedom and these are again statistically insignificant. Tbe appreciation of the work of the junior' officers of botb the Stato Goveruments was, tirerefore, not correlated' Th€ appleciation of work was independent of dePartments in which tho olficials worked.
'16
Bureaucratie Values in Develonment
Chances of Promotion
Promotion
'rd
in
is an imoortant
milestone in the not only brings in him self.confidence to cope with new environn,ents and respon,ibilities butalso the necessary job satisfaction. In the contcxt of develop-
the service
career of a civil servaut.
lt
mental activities tinely prorrotions in the career of a developmert administrator bring in him new confidence in the achievemont of the prescribed goals. Two questions-ti) How good, wcre the chances of pro'rotion in the depaftmcnt; atrd (ii) if given a chance to do the same work iq another olfice/department, would you like to switch over (a negatively framed, qucstion) were put to the respondent officials. The replies were tabulated and summarised iu Tabte 3.16 on pagc ??.
The lowest perccntage of officers viz l8 and l7 respectively who reportcd good chances of promotion in their service careen bolonged to the non-development departments of the Govern* ments of Punjab and Madhya Pradesh. Similar perceotages in the dcvelopmeni departments of the two State Governments varied between 2l and 28 which were also verv small. Fair chances of promotions were reported by 36-47 per cent offioer$ and poor cbances were reported by 3l-46 per c.cnt officers. IL can well be imaginod that if more than oao-third of tho officials on the whole flnd bleak chances of promotion in their departmeots and if similar number of officers find their work
dull and uninteresting, a good output of work cannot be exp€cted from these large number of officers especially in regard to, developmental activities. One explanation of low chances of promotion can be that at thc time of initial recruitment, those who are at the top of the seniority list tako less time for a promotion but officers very much below thc list of seniority tako much. longer time although inirially all of them might have been, recruited in the same batch. It croates frustration. However, there is no alternative in the present situatlon as thc promotional opportunities are not so froquent. Thus because of thc dpmoralisation process that sets in, the quality of the performance of the oficers ultimately suffers,
.
A Study ln Profile and tob Satisfaition
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-78
Bureaucratic Vaiues
in
Development
The 12 values for the chances of promotion were calculated ''and wcre found to be 3.?4 for 4 dcgress of freedorh for both ?atiala and Morena, which is very insignificant. Replies on the -chaoc€s of promotion did not show wide diversiiy iq all the 'three departments of the two State Governments, fh"t war, 'no significant variation/difference in thc chances of promotion . of officers of the developmental and non-developmenial idepart, ments of the two State Gove rnme nts, Whatever good, fair or poor chanccs of promotion exist, they hold good ior all sections of officers and are independent of the departments in wbich .tbey work.
The X,2 values for offering to switch over to other dcpartments 'in the Government of Punjab and Madhya pradesh were found
to
be 5.46 and 4.24 respectively for 4 degress of:frcedom, which '.were statistically insignificant. Thus the perceptions of the -ofrcers of both the development and non-development; depart-
ments about the avenues of promotions seed to suggest that .tbey do not think that any other departments hold out better
"prospects of promotion, This is also reinforce d bv ithe fact 'that only a smaller percentage of officers of the Revenue.Departments of the two State GoVernmonts showed their willinlness to 'switch over to another department. i
However, on thc other hand, the percentage of officers in the '.development departments who were willing to switch ovAr to an
'
.olternative oftce/department for doing similar duties wcre 'reporred to vary between 38 and 53, Thus dbout half of the 'officers were found to be willing to chauge ovor, It, therefore, seemed that the ofrc.ers ongaged in developmentql tasks were not very happy with their work, Development admi_ ,xistration needs very highly devoted civil servants with a zeal for "quick development wbich seemed to be lacking in ther present 'eet of officials. The satisfaction of the officials deriyed fronr their rvork is a very important index of their commitment to their organisational goals and achievements, A higher job ,satisfaqtion helps in building high morale leading to better performanco dnd higber productivity. Only 60-70 per cent of 4he officers bf the three departmints of.ihe two State govern_
A
.7v
Study in Profile and Job Satisfactian
ments thought that their work was always interestiog or occa-sionally interesting while the perceptions of the remaining officersreflected that the prevailing mood in their work environment: was unsatisfactory. These perceptions prevailed even when a greater appreoiation of work of the junior officers by their senior offioers (80 per cent of the ofrcers being either always or occasionally appreciated) ought to have given them better job' satisfaction. This natural.ly meant that 30'40 per cent of the, 'officers whether engaged in developmental and or non'develop'' mental tasks, were feeling . frustrated and losing confidence in, their capabilities to cope up withr the .assigned responsibilities' A feeling of being an insignificant member in a big governmental' apparatup';and th-e. so-called u-r1pf-estigious nature of the officials' 'job were stated to be responsible forrthe kind of dis's4tisfaction .that has Qropt in the officials' attitudes towards their organisa-' oational goelqri .Furtter, on. sulsequent questioning the same percentage ofli,pfi,icors of the two development,departmeots bf .,both tha Stateq r,eportod poor clances of promotipn in their owo departments.r d,fegling of stagnatioo and the absenoe of further' scope of promolion in near future made them lose their initiative and interest in their present work. They were even eager to move' to other departmonts if theyr were.'given the chance to do so. The officers'of the. 4qn;developm€nt departorcnt of the two' .State governmen-tsi on lhe other hand, who ssffer€d set' .backs in deputal.ipn prorlotions earlier, did not show their willingness to aovg to other departorents ' even though their ,chances of promotion in their Qwn department were limitod. What should then be done to boost the morale of the3e . o$icers ? Would frequent merit'based promotions enhance -their ctranoes of .fulfilment of the organisational goals ? The. . problem is not only thq ,availability of opportunities but also thc way the morit cdterion is to be assessed' A sound pro' motional policy linked with greater productivrty/performance ,in the developrnental projects may help in obtaining ,some inprove ment in the existing situation. .
.
'80
Bureaacratlc Values
Utllisatlon
of
. Officials:
in
Development
Education, Training and Expeilence of the
The problem of tho preparedness of the officials for developmental tasks is intimately connected with their educational , achievements, training and experience. This aspect was also ' examined for offiers of both the development d€partments and " compared to those of the non-developmental departments in 'the two States, For this purpose a question was canvassed 'whether they thought that in their present post their education, training and experience were fully or moderately utilised or " no{ utilised at all. We have already noted that so far ar the two developrnental departmonts w€fc concerncd thc officials wcre 'technically qualified, and trained after recruitment and had gained considerablc experience during the course ofthe day_to_ " day work, The officials betonging to the non.developrnental - department aho had the requisite background of good general . educatiron, training and work cxperience ovct a number of . years, The rcplies are sumuarised in Table 3.17 on p. gl as "
''bclow.
o
"
J
There is hardly any difference in the replies ofthe ofrcers bclonging to tho throe departrnents of tbe two State Govern-
ments. Half of
the
officers were of the view that their and experience were fully utilised in the work that they did. The identiat type of replies are also
" education, training
'.reflected
in
the moderate utilisation
of
their peisonal achieve_
ments. Onc+hirds of the officers were of the view that their background achievements werc only moderatcly utilised. The r remaining ono-sixth of the officcrs were of the view that there i attainments and talents wcre trot utilised properly. There was , hardly any sigoificant diflerenco in the of replies fattirn r received from the three sets of officcrs of the two State Governments. If thc perception, as reported by 15-20 per cent - omc€rs, that their background eduoation and experience werc being utilised properly is accepted, it may suggest that _not rthoir work cnvironmeot was not conducive to enable them rto put their best in tbcir jobs.
sl
z4 Study in Profile and Job Satisfaction
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82
Bureaucratic Values in Development
From our analysis we.find that half of the number ofi officials seemed to be highty satisfied that their qualifications, training and experience were being fully utilised in thoir present
positions. Another one-thirds of the officers said that their education, training and experience were moderatcly utilised leaving only one'sixth of the respond€nts to say that their capabilities were not being fully utilised. If this finding is considored with the earlier finding that about a third of. respondent officials were willing to switch over to other office/ department and that about another half of officials misht also like to chango over, therc seems to be sometbing wrJng in the working environmentfconditions of the offioials that needs to be examined in depth. Further it also suggests that seemingly high level of the job: Satisfaction of officials conseals their considerable dissatisfaction with thb organisations they, work for. They feel that their departments have doue precious little for them to iecognise aod appreciatc tbeir potentialities.
As far as their perceptions of full, moderate and poor utilisation of ,.their 'edudation, training and cxpdrience in the jobs are. concerned the X2 values for 4 degrees of freedom for officers of the Punjab and Madhya Pradesh Clovernments were as low and insignificant as. l.7l and 2,59 respectively. The educational qualifications, training prescribed and experience undergone for various. types of devclopmental and non.developmental positions. thus seem to have beeg prescribed quite in conformity with the job requirements, of the pbsition in the two State Governments. Only 15-20 per cent of the officers of both the development and non-developmeot depaltrlents of the two. State governmohts dr:d not feel that their sducatioh, training. and work were trot utilised properly.
Capabilities to cope up with Envlronment
A
queslion about ths capabilities of officials to cope up with environmeqt situation was canvassed to respondenis. perceptions wcrc reeo.f.nj arc summarised in Tabte 3,lg on p. 83" "i_O
I
Stutty
83
in Pro,file and.Iob Satisfoatlon
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84
Bureaucrdtic Values. in Development
About half of the interviewed officials in the three depar! ments of the two State Governments were of the opinion that their capabilities were quite high to cope up with the environ-
mental situation. The percentage of officers in the State Electficity Boards was somewhat higher in this respect as compared to the percentages of officers in the Revenue departments while the percentage of the officials from tbe Depaitmen( of Irrigation was slightly higher than the Department of Revenue. Similarly, about a third of officers in all the departments of the two Governments were of the opinion that their capabilities enabled them fairly to push through the dovelopmental and noo-developmental activities with whicb they were concerned. Thus. five.sixths of the officers could be said 1o be fully and fairly confident about their perception of their own capabilities. On the whole it could bo said that the officers of both the developmental and non-developmental departm€nts of the two State Governments haC adequate self.gonfidcnce to cope up with new situations. That is probably the r€ason why.the role performance of the majority of officers of the two State Governments had been satisfactory which is borne
out by the
achievements
in the power and irrigation sectors. It has been verv encouraging in both the State Governments. This has been also possible by dedicated assistance and cooperation simultaneously rendered by the team of officers of the non_developmontal Department of Revenue to the developmental activities of the other Departments in the two States, Thus the bureaucratic response to development has been somewhat satisfactory in both the State Governments..
The I'?values of self confidence ofthe officers whoso capa_ bilities suited their work environment and enabled them to cope up with the situation for the officcrs of the Governments of Punjab and Madhya Pradesh wero 7.59 and 3,3i respectively for 4 degtecs of freedom. These are statistically insignificant even at 5 per cent level of probability. The ofrcers of the Revenue departments of the two State Governments, drawD somo times from different departments wcre found to have somewhat larger mean-square deviations of their perceptions about capabilities to cope up with environmental situations.
A Study in Profile and Job Sati{action
85
Nevortheless they were not of much consequen@. The difference in personal capabilities being very small, it was noticed that all tho officers of the three departments of the two State Governments, on the wholc, bad the required skill and capabilitics to cope up with the new situations that arose during the course of developmental and non-developmental work and their confidence in their capabilities enabled the State Govcrnments to utilise their talents somewhar adequately,
SUMMARY The foregoing analysis of the personal characteristics of the 124 o6cials of the Government of Punjab in Patiala district and the 88 officials of Madhya Pradesh in Morena distriot, belonging to lrigation Dcpartmcnt, State Electlicity Board and Revenue Department studisd iu tbe survey leads to the following profilc of developmental and non-developmental personnel. The developmental officials in Patiala and Morcna working in
ll
salvices, not to speak of Class III employees, Class I and Class are comparatively young in age. More than half and about one-third of them belonged to the age-groups, 26-35 years and 36-45 yaars'reap€ctively,
Regarding urban-rural background of tbe ofrcers surveycd
it
was found that the officers with the big town/urban background having spent upto the first 20 years of their lines in a town with population between 10,000 and 1,00,000 were predominantly occupying Classs I and Class II posts in Patiala and Morena. About one-third and one-fourth of such officials in Class III service were found to work for the developmental and !ondevelopmental departments of Punjab and Madhya Pradesh Governments respectively. The Class III servicds, however, drew recruits from the villages, big towns and cities in considerable numbers, So far as parentat occupations are concerned, persons whose parcots wore eithsr in agriculture or in servicc in general domi nated the burpaucratic universc of the officials studied. Persors
86
Ettrea*crat
ic
Values in Diveloomenl
with parental occupation of service formed more tban half (52 per cent) of the people serving in Class II service of the State Governments of Punjab and Madhya Pradesh while 42 p€r cent of Class III service personnel came frcrn the agriculturist families. Even 32 per cent of Class I oficers and 3l per cent of Class III service ofrccrs carne frorn tbmilies with 'seivice' 'occupations. The economic class to which the surveyed officers belonged is of Rs. 251 to Rs. 750 p.m. The percentages of Class I, Class II and Class III ofrcers with fathers/ guardians belonging to the above income iange varied betw€en 52 and 55. About 42 per cent and 39 per cent of the Class I and Class I[ ofrcers respectively, in addition, had their parents/ guardians income between Rs. 751 to Rs. 1500 p.m. The second highest income group that the parents/guardian s of Class III officers belonged to was Rs. 101 to Rs. 250 p,m.
mainly the income group
Eiamining the marital status, we find that about 9l per cent of the ofrcers of Patiala and 8l per cent of the officers of Morena district were married and a little bigher pcrcentage of ofrcers, namely 13 pcr cent, were unmarried in Morcna com-
pared to 7 per cent in Patiala. Regarding their dependency ratio, 49 per cent of the officers in Patiala and 4l per cent of the officers in Morena had to support 3-4 persons ; 25 per cent in Patiala and 30 per cent omcers in Morena had to maintain 5-6 persons, About 19 per cent and 16 per cent of officers had to maintain only 1-2 persons in Patiala and Morena respectively. The Government servants under study were normally aware of the small family nornrs,
As tbe study mainly related to enginee rs/sub-engineers along with a few officers of the Revenue department, the most predo. minent educational level was that of technical/professional qualifications after high school or higher secondary levels. The percentege varied between 6'1 and 74 among the three classcs
of
officers. 'lhe post-graduate and the graduate levels of education were, however, iroticed most in case of the Revenue Department oflcers.
A
Study
in Profile and Job
Satisfaction
8?
was r€ported The chief eriterion for promotion of the oflcials (r'rhich was Merit service' of to be seniority witb good record be consito came also good work Oitn.uft to define), hard and for eligibh him made Jur"a oteo the scniority of an incumbent promotion.
of the One important finding of the study is that 68 per cent promotion' officers in Class I service were beneficiaries of orre per followed by 2l per c€nt getting two promotions, while 49 jobs II and Class III cenl and OO'per - cent of officcrs in Class 37 per cent- of However, recruits. direct were respectively in Class III officers of per cent II and 26 blass officers in whcthsr officers' AII promotion only. one respectively received promoted, were, however, found to work in good spirif and the incidence of stagnation in the service was very smali, which wa-s contrary to our earlier expectation' promoted or
lot
The training period ofthe officials immediately after recruitment varied from two to three years for revenue and engioeer officers and from one year to 3 months for iunior irrigation and electricity staff.
make use of professional journals professional bodies in order to and to become members .nhrn". their t€chnical oompctence and increase their 'professional skill'
Thc officers hare yet
to
of
The profile of the bureaucracy that €merges from our study ' of is not very much different from the findings of the study althougb that seems Pai Panandiker and others.s It, therefore, n", been a lot of discussions about the socialisation and
il"r" i."i"i"g
processes of thc offrcials at the grass-root level' adequaie aotion has not been taken in this respect'
The analysis of job satisf)ction of officials reveals that about Morena 2l-27 per clnt of officers in the dishicts of Patiala and per ofrcors cent foundiheir work quite interesting, whilo 37-47
iound their work only occasionally interesting' About one' seldom third of the officers, on an avorage, found their work
88
bureaacratic yahps in Dewlopment
intcresting. The pattern of pcrception was similar for all the three departments of the two Stat€ Governments. The appreciation of the work ol the junior ofrcer by their senior officers also showed more or less the same trend, About 27-35 per cent of officers reported that their work was appre. ciated well by their se nior officers. This percentage was somewhat lower in the Revenuo Department. This is ihe pattern in both tbe State Governments and all the three departments. The
percentage of officers whose work was appreciated only ogcasionally was somewbat higher in punjab than in Madhya Pradesh. Only 15-24 per cent officers felt that their work was not appreciatod by their senior ofrcers and thoy were just carrying on their duties somehow, There was not much of variation in.the levels of appreciation of the work of thc junior officers by their senior officers in various departments.
Regarding the chances of promotion in ono,s own department, about 18 and 17 per cent rcspectively of the officers belonging to the Departments of Revenue of both the goveroments of Punjab and Madbya pradesh thought that theie were good
of promotion in their own department while thE corres_ ponding percentages were higher at 2l-2g in thc development departments of the two State Governments, Some fair cbanoes of promotion were reported by 36_49 per cent of ofrcers of the two State Governments white 3l-46 per cent officers complained ofpoor chances of promotion. This type of perceptions by more than one-third of officers. was perhaps due to some stag. oation as a result of low seniority arisini out oi tl, Uutt fecruitment that is periodically made. The chancos of promotion were quite_ similar in development and non-development dopart. ments of the two State Governments. chances
If given a chance to work in anothsr office/department the sam€ percentage of oiicers belonging development departments showed their reluctance wi iigness a change ofoffice. The officers of thc Revenu" Oipurtoruot of the two States revealed that a smaller p".""otug, of ii.ortuot, were prepared for a change. They were ,uprrtad
to will ". ",
for
tr-n"*r"
A
Study ln Profile and
lob Satislactlon
89
100/' or Rs' 150/' p.m. for working in other departments. The percentage of ofrcers in the Department of Revonue willing to join an alter' nativc ofrce/departmeqt for doing similar work were found to vary betweon 38 and 53. Thus only about half the omceis were somewhat, but not fully, inclined to chango over.
attraction for a deputation allowance of Rs.
Thus, on the whole, 60-70 per cent of the officers by apd large thought that they wore either fully or moderately satisfieil with their job, while 30-40 per cent of the officers engaged in both developmental and non developmental activities seemed to be feeling frustrated and dissatisfie
On the issue of the ofrcials' perception of their capabilities to cope up with the environmental situations, identioal typcs of replies were received from the oflcers of both the developmental offioers and non-developrnental departments. One-third only were achievemelts background were of tho view that tboir tbat the opinion of wero moderately utilized and half of them
of
their cducation, training and experience were properly utilised. Only one-sixth of the officers thought that their educational
achievements and expcrience were not utilised properly, The pattern of perception was similar for officers belonging to the these diiferent departments of the two State Governments'
If
facts '€fe considered along wrth the larger percentage of officers willing for a change of office/department, it naturally ,r
ofjob satisfaction concealed of the officials with their work
meaos that the seemingly high level
considerable real dissatisfaction situations in the organisations they were working for' Obviously' however, only 15 20 per c€nt of the officers of both the develop' nrent and non'dovelopment departments of the two State Govern' ments did not somehow feel that their oducation, training and work experience were utilised properly' Regarding the capabilitics
to
cope up with environmental
90
Bureaucratic /alues in Development
situations about half of the officers were confident that they could moet the challonging situations of new environments while a third of them thought that they were fairly capable to oope up
the environments. On the wholo a large majority of oflcers reported that they had adequate self.confidence to tackle any now situations that were likely to deveiop in the course of their work. There was not much difference in thc perceptions of the officers of developmontal and non-developmental departments of tho two State Governmentg in this respect. with
NOTES
I
V.A. Pai Panandiker and S.S. Kshirsagar, Burcaucrac! and Development Administration (Bombay 1978), p. 34.
2 Kuldeep Mathut i Burecdcrotic
Response
to
Developnent, (Delhi, 1972),
p, 24' 3 H,R. Chaturv€di, Burea:ucracy and Local Community : Dynamico of Rural Development, (Delhi, 1977), p, 54, 4 V. Subramaniam, "Hindu Values and Administrative Behaviour',, Indlan Journal 1967),
pp.
of Public Admlnistration, vo/. 13 (Octob€r_Decembsr
695-701.
5 Morroe Berger, B
rcaucracy and Society in Modern Egypt, (princeton : University, 1957). 6 Munecr Ahmed, The Civtl Servants ln pakistan, (rondon, Oxford University Press, 1964) p. 64. 7 R.K. Kelsall, Iltgher Civil Senants in Britain, (London, Routledg€ and Kegan Paul, 1955) pp. 198-200, 8 Panandikcr and Kshirsagar, n. 1., Mathur, n.2, aod Chaturv€di, n. 3.
4
The Structural Charactelistics of
Bureaucracy : An AnalYsis of Officials, PercePtion
of investigation for the studi' As outlined in Chapter I, the focus at tho grass-root l'evel il;; ,he uulo, ,y.** of the bureaucracy analysis of the value the in India. This Chapter deals with of of the ofdcials on the structural characteristics
their responses as to tbe "tf*,"ii"" ;;;;;;;;;.v' it', id'n is to analvse of the selected structural ffi;;;;i;.t they attached to some of a bureaucratic system. The characteristicc of Rules' "'iui"a*ri.ri", iiera'"hv, nivision ol Labour' Svstem weberian il;-;;" thc of sJ;;;"" rrlorit ana lmpelsonality-sorne organisatson. The analysis of features found in o uor.uo.iuirc
feature would itlir- r.rpoot"s on each of the characteristic them' officials the which tt to establish th€ extcnt to and of bureaucracy "-"Jft selves value thcse structural characteristics correlation with their pcrwhether their value systrm has any formance in devotoPmontal work'
to asc€rtain A set of five questions was put to the -officials in prevailed that tn"ir notfoot on the degree of hierarchy question-s' (a) whether
*Ji; tho bureaucratic
structufe' Two of the
guided bv his senior officers. fortakios aqv production or ' revenue O."i*ioo on incrcasing agricultural be rated high ancl (b) whethe-r the ofrcer would ;;;;" if throush his efforts ;;;;-"ifi*tt Li tut som€ status' colleotion in tbe area increased' "itrc,irt*"r-p;;duction/rtvonuo
;;
;;s
92
Bureaucratic Values in Development
framed, Thre€ of the queetions were negatively elicit spontaneous replies from the respondents. Thesd werc (i) whether the respondent could take action at hig discretio in the best interest or bett€r performance of agricultural production/revenue administration (ii) whether the respondent hari a chance to take a decision on his own with regard to day-to.day work without consulting his senior officers and (iii) whether the respondent had to do certain things which were performed by his superior officers. The results of were positively
framed
to
scoring were marked h.igh, Eoderatc a11d low and are summar ised by departments and districts in Table 4.1 on p. 93,
The division of respondents into high, moderate and low groups along the structural characteristic of hierachy showed that a high degree of valuc was attached to .hierachy in all the three departmonts of tho two State Governmets. In Patiala the highest scores were given by the Irrigation Engineers (58 per cent), and more than balf of the officers of the Punjab Electricity Board (51 per cent) showed bigh score to the value of hierachy. Curiously enough in the non_dpve. fopmental department of Revenue only 42 per cent officers gave high score. to
the value of hierachy, Clubbing together tbe
high and moderate value scores on hierarchy, the percentagc of officers of all the departments in patiala varied betweea 83 per cent and 80 per sent. Thus the officials of all the three departments scored high in their values to hierarchy. The low values to the characteristic of hierarchy wero shown by only l6 and 20 per cent officials. In Morena the offlcials' attachment to the value of hierarchy was on a lower scale. As in patiala the highest perccntage of high value scores was noticed io tho lrrigation Diparrment (46 per cenr) followed by th€ El€ctricity departmsot. (44 p€r cent) both of which are classificd as devetopment departmeots while in the non-developmootal department of Revcnue, onty 39 per cent of the officials gavc high seor€ to the value sf hierarcby. 8o far as the modcrato scores were concerned, the officials of the Departmcnt of Irrigation rgcording it were 40 per cent, the
fhe
Structural Values
93
oSrl
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3 {)
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(^ ai r.X At1 ;i^4,r{ t-{
ctF el c'l
t
N C\| co !i'
ot)
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€
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o o
cl
q
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q)
.ri HC{
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c\ co ra) o\ c.t cq
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qq ral
ll lo
qq
.90
$t
l'
tl\
an
cri
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o
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-
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.
t€
lgo rE-
-.: t.i
.Jjb
63= 0
94
Bureauuatic Values in Developmeat
officials ofthe Electricity Department 36 per cent and the offi_ cials from the Revenue Departoent 27 per cefi. Considering tbe high and moderato values together we find that the percen.
tage
of officials in the Electricity, Irrigation and
Revenue
departments conres to 80 per cent, 76 per cent and 77 per cent respectively which are more or less in descending order of their
attacbment to the value of hierarchy in a bursaucratic system. The position is illustrated by Bar Diagrams No. I on p. 95.
A comparative analysis of the above score in the two Stat€s is an indication of tbe fact that the principle of hierarchy has been less rigidly observed in the dishict of Morena than in Patiala. It seoms that all the departments of Madhya pradesh Government in this region did takc decisions on their own on a comparatively larger number of cases in their day-to-day work. It was so because the officials in this region secmed to have been committed to bring about a quicker pace of development, Because of certain other considerations, particularly arising out of the lanrpant dacoity menace, thcy had to adopt a less rigid degree o[ hierarchy in their work procedures.
Assuming that all the depsrtments of the punjab Government and highly hierarchic in their structure, we apply
are uniformly
the Xz (chi-square) test. The value
is
found
to
be
as
small as 5.55 which is very insignificant at 5 per cent level of probability for 4 degrees of freedom (2 degrees of freerlon for three departments and 2 degrees of freedom for three scales of values). Thus it can be concluded that there is no significant association to the value of the hierarchy as a bureaucratic characteristic between the developmental and regulatory departments in the State of punjab, The groups of officers in ahe three departments of Government of punjab have secured more or less similar scores to the value of hierarchv. therebv demonstrating that the rigidity of hierarchy may not necessarily affect the accomplishment of development goals.
Similarly in the case of the officials of the Morena districts, Ir (chi-square) value is onty 1.98 which is very insignifi-
the
95
The Structural Values
BAR OIAGRAM
\g' I PATIALA OISTRIST
HIERARCHY
High Mod e rote
E
lectriciiY DePortmrnl
Low High
trrigotion
Moderote Low High Mo'derole Low
lmenl
Revenue Deportnent
lligh Mo dero
DePor
ElectricilY DePortrcnt
le
Low High Moderote
Irr iEotion Oeportmenl
Low High Mo det ote
Revenue Degortment
Low Parcento9e
96
Bureaucratic Values
in Doelopment
cant for 4 degrees of free dom. Thus there is not much of association betwesn the scores to the value of hierarcby rn the three departments in the Government frA"if,y"'pr"Oesh This
reinforces the conclusion arrived at "f .a.tiu in ine lase of the State of Punjab. In fact the scores of the three sets of officers of the (iovernment in Madbya- pradesh on tne Jue of hierarchy
are similar. The extent
of
variation arnong the officials of different departments is only marginal. tt c"an it J.rfore, tre observed that notwithstanding the .need, for
oUr"rning t.s, rigidity in the bureaucratic characteristic d;;;;; secure a quicker-pace of developmenl there is ,"t"f.;;h;#;rence in tte officials'outlook towards hierarchy ;;i;, ;rr;ecrive of the fact whether they are ,ogug.d- io ",arurfoprloiu]-'turt, " o, regulatory tasks.
Division
of Laboar
Division of duties aod the assigamont of 0xed responsi bilities amoDgst its members is an important characteristic
of
burealcratic organisation. Two direct questions--ielating a to the division of duties among the senior and luoioioinclut, unA a third related question whether the seni,or officers liked to assume responsibility for the acts of commissions or ommissions of the junior officers were put to the respondents. The two n€gatively framed questions whether the officers hacr to perform the- duties normally done by. senior officers (vertical Oivision) and whether thc officers had to do ,ort Aon, by their colleagues at the same lever (horizontar aivisiooiw"r" asked to elicit cross replies in respect of division ui fulou.. The existence of vertical aud horizontal division ;;; amongst the officials obvlously gave some idea of the"fprevalenr structture of official responsibilities in the departm"nt. it were tabulated and are presented in a summarised" ,.pti.* form in Table 4.2 on page 97. The division of respondent officials securing high, modcrate and-tow value scores in respecr of division ;ai";;:r; is sbsws by the Bar Diagram No. 2
97
Thf, Structwal Values
3.sS'T
I\ aa qo9 $(a
3
*l a\|
i
901 (o o\
q)
iic 'r (^q)
.s
.s
;o
A {)
+o
@v) |il
EIE F tr! ix lbo l':.
€
o.o o|.r rf (a
"s oo
c! c!
\l= qt
t)
c.l
a.)
S lF
sl€ \l
ca7 Fq
oi.
t!)
ao oA tr!/
a\
O\lr)
oo $v
F.
oa di |.t
t
,.i
"t .P9
t-.
O\ ri od
u)
_
=c) '5o
AA
oI \c)
Bweaucralic Yalues in Development
98
BAR OIAGRAM NO,2 DIVISION OF
LABOUR PAIIALA DISIRIC?
High
Moderolc
Eleclricily DePorttnenl
Low High Mo
derole
trrigolion Oepqrlmrnl
Low High Mo
derdle
Revenue Deporlmrnl
Low
I,IORENA DISTRIC? High Moderole
Eleciricily Dcportment
Low High
Moderote
lrrigolion Deportmcnl
Low High M
o
dero ie
Revenuc Deportmcnt
Low
Percentoqe
The Struaural
Values
99t
In Punjab the pero.ntage of officers with high value scores on thc oharactoristic of Division of Labour was maximum in the Electricity Board and the Revenue Departmeot (about 5l per cent each) followed by the officers in thi lrrigation department (48 per cent). Tbe percentage of ofrcers with moderate scoro was the highest in the Revenue department (44 per cent) followed by 40 per cent in the Irrigation department,and 36 per cent in the Electricity department. Clubbing together tho high and moderate values, the officials of the-
Revenue department with 95 per cent scores gave a high consideration to tho value of the division of duties leaving. hardly 5 per cont officials who attached a low value to this. characteristic. Within the development departments the irriga* tion engineers indicating 88 per cent score followod by g7 per cent of the officers of the punjab Electricity Board attachcd either high or moderate values to the characteristic of division of labour. But the x2 (chi-square) value, being as insignificant as 4.07 for 4 degfces of frcedom, indicated thai so for as thoir attitude to the characteristic of the division of duties was
concertred, oo the whole there was not much of correlation amongst thc oftcials of three departments in the State ofpunjab_ It was, however, noticed that the Class I ofrcers worked under a less rigid system of the division of duties while the Class
aqd Class
III
accordance
with the division of duties. Thus the
Il
officers restricted their performance mostly in degree
bureaucratisation on account ofthe division of duties show much of an inter-departmental correlation.
did
of
not
The same pattern also emerges in Madhya pradesh. The percentage of officers in the Revenue department indicating high values to the division of labour was marginally higher at 48 per cent compared to 46 per cent of the,Irrijation deparrmeutTbe percentage of such officers in the M.p. Electricity Boardr was, however, 46. The' perc€ntag€ of officers ia the two develop:. ment departments with moderate ocorcs was, however, as high,, as 38 per,cent.and 35 per cent io the Departments of Electricity, and Irrigition r.cspCctivclyr against 29 .per cent ia the ,non-dow-.: lopmental f)cpartment of Revenue. The Xs (chi-square) value. in this caqg,ie alsq aslowas, a83:for.;4 degrees of froedon.-
100
Bureaucratic Values in Development
Thus thcre was not much of inter'departhental corre'latioxship in the application of the principle of division of labour arDongst the officiats of the thrce dopartments. This also proves that the Division of Labour was ao cssential characteristic of any organisation engaged in aoy kind of aotivity obstacle in the process of development. System
of
and was not
an
Rules
A prcscription of elaborate rules and procedures govetns the operations of offices in any system of government. This is an essontial leature of bureaucratic organisation as rights and duties of incumbents holding various ofrcial positions are derived from the sYstem of rules. Tbe system of rules not only graots the ofrcial powers but also limits their jurisdictions' Howcver, the same characteristic becomes dysfunbtional when the rules are observed literally to responprevent or obstruct action. A sizeable proportion
of
dent officials, both in Patiala and Morena, obscrved that their responsibilities and powers were highly codified and their work was rnore or less governed by elaborate prescribed rules' ln ordcr to measure the valuc scales of the respondent ofrcials
on tbe characteristic of'system of Rulest, a set of five questions was put to them-three of them were postively keyed questions-' (i) whether tbere were adequate rules and regulations to guide them in their work, (ii) whether the officer went strictly by . rules which meant more paper work and delay in the implementation of devclopment programme/revenuc administration, and (iii) whether the superior ofrcers would reprimand, if the rules were bypassed. The two were negatively keyed qucstions: (i) 'whethcr the omcer was in favour of changing the existing rules in th€ interest of development/revenue collection and (ii) whether the ofrcer could cut short the systom of rules and iake porsonal interest for expediting the availability of water/ power and postpooing rev€truo colleotion. The replies as {abulsted aro pmocatcd in Tablc 4.3 on pagc l0l.
Fros thc teblc it will be clcar that 79 por ccot of
tho
l0t
Tbe Structwal Values
o
s:T
.a O\ \o oo o\ e.l
lr
rN Or
l*t
t,
Iter
-l:
(')
8S 'rt tr-qI ctP .,
Ol
E3
$l
*o.
!-r (\
ao ol ci .f c\ \o
,clF lq
c\ Or aot
q)
'co -+nB
(a \t e.l dc{ oo
'91
"O
-:
oo r-i
.a
q\ \o cn o (n
o ()
1(a
qo? \om
It to lrl ll -1,
|
5lt *l: -l ^r-
t{ l.go
lc
.s .3
a
s E
.a \o d-j ro o.l ra \o c.rt \o ra)
-E $g
f
02
Burearoratic Valats in Developuwt.
of lrrigation, 73 per cent of the of Revenue and 64 per cent of Electricity Board in the Government of
ofBcials in the Department
officials of
the Department -State
officers of the Punjab were ofthe opinion that their duties were highly governed by the 'system of rules.' These high percentages of high value scores were on account of the fact that tho officials rigidly
followed the prescribed irrigation, electricity and revenue codes. This was so evcn in those cases where a Minister or a Member of Parliambot or State Legislature wished to havo an irrigation outlet at a place where his supporters wanted to have it, The officers would always look into such cases according to their
merits and in accordance with the procedures proscribed in thE related codes as also on the basii of the technical feasibilities.. Considering thc bigh and moderate value scores together, wc find that about 93 per cent of the officers of the Irrigation and Revenue departments preferrcd to rigidly stick to rules. The attitude of the officers of the Electricity, Board did not significantly differ. They also closely followed their counterparts in other departments and the percentage of officials having high and moderate scores on this value was 84,
In Morena also the pattern was the same, but the percentages of offrcials having high value scores were only somewhat lowor' than in Patiala. High values were scored by 64 per cent, 57 per cent and 55 per cent erfficers of the Revonue, Irrigation and, Electricity departments respectively. Moderale value score, were given by 32 per cent, 28 p€r cent and 22 per cent officials in the Electricity, Irrigation and Revcnue dcpartments respectively. The low value scores in the two development departments were hardly different from those in tho RevenuE department which were given by 14 per oent officials only. Tbua it seems that the officers of Madhya Pradesh Government in all the departments, developmental or non-developmental, observed the sanctity of rules and procedures for their day.to-day work, even though they were conscious that this often led to avoidable delays in thcir performance. Dospito this, howcver, they felt it necessary t6 stick to rules !g protect themselves against any possible frivolous complaint.by any p€rson. The position is illustrated by Bhr Eiagram No;.,3 on page 103.
The Structural Values
. SYSTEM
103
gAR DIAGRAM
OgRULES
NO.3
PATTALA
DTSTRTCT
'High
'Modero{e
Electricily Deporlment
tow 'High
lrrigoiion Deporlmenl
Moderote Low
'fiigh Moderole
Revenue Oep or t men t
,Low MORENA
:High Moderole .
Electrici
DISTRICT
ty Oepoilment
Low
rHigh .Mo
Irrigotion Oeporlment
derole
iLow
High lMo
deroie
Reven ue Dep or
!!-ow Fer ce nloge
tnent
104
Bureaucratic Values in Developmen9
The X2-(chi-sguare) value for officers in Patiala which is 9,69' slightly exceeds 9.488, thg critical value for probability level of'
of
.05 for 4 degrees freedom. Observations are thus clearly opposed to the hypothesis that the perc'eptions of officials areindependent of departments. seems tbat the observance of
It
rules in the Depaftments of lrrigation, Electricity and Revenue,
of the
State
of
Punjab
is
significantly correlated.
A
strict
adherence to rules and procedures in tbe development depart' ments in conformity with the practice in the Revenue Department has not bindered development in Punjab.
The I'?-(chi-square) value for scores on system of rules in Morena on tbe other hand is 2.83 which is insignificant at 5 per cent level of probability, system of rules is more or
It suggests that the observance of ths less independent of the developmentand non-devetopment character of the departments in Madhya Pradeeh, A comparative analysis of the scales of values on this characteristic shows that the progress in the electrification and irrigation projects in Punjab has in p actice been possibla even when there was rigid emphasis on thc observance of system" of rules. Thus in developmental work functionality does not seem to be affected by a rigid application of the rules an& procedures, Selection on Merit
Thc usual selection procedures of officers in the State services. of Punjab and Madbya Pradesh are through (i) competitive tests and interview, (ii) interview only, (iii) references by the employment exchange with final interview by a Selection Board of' the Department/Subordinate Service Commission and (iv) pro-. motion from lowor category posts.
In Patiala it was found that 87 per cent of the officers of tho' Electricity Board were selected either by the Punjab Public Service Commission or by the Special Selection Board, a. procedure which is adopted to eosure setection on merit. The officers of Class II service are directly recruited by the Public State
Values
The Structaral
105
Servicc Commission or the Special Selection Board from amongst the first class engineering graduates who alone are callecl for interview. After selection and training on probation they are posted as Assistant Engineers in various ofiic-es' Execcutiv" Bngineers are usually promotees fron Assistant Eniinocrs with good record of service and seniority'
in
tho Department of Irrigation are engineers per cent from amongst also recruited on a quota basis-(i) junior those having AMtE degree; (ii) 10 per cent from amongst engineers holding diplomas; (iii) l2'5 per cent from non'diploma holder engineers; and (iv) 5 per cent from the drawing and design staff. The rest are directly recruited from amongst the civil engineers holding graduate degree. To ensure selection on merit, the recruitnrent is done by the State Public Service ComThe Class
I[
l0
only called lbr interview, Only 65 per cent of posts in Class II service of the State Electrioity Board are ditect recruits while 35 per
mission where First Class graduates are
promotion from Class III posts is dont 9n a quota directly; (ii) 33 per cent per recruited are (i) cent 34 6asis; linesmen; diploma'holder the from amongst promotion through the oonamongst frorn promotion (iii) per cent through 33 and To IV service' Class to who belong linesmen' holder diploma special a by is done screening merit, the on ensure selection Selection Board constituted for the purpos€.
cent of the posts are filled through
personnel. Recruitment to Class
a
III
officers are selected on the basis of merit by the the time of our inSelection Board. Setvice Subordinate The Class
III
vestigation almost all the officers
At
of the Department of lrriga-
tion were found to be directly recruited through interviews onlY.
The Punjab Public Service Commission recruits officers in senior and junior class II service for the Department of Revenue' The Deputy Collectors either get into the I.A.S. in tho pro* motion quota of State Civil Service or get a selection Grade on the basis of seniority and good record of service. The junior
106
Bureaucratic Yalues in Development
officers of the Revenue Department usually come eirher directly or from various categories of State services. Only 1g per cent of the respondent officers of the Department of Revenue were found in our survey to be promotees and the rest were directlv recruited.
In Madhya Pradesh the pattern of service personnel in all the three departments resembles the pattern obtaining in punjab. Recruitnent to Class Il posts of the Madhya pradesh State Electricity Board is made both by direct selection and also through promotion. The quota for direct selection is 75 per cent while 20 per cent are rccruiteci from amongst the sub-engi
neers holding diplomas and 5 per cent from amongst the drawing and designing staff. The executive engineers are Class I officers promoted from Class II, the minimrrm experience
requirement being 8 years. During the survey, about 92 per cent of the respondent officers were found to be selected through
interriew and 8 per cenl were found to be prornotees.
In the Irrigation Departmcnt of Madhya pradesh the Canal Deputy Collectors and Irrigation Inspectors are of the grade of a Tehsildar or a Naib Tebsildar respectively. The selection on
nerit
the institution of State public Service Board. About 8l per cent of the respondent officers were found to hav€ been is ensured through
Commission and the Departmental Selection
selected through interviews and 19 per cent through promotion.
In the Department of Revenue, Deputy Collectors who are senior State Civil Service Offcers .."ruitrd by the Madhya Pradesh Public Service Commission, are eligible for promotion into the I.A.S. after 8 years of meritorious service on a 33 per cent quota basis. Besides this, l0 per cent of the Deputy Collectors can also get into the selection grade. promotion of various junior grade service personnel is also allowed in the tcrvices of the Department of Revenue. Even the Class III officers including Naib Tehsildars are composed of various persons coming from other departments, Only g per cent of the officers in this Department were found to be promotees and
'.:The Sfiuctural
Values
lg7
30 per cent wer€ selected directly through interview and tests .and the remainder through 'interview only. A negatively keyod question whether there was a feeling that was difficult to get a government job without usiog some kiud . -of influence was put the fespondents. About 84 per cent respondents in the ReveDue Department of the Punjab Government shared with the fceling partly, while only 16 per cent of-
it
to
'the respondents
fully
shared
it.
About 82 per cent
of
the
officers of the Department of lrrigation shared it partly while 'only 10 prr cent shared it fully. The remaining 8 per ccnt did not agree at The position was more or less the same in the
all.
"'case of the
respondents from tbe Punjab State Electricity Board where 57 per cent ofthe officers shared the feeling partly
and 3l per cent shared fully with the premise. Only 12 per cent of the respondents did not share the feeling at all. The scores .on this value are shown in Table 4.4 on page 108.
In the case of the district of Morena in Madhya Pradeslr, an -overwhelming 75 per cent of officers of the Department of Irrigation sirared the feeling partly while 12 percent shared "such a feeling fully and ths rest of the 13 per cent did not share the feeling at all. In tho Department of Revenue about 71 per -cent of tho respondents agreed partly with the idea while only 17 per ceot shared the feeling fully and the remaining t2 per .cent did not agree with it at all, In the case of Madbya Pradesh Electrioity Board, 62 per cent of the officers partly shar€d the 'feeling with only 8 per cent believing in it fully. The, remaining 30 per cont did not believe it at all' The above findings clearly indicate that a majority of the respondents have at least a 'partial feeling that the selections are not always made on merit. It seems also clear that even in a bureaucratic system the actual perception of the ofrcials about an essential Weberian characte-ristic sho a lot of divergence. The creeping up of a feeling "vs
.that the selertions to official positions are not always made on 'merit, howsoever vague or biased, hamper the performance of .individual offioials as th€y tend to be less motivated in their work performance. It also indirectly casts reflections on the rimpartiality of the duly constituted Boards for the purpose of
Bur eaucr atic. Value s
108
in
Develop ment
6l
a s € q
()
a
I..oo
o?\ r-') o oo {r <0
lEi
l
5F
>^- tt
I
s
o t;-' "l=
o,l
oo
t-.
.st\
F^l^.'.
$E
-l-t
(D
+g r:l I ca
I
a.l
l,Et l<: 'F1 'ils
,E
F DO
o
a..l
F-
QI\
sts al* I
{) q)
I
t>,
l\
€E
!t
ao
ES r o I oog ,. I E;siEsHr Xq!H= €; g!€ a€ alEE c€
':
3
The Structural Values
109.
selection of officials, This may also present some obstacles ip the accomplishment of developmental activities. Such-a v4lue perception of the officials needs to be remoulded for rcposing,: ing their confidence ioto the system.
To carry it a little farther the-respondents were asked a question about thc main criterion of selection and advancement. Here, of course 87, 90 and 100 per cent respondents belonging.: to the Departments of Electricity, Irrigation and Revenuo res'' peotively of the State- of Punjab said that seniority in the' government sorvice either in their own or other departments was.. the sole criterion of promotion provided their confidential'r records were good. Merit was said to be either immeasurable' or exprossed in terms of the subjective assessments of their'' senior officers and had littlo importance for promotion. Some' officers did maintain that good and bard work was of some ' consequence in promotion. At the same time, however, accord'' ing to them promotions on tho basis of certain extraneoqs con' siderations did not amount to more than 10 per cent ofthe ' cases.
in Madhya Pradesh was somewhat different''Against a high response of the officials in the State of Punjab only 63 to 67 per cent officers of all the three departments in." Madhya Pradesh found that seniority in service eitherinthe' parent or other departments was the main criterion for' promotion and advancement of career' At the same timeTho position
the officers of the three departments ' maintained that hard and good work di
consequence.
In view ofthe above findings, it seems to be surprising tbat' officials in both the States should share a feeling that the' recruitmont and promotions in government scrvices are not based on merit. An overwhelming majority of cfficers ' partly carried that feeling and a good number of officers even ' fully shared the feeling without any factual basis' Officials'' tend to have the feeling that in majority of cases, employment
"1
l0
Bureaucratic Values in DeVeloptnent
"or promotion in the government servioe, irrespective of the ;departmeirt . is based on consideration other tfian merit. ,Although the olficials could not substantiate their views in this regard, with concrete instances, but the very fact that they share this sort of value perception shows a disturbing trend in the accomplishmeot of their prescribed responsibilities. The .existence of such values amongst the officials tend to demoralise them and comes directly in the way of their work performance irrespcctive of the fact whether the task was regulatory or 'developmental. It is, therefore, necessary that such feelings among the officials are mitigated. This would lead to bettir functioning of the officials by boosting up their morale for developmental and non-developmental work.
.
Impersonality
One of the structural characteristics of a bureaucratic system is ',impersonality observed by the officials in their official dealirgs, We tried to examine the extent to which this characteristic was ,upheld by the officials in the three departments of the two "State Governments. In the section of .Impersonality, we put six different questions as shown in the officials' Schedule at Appendix IL Two of the questions related to the respondents' 'tendency to become closer and friendly to the people in the .course of their official dealings. In our field investigations, we were told by the various officers that a large nrajority of the .Government officers did not have the facility of housing and as ..a result they had to seek the help of private landlords not only . at the district/sub-divisional headquarters, but also at the block headquarters where there was acute shortage of reasonably good .accommodation, The landlords very often preforred to have "officials as their tenants for they thought that they w€re not .only good pay masters but were also in a positiob to help them
'in their dealings with various officials. ln such conditions it was really very difficult for the officials to refuse to entortain
their requests which were at times unreasonable and impinged of bureaucratic behaviour. "kaving aside the replies to these questions on the clopeness to "tho people (Seo Appcndix II) for the time being, replies in
-on the impersonal characteristic
The Structural Values
1l
fespect of other four questions were analysed Table 4.5 on page I l2 gives the findings.
It will
of the
and tabulated,.
in the
(non-devclopment)' Government of Punjab strictly
be observed that the officials
department of Revenue
Pr
in their official dealings in as much as 93 per cent omcers said that they followed this principle scrupulously with only 7 per cent observing it moderately and none against it. The f)epartment of Irrigation' of the Government of Punjab was the next in order. About: 34 per cent offrcers had high scales of values for impersonality followed by 14 per cent omcers with moderate scale of values and 2 per cent respondents with low value scales. The same trend was more or less noticdd among the officers of the Punjab' State Electricity Board where 72 per cent officials attached high values to impersonatity. Only 25 per cent officers of the Board said that they were following it moderately and 2 per cent officers attached low values to this characteristic.
followed tho principle of impersonality
The same trend is noticed among the officers of the Government of Madhya Pradesh. About ?l per.cent officers. of the Department of Revenue attached bigh values to the impersonal ways of worlcing, and only 22 per cent officers
of values to impersonality' The Revenue according low values to' of of Dopartment the officers per only 7 cent. The trend is similar in, formed impersonality of Department of lrrigation where about. the case of ofrcers 56 per cent respondents attached high values to impersonality' followed by 35 per oont observing moderate values' Theofficcrs attaching low valucs were less than 10 per cent. In case of officers of the Madhya Pradesh Electricity Board' 5'l per cent attached high values and 23 per cent each attached moderate and low values to impersonality. The Bar Diagram No. 4' on page I 13 cleatly iilustrates the comparison of thc values. attached moderate scales
The X2-(chi-square) value of observations at Patiala for four' degrees offreedoin was foundlto be very high at 15.13. This was due to very s'ide variations in the high, moderate and low values of porception " .of,all otiEcers especially the officers of the
]l12
Rureaucratic Values in Eevelopment
i<
s\\h
Nt
tt
,3 t\a
q)
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I
slF itr {t€ Ibo
lE o
rrrE !)
J ,rd
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I
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We
Structural Valaes in a Bureautatic
B3
System
I 13
jlagBAu-lg.g
IMPERSONALITY
PATIALA OISTRICT
:HiEh
Electrici ly OePor tmcnt
Modero le L
orv
.High
lrrigotion DePortmcnt
Moderoie ,LOw
,H19h
Revenue DePcrlment
,Modcr ol e
Low MORENA DISTRICT
High .Moderole
Etec
tricilY DePortment
Low
High Moderote
lriigotion DePottmenl
Low 'Hi9h Mo
dorofe
tow Perccn lo
gr
114
. Bureaucratlc Values in Development.
Department of Revenue. The distribution of opinion scales of officers of the State Electricity Board and the Department of Irrigation was also very skew, an overwhelmingly large percentage officlrs indicating in favour of high values ior imper_ -of sonality. The valuc of Xr.(chi-square) is very significant for such a skew
offlcere
distribution. It can
safely be concluded
that the
of the Department of Revenue of the Government
of,
Punjab observe impersonality in their official behaviour as the sine.qua-non for all official dealings. The officials of the.
D€partments of Irrigation and power also closely follow the officials of tbe Department of Revenue in the observance of impersonal dealings with the bencficiaries. Officers of both the. developmcnt and non-development departments of punjab show highly simitar attitudes in dealing with their clientele on an impersonal basis, Such impersonal attituds on the part of the officials does not seem to have hampered the pace oi develop* ment in Punjab. The-X, (chi-square) value for your degrees of freedom for the officers in tho Morena district was found to be still higher at. 41.34 which is very significant at any level of probability. Here again we find that the officials of the Departoent of Revenue. strictly follow tho principles of impersonality in tbeir day.to-
day dealings. But as compared to the officials in patiala they. rigid. More than a quarter (27 per cent) of officers hers attach moderate scale of value to impersonal dealings with public. Low values are attached to impersonality -by onty the. 13 per cent officers, More than half of the officers in the Electricity and Irrigatioo Dcpartments of the Government of Madhya _ Pradesh are also very impersonal in their day-to-day dealings. The officials of the power Board have modlrate and low per. ception about impersonality in 23 per @nt cas€s each. Aboutj 35 and 9 pex cent officers respectively of thc Department of lrrigation attach moderate and low perceptions to this character-, istic. Thc tendency to observe impersonalily in deating with. are less
'
theclientele in Madhya pradesb
seems to Ue nigUty correlated both the dovelopment and non-development deiariments.
On tbe whole, it can be said that ,impartonality' as
a
in
valua
il5
The Struatural Vahes
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Bureaucratic Yalue s in Developmatt
1t6
to be deeply imbibed by the officials in all thc different departments in both the States. At least this is what many of these officiats publicly admit. However, as observed earlier mrny of the officials do become friendly and closet to some people during the course of their official work and this fact does affect their:attitudes and actions toward s ti.em. This is clear from Table No, 4.6 on page l15, based on the officials' replies to the question relating to their becoming friendly to the people in course oftheir ofEcial dealings. flowever, tbo above findings do not explicitly indicatc whether such a tendency on tho part of the officials affect the developmental activities, and if so, in what mann_er and to what consequences. Presumably, in real lifc situations, non-observance of this bureaucratic characteristic by the officials in some cases helps them to oblige certain of their acquaintaoces or friends in expediting official actions but doss not have major consequences on the achievemonts of large' seems
scale developmental goals.
SUMMARY
The four structural
characteristics
of
bureaucracy namely
hierarchy, division of labnur, system of rules and impersonality
'were
tested slatistically in the light of replies given by the officials belonging to the three departments of the two State Governments under study. The findings discussed above explain the extent to which tl'e officials in the different bureaucratic set-ups in India share thesc values. The study shows that the characteristics exist predominantly in the nondevelopmental departnrent of revenue administration as also to somewhat lesser extent in the developmental departments of both the States. A comparison of the percentages of high, moderate and low values attached by the officers of the parallel departments in Punjdb and Madhya Pradesh brings to light some discernible trends. The comparativ€ analysis of such values amongst the officials of the State Elcctricity Boatd in both Purjab and Madbya Pradesh has been summarised ln Table 4.7 on p. I l?.
The Etructural Yalues
tt7
TABLE 4.7 State Eloctricity Boards (Percentage)
Characterlstlcs
of Bureaucracy
Patlalu High
Mode- Low rale
l.
)
Hicrarchy 5l.l 30.3 Division of Labour
3. System of Rules
4. Impersonality
5l.
Morena Mode.
High
Low
fate 18.6
t 35.9 13.0
43.8 36.2 20.0 46.2 38.4 15.4
63.5 20.3 16.2 54.6 31.6 72.3 25.3 2.4 53.9 23.1
13.8
23.0
Amongst the officers ofthe Governoent of Punjab, out of the characteristics studied, impersonality shows the bighest score (72 per cent), followed by the system of rulos (64 per ocnt), and the division of labour and hierarchy (jl per cent each). Moderate scale of perceptions is also very bigh among these officers. This means that despite development activities, the officials of the State Electricity Board in punjab value tbe bureaucratic characteristics in the order of impersonality, system of rules, hierarchy and division of labour.
More than half of the officers of the Madhya pradesh State Electricity Board attach high importance to the system of rulcs and impersonality (54 per cent each), followed by division of
labour (46 per cent) and hierarchy (44 per ccnt). It thus seems thlt somewhat more flexible attitude has been observed by the officials to the characteristics of hierarchy and division of labour, whioh secm to have led to increase in the tempo of developnreut in the initial.stages. Regarding the officials engaged in another developmental activity -that ofthe lrrigation Department, it cnn be seen from Table No. 4.8 on page ll8 that officials of both the punjab
I
Bureauqatic Values in Development
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The Sftuctwal
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I 19
and Madhya Pradesh Government (84 and 56 per cent respectively) give the highest importance to impersonal doalings towards the beneficiaries followed by the observance of rules (79 and 5? per cent respectively) as given in their irrigation codes. The difference is however of degree in both the cases. It will be further observed that wbile the officers of the Government of Punjab are very rigid in the observance of these two values, the majority of officers of the Government of Madhya Pradesh also attach high values to these character-
istics. So far as the other characteristics are
concerned,
of division of labour. Madhya Pradesh the number of officials attaching high values given to the division of labour and hicrarcby vary between 4l per cent to 46 per cent. Nonetheless they conform to the essential oharacteristics of buroaucracy. The lowsr percentages of low values given to theso two characteristics in Morena may be due to the fact that during the short period of developinent (7-8 years) of Chambal irrigation network, the department could not afford to be very rigid in the Punjab is somewhat flexible io the case
But
in
new tasks of extending irrigation command areas. How€ver, a slightly different pattern emerges in the case of non-deveiopmental department of Revonuo Administration in
the two States as shown in Table 4.9 on page 120. The inpersonality and system of rules are the most importaDt guiding principles for rwenue administration in Punjab as revealed by our respondents while the observance of the division of labour and hierarchy seems to be somewhat flexible, as only 42-51 per cent of the officials have scored high on these. values,
The charact€ristics of impersonality and system ofrules are also highly valued in the Department of Revenuc of the Government of 'Madhya Pradesh and emphasised by the. respondent oficials, but tbe extent of'scalo values was less than in Punjab. Compared to 93 per cent of officials attaching high values to impersonality in Puojab' the high value in Madhya Pradesh was scored by only 7l per cent' The high valBos of thc systom of rules was scored by 73 pcr cent officials
Bureaucratic Values in Development
120
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he Structural l/alues
r2r
Punjab agaiost 64 per cont io Madhya Pradesh. The division of labour and extent of hioraohy showed more flexibF lity in Madhya Pradosh than in Punjab.
in
It can tius be concluded'that by and large the administra. tiv6 system showed ao inclination to keep up the Weberian bureaucratic characteristics both in the devclopmcntal and non-developmental tasks. The element of deviation from the strict bureaucratic model was found to be somewhat greater in tho developoental activities in both tho States-morc in Ivladhya Pradesh than in Punjab, but the findings do not suggest that de-bureaucratization is essential for rapid develop ment. Even for affecting rapid development it was necessary that a moilicum of bureaucratio characteristics were kept going.
However, findings in the case of Madhya Pradesh do iudicate the need for flexibility in the system of rules and impersonality in the initial stages of developmeot. Once the organisation gets going, therc is a tendoocy to absorb more bureaucratio charactoristios in greater degrees'
5
Socio-Personal, Socio-Cultural and Socio-Administrative Values
was mado to examine the scales of valucs that the officials attach to some of the Weberian
In the earlier chaptcr, an attcmpt
characteristic of bureaucracy. This chapter is conoerned with an invostigation of somc of the socio'personal, scciocultural and socio.administrative valuos that the officidls observe or attach importance to in their official day to day dealings' The socio-personal values chosen for inquiry aro (a) the integrity of character and (b) the equality of individual, whilo the socio' cultural valuc investigated is (o) the officers' caste/class biases in their official dealings, and the socio'administrativc value enquircd relates to (d) the officials' status consciousness' Tho post-Woberian titeraturo on 'bureaucracy' has abundaotly dcmonitrated the tendenoy of the ofrcials to deviate from their anticipated bureaucratio rational behaviour within the framt' work of their porsonal, social and cultural settings, In tbe Indian ocology enormous disparities arising out of caste and cksss structures cxist giving rise to a pattern of administrative oulture whicb is based on traditional norms and social pressures While it is generally agrecd that in practice suoh deviations have
adversc effect on the performance of any type of organisa" tional goals, it remains to be exmined whether such effcct is fclt moro in the field of dovelopmental activities than in the non-
an
dcvobpmc nt
al arcas'
t24
Bur eau
cratic
Valu es in Dev elop men
Socio-personal Values
Amongst tho various socio-personal values of an oftcial, the two important ones, viz, the integrity of character and equality of individuals were choseo for investigation. To what extent the officiais engaged in developmental and non-developmental tasks observe the integrity of their character and treat all individuals with whom they come in official contact act on an equal basis was the main question. The value scores of the officials would give an indication of thoir commitment to thcse prescribed norms of buraaucratio oooduct in a democratic svstem.
Integrily of Characier
Two direct questions whether the officials agreod with (i) that no mattor how difficult the oircumstanc€s, the officials nust always romain above board and (ii) no official can be effective in his official performaaco, if he constantly tries to accommodate the requests and wishes of evcrybody were tested along with a nogatively framed quostion (iii) that administration being wbat it is, one has to compromiso with principles. The replies in res' pect of thesc qucstions relating to integrity of character were analyscd and are presented in Teble 5,1 on page 125.
From tho table
it
can be observed
that thc majority of
ofricors of the Government of Punjab score high on the value of integrity of character. More than three-fourths of the officers of the Dopartments of Irrigation (78 per cenl) and Revenue (76 per cent) said that the integfity of character was a must for the efricient discharge of their duties. Two-thirds (67 per cent) of the officers of the Punjab State Electricity Board were also of the samo opinion. Thus, an over-wbelmingly high degree of consonsus about a high value to tho. integrity of charactor pre, vailcd amongrt th€ ofricers of the Governmont of Punjab.
Only 18, l7 and 13 por ceot officers of the Revenue, Elocfii. city and Irrigation dopartmolts gave modcrato values to this charactcristic. Low valuos to the integrity of character were attachod
by
16, 9 and 6 por oent
of tho officirle reepocfively in
t
Sttclo-Personar, Socio-Cultural and Socio. Adminlstrutive l/oluet
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126 the departments
Bureanuatic Values tn Development
of
Electricity, Irrigation and Revenue of the
Government of Punjab.
In case of Madhya Pradesh the distribution of the value scales was also similar, but the existence of high values were somewhat less. About 60 per cent officers of the Departmenl of Revenue and 56 per cent officers of the Department of Irrigation were found to sharo high values for the integrity of
character. However, only 44 per cent officers of tbe Statc Etectricity Board were found to attach high values to integrity of character, Clubbing together high and moderate valuos we find that in all the three dcpartments, 80 par cent of the omcers attached high and moderate values to the integrity of character. Officials in thc developmental and non-developmental departmonts did not materially differ in their outlook towards the integrity of character. The Bar Diagram No. 5 on pago 127 showing the differing degress of values for this characteristic of bureaucracy in the two States illustrates the emphasis given by the officials to the principle of integrity of character,
It will be seen that the pattern of values shared by officials iu the two states is similar, Only the percentages of moderate and low values for integrity of character in Morena have gained at the cost of high values. Nevertheless as many as 60 and 56 per cent offic:rs of the Dspartments of Rovenue and lrrigation cherised high values of integrity of character whereas 44 per cent office rs of the Madhya Pradesh State Electricity Boatd attached high values to this characteristic. The percentage of the officials in the Goverome nt of Madhya pradesh attaching moderate and low values to integrity of character varied between 18 and 6 per c€!t. In Punjab as many an 78 and ?6 per cent of officers of the Departments of lrrigation and Revenue resp€ctively cherished high values to the integrity of character while the correspond. ing percentage of officials in the Electricity Department
67, The percentage of officcrs attaching moderate valuee to this charactertstic varied between 36 and 24, which were was
Socio-Per sonal, 8o clo'Cul tural and Socio- Admlnistratlve Values
BAR DIA9RAM N0.5 INTEGRITY OF CHARACTER PNIALAOIS'I8IEI l.llgh Modcro le
Oeportmgn t
Eleslricily
Low
HiCl Modero te
lfrigotion
O
eporl men I
Low High Mo
Revenue Deportment.
derote
Low MORENA DISTRICT
High Mo d€role
Eleclricity Deportment
Low
High Moderole
Irrigotion
Oeportment
Low High Moderole
Rev enue Deportmenf
Low Percen
logc
128
Bureauerat
ic
Volue s
higher than the corresponding percentagcs the Government of Madhya pradesh.
in Development
of the ofrcials of
The l,-(chi-square) values for patiata and Morena in respect of integrity of character are 6.56 and 6.3? respectivcly for4 degrces of freedom each, which are insignificant at 5 per cent
level of probability. It suggests that tbe value perceptioni of the o$cers of all the departments of the Governments of punjab and Madhya Pradesh are not interrelated. The extent of value perceptions among officers is independent of the departments in both the State Governments. All officerb of the punjab Government wcre reported to cherish high values for integrity ofcharacter as they thought it essential for development. The officers of the Government of Madhya Pradesh did also observe this characteristic of bureaucracy even amidst lot of conflicting and sustained pressures. There is only a slight difference in the extent of value perceptions among the officers of the two State Governments, The officers of the Governmcnt of punjab are overwhelmingly in favour of high values of integrity of
character while thc officers in the Government of Madhya Pradesh are very close to their counterparts in punjab in following the principle. This difforence in inter-State variation seems to be due to a high degree of development being already achieved in Punjab, while Madhya Pradesh was strll in the threshold of development. Equatity of I n ditt idu al s The practice of treating all citiz€ns uniformly on equal basis not only prevents any arbitrarioess of behaviour on the part of administrators but also protects them against frivolous accusations of favouritisnr by certain aggrievod citizEns.
In order to elicit the offlcials' responses to this value a direct question whether equality of individuals should be observed while implemotrting a developnrent plan and two ncgatively keyed qucstions*(i) whether the proposals of leaders who enjoy some public support arc favourably considered, even though thcir proposals may be unsound and (ii) whcther the richer
Socio: Fersonal, Socio-Cul
tural and Socio' A dmini strutive Y alues
farmers get all possible production aids while thc small farmers
are generarly ignored wete
put to them. The replies were
tabulated according to scales of valucs for the two districts and are prcsonted in Table 5.2 on page 130. The differences in scales of values attached to the principle of equality of individuals by tbe officers of the three depart. ments are illustrated by Bar Diagram No. 6 on page l3l. The percentage of high values in respect of equality of indi-
viduals vary from 57 per cent in Irrigation Dcpartment of Punjab to 5l per cent in Electricity Department. But in the last case this percentage is followed by 43 per cent of moderate value whereas in the Electricity and lrrigation Department the percentages of moderate values are 40 and 35 respectively. When high and moderate values are considered together, tbe total pcrcentage varies between 92 and 88. Thus it can bo said that the principle that individuals should be treated equally is the uppermost consideration of officers of all ths three departments in the Government of Punjab. of Morena, the highest percentage of high values are officers of the MP State Electricity Board per High value p€rcentages in the lrrigation cent which is 49 are 44 and 38 respectively. But Departments and Revenue by fairly high percentages of are followed these percentages perceptions of the officers of the Revenue (31 moderate scates of per cent) departments res(28 Irrigation per cent) and the departn;ents 3l per Revenue lrrigation and pectively. In the attach low values to officers are found to per cent ceot and 28 an equal basis' There on individuals of treating the principle perceptions of the officers in role is thus considerable difference of Government Madhya the and of the Gov:rnment of Punjab why about one-third however, was not clear, of Pradesh. It Pradesh Madhya attached of the officers of the Government low values to the principle of equality of individuals. May be this was due to the fact that the officials beilg constantly under all kinds of pressures felt that it was difficult for them to adhere to this principle in practice. In order to realise the obicctives some occasions for biased treatment of clicnts or
In
case
attached by the
130
Bureaucratie Valws in Developmcnt
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Soc
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derote
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[ow High
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Reven
Percen to ge
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t32
Bureauqatic Values iit Developmmt
citizens might have arisen, and they had to unwillingly sacrifice this principle for the sake of expediency. There is also some difference in the pattern of their role perceptions. The X'z-(chi.square) value is as low as 3.12 for 4 degrees of freedom for Punjab whereas it is as bigh as 9.23 for Madhya Pradesh of6cers. The latter is, of course, just statistically insignificant at 5 per cent level of probability. The pat-
of individuals is, therefore, very muoh alike with the officers of all the three dcpartments of the Governments of Punjab and Madhya Pradesh, and the role perceptions in various departments of the two Statc Governments are not correlatcd. In Punjab the low value scales get reduced because the high value percentages are much higher. In Madhya Pradesh, however, the differences in percentages of low value scales and moderate value scales and even the high value scales are much less. Otherwise there is no porceptible difference amongst the development d€partments as compared to the non-developmental departments of either tern of role perceptions about the equality
Government. Scoio-Cultural Values Amongst the many socio-cultural values which govern an official's behaviour, caste and class considerations were taken as the main indices for investigation. Normally the bureaucracy is supposed to be free from all caste, class and parochial considerations. But in a developing country like India disparities in caste or class structures are very diverse and varied, In various Five Year P.lans for socio.economic development, ways and means have been sought for ren;oval or mitigation of caste and class inequalities. Special provisions have been made for tho development of people belonging to backward classes/cast€s and communities. In many places minimum needs programmes have been provided for betterment and improvement of people belonging to the poorer sections of the society. Special provisions have been made in the Five Year Plans for the upliftment of the small and marginal farmers and the weaker sections of the society. The officials at various levels are, thereFore.
So c io'P
erc o na
t,
So c lo-C
ul t ur al and S o cio-Admlni st rativ e Val uei :.
entrusted with special responsibilities in respect of such develop_ ment programmes. It waS, therefore, thought desirabte to put a few questions to the officials about the natur€ oftheir duties. Five questions; (i) whether parochial and caste consideratiofs played an important role in development administration in tho
official's work areas; (ii) whether development plans and polito suit certain locally dominant castes/
cies were often modifidd
classes/religious groups; (iii) ft'hether sites of development programmes were selected on caste/class considerations; (iv) wbether preferencc was given to small and marginal farmers
and economically weaker sections of the society and (v)
wbether in respect of developmental work preference was given to different classes, especially the depressed ones in the society, wero put to the respondent offcers. The replies were analysed and are summarised in Table 5,3 on page l3l, The picture that emerges here in case of caste/ctass considerations is somewhat iomplex. The development departments of the Government of Punjab attach very low values to these considerations while the non-developmental departmcnt attaches some importance to these considerations. The officers of the Government of Madhya Pradesh in all the thre€ departm€nts attach some consideration to these factors. The position is illustrated by Bar Diagram No. 7. on page 1 5. So far as socio.cultural values are concerned, the of6cers of the Government of Punjab belonging to developmental and non-developmental departments show the samc pattern of bebaviour. An overwhelrning percentage of officers of the Electricity and lrrigation Deparments, viz 84 per cent each, and 60 per cent of the officers of the Revcnue department attach low values to caste and class considerations. In fact
the small and marginal farmers and the weakor sections of the society cannot afford individually to own an elcctric or diesel
for augmenting the agricultural production. The State tubewells have to be constructed by th€ State Govcrnments frrr helping them in a collective way. Thc areas of tho district of Patiala surveyed by us did not bavc any state tubewell although thc watcr level is high in that rcgion, pump
Bureauer atic Yalues ln Development
134
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Soclo-Personal, Socio'Cuhural and Sxio'Administrati'te Values
PATIALA OISTRICT High Moderote
Electrisi tY DePortment
Low
High
trngotion DePorlrnent
Moderote Low
High
Reven ue DePortment
Modaro te
Low MORENA OISTRICT
High
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Moderotr LotY
High
trrigohon OePortmenf
Moderote Low High Modero te
Low Percentoge
136
Bureaucratic Yalaes ln Developm ent
Thus the officers of the State Electricity Board did not havs much opportunity to give high considerations to caste or class factors. Only 27,16 and 14 per cent ofolficers of the Revenue,
Irrigation and Electricity Depart.mgnts attached moderate values to this characteristic. The corresponding percentages for low value perceptioos were very low. In case ofirrigation, the network of canals in patiala, both lrigation Work Department and Bhakra-Nangal system are fairly old. The present irrigation activities are mostly in respect ofstrengthening these canals to bring in more water that is available from tbe Beas river. There is, hardly, any scop€ at'the present moment to give caste/cldss coqsiderations in thc availabrlity of water for irrigation, It was, thereforcn, Snnatural to apportion high valtis for them to theee cgbgidcfdtions. Thus 83 per cent of the officers of rhe lrrigaation department were stated to have attached low values followcd by 16 p€r cent and only I por cent respectively for moderate and higb value to caste/class considerations. belonging to
The position
of
officers belonging to non:devetopmental different, On account..of tbe constant bammering from the administration the p€rceotage of officials attaching low values to caste/class ,u, only 50, followed by 27, artd 13 for modorate "oorid.rurroo and high values dopartment was somewhat
rospectively.
Thc pattern of socio.cultural yalues in Madhya pradesh that
cmerg€s as a result of the enquiry is different, In the.
the percentage of officials attaching somewhat nigi values ; grete/class considerations.v1y betwien 15 to 2J pei cent only.
In case of the Electricity Department the ieicentage of low values were held byas large as 5l per ceni offiicials. It was gathered during discussions. with the officials that the wiring of the transmission and distribution lines oilpower nad very littlc to do with weaker section. uoa tn" lines were
drawn strictly according to poteotiality of agricultural production. In case of the Depaitment of irrigatiol tow scale valuess werc indicated by 4l per cent of the oftleis aeainst l+
' Socio-Pdrsonal, socto'Cuhur'al and Socio'Administrotive Valueg ' and 51 percent ofrcers of the Departments of Roverue and Electricity respectively. About one'third of tho officcrs of all the three departments indicated moderate values for this characteristic,
The I'-(chi'square) value
Patiala is found to be 29.10
of distribution of offrcers in which is very sigoificant at I pcr
cent level of probability. Thus the value scales of the Govern' ment of Punjab in respect of caste/class considerations are not
independent
of the departments. The
perceptions
of
tho
officers of the development and non-development departments in Punjab are highly correlated so far as caste/class considera'
tions are concered.
In Morena the ,(e-(chi'square) value is 4.57 which is very insignificant. 'It moans that considerations given to caste/class and weaker section of the society by the of(icers of the develop' ment departments are not inter-related though attachment of high, moderate and tow values to this characteristic by tho officers of the three departments of Madhya Pradesh Government show some variations.
If removal or mitigation of inequalities in
levels of develop sections of the society is officials engaged in development and
ment among various castes, classes
any responsibility of the non-development tasks in
or
the two States, a very pertinent thcm rslated to the kind of attitude that the beneficiaries had of the official developmental prog' rammes. The other question prsed to the officials was whether thebetter off plople were willing to sacrifice for the upliftment of the pooror section of the community. The views of the officers of the Government of Punjab differed considerably' Onty eight per cent of the officers of the Punjab Statc Electricity Board thought that the rich beneficiaries were seldom or ncv€r in favour of sacrificing for the pooi, while in the Irrilation and Revenue De partments, such a fceling was hold by 92 per cent and 56 per cent ofofficials respectively. However, 39 per cent of officials of the Revenue Department, l0 per ccnf ' ol officials of the Puojab State Electricity Board and 3 per cont question that was asked
138
Bureaucratic Values in Development
omcers of the Irrigation Departmont thought that the rich were preparod. to sacrifice for the benefit of the poor. The percentage varied differently in Madhya Pradesh. Only 62 per cent, 44 per cent and 58 per cent officers of the Electricity, Irrigation and Revenue Departments respectively were of the view that the rich were not sacrificing for the weaker sections of the society, while 38 per cent, 23 per cent and 6 per cent officers respectively of these departments were of the view that the rich were willing to sacrifice for the benefit of the poor. Thus, in the absence ofthe feeling of the willingness to sacrifice
on the part
of the privileged
classes
the inequalities
and
disparities between the richer and poorer sections of the society are likely to persist for times to come.
A quick paco of developmcnt can be achieved if both the offcials and beneficiaries of developmental tasks have a strong sense of conviction arrd are inspired by the high values of sacrifice, public service and dedication to the ideals of developmcnt. The administration cannot be biased in favour of one group or another but must resort to equitable distributioo ofthe benefits of development in the larger interest of the nation. Every citizen needs to be assured that the Government has to be fair to all sections of the community. If the officials are unable to deveiop unanimity of purpose and identity of goals, they are very ofte;r in trouble in their sphere of activities relating to the welfare of beneficiaries who are very often heterogeneous in composition and chalacter. The relationship between officials and citizens is thus, at times, marked with tensions, For instance, if the monsoon is scanty, there is a demand on thc part of some farmers who do not own pumps, for irrigation water and electricity for energising pumpsets to save the crops. In case the officials are not responsive to these demands and do not provide the necessary inputs in particular areas and are not cooperative with the public in meeting their demands, or aro biascd in their dealings with different sectioos of the society the tensions multiply and conflicts arise, Thus occasions may arise where the officials are faced with the problem of solving such sless-conflicts within tho community, i,e., to decidc. the
Socio-Persotul, Socio'Cultural and Socio'Admlnistative Values
claims of the well-to'do section owning irrigation pumps against the genuine demands of the poor or dcpressed classes without irrigation pumps. Although majority of officials seem to bc freo from the class'bias in deciding these conflicting claims, yet even a significant minority showing such biases is disheartening. So
cio- Ad mini s t rct iv e l/ alue s
Ttro officials' sense of status:consciousness, their allegedly maintaining of distanco from their junior officers and the kind of freedom that the subordinate officers enjoycd to discuss official and personal problems with senior officers were taken The as the indices reflecting the socio-administrat ive values' officers (a) senior are the two positive questions canvassed were ,onrriout of their status? and (b) do the senior officers maintain keyed distance from the junior officers? The one negatively officers question put to the respondents was whether thejunior of the aepartments had the freedom of discussion about their official aod personal problems with higher officials' The replies received wcre tabulated and are summarised in Table 5'4 on page 140'
The table olearly indicates that officers of all the three conscious a.fu.tro.nt. of both the governments are more or less The junior officors' their from oill.i, ,tuto, and keep distance value highest the have officers of the Revenue Department About 64 per scales for the socio administrative characteristics' of the Government of ,.nt offrrrrc of the Revenue Department of Department the in those poniuU.otputed to 47 ner cent of
values of ihe Madhva Pradesh Government attach high from distance maintain to status consciousness and consequently moderate and high the together ii.iil"oi". officers. If we club of Revenue values scores, the percentages in the Departments. become as Pradesh Madhya and of Punjab oi in" Cou.tomenis The extent' respectively'. per c€nt 88 antl iisil", s+per ceot and Electricity the in less somiwhat oi?ntot co-nsciousness is of officials perc€ntages the Punjab in ii.G"ii"t dePartmeots, iofiing higb values coming to 42 and 41 pe-r cent respoctively' ii upp.nt. that even in development departments a cloar
R;;;;;.
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140
Bureaucratlc ltalues in Developntent
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Socio- Personal, So clo-Culrural aad Socio' Admini st rattve V alues
if
only to a lesser extent stamp of status-consciousness prevails, in the Revenue depart' compared to the hard core bureaucracy ment. The pattcrn in Moiena is also somewhat similar. In Madhya Pradesh the highest perceotage of thc officers who are status conscious to a high degre: is 47 in the Department of Revenue whicb, when clubbed with officers having moderate scale valucs, comcs to 83 per cent.. About 44 per cent each of the officers of thc development departments like Electricity and lrrigation have high values for this characteristic followed by 36 per cent and 35 per cent of officials oFthe respective Departments holding moderate values. Thus more than three'fourths of the offcers in these developmental departments do hnve the feeling of being status-conscious. Bar Diagram No. 8 on page 142 illustrates
the point. The I2-(chi-square) value of variations in the distribution of bigh, moderate and low values in the district of Patiala is I9.95 for 4 degrees of freedom which is quite significant at one percent tevel of probability. The degree of variations in status conrciousness is significantly high in the Departmcnt of Reveuue of the f unjab Governmirnt compared to the Departments of Flectricity and lrrigation' The variations in these two developmental departmcnts are not very large. In other words the ofrcers of the Department of ElccFicity are equally status'conscious as the ' offioers of the lrrigation department, but aro less status conscious
than their counter'parts in the
of
Revenue' of the non-developin the to those compared departments developmcnt ment department of the Government of Punjab. But on the whole this characteristic of bureaucracy has strong association
department
Status consciousness is seen much less among the oflcr'rs
in all the thfee
dePartments.
The main reason for high levels of
status'consciousness
amongst the officers can bo traced to the working of the three departments under study. The centralised system of control prevatent in all the. I)epartments, even those of the departoental activities of rural electrification and supply of irrigation watel
r42
Bur e aucrat i c Value s in D evelopment
gAR DIAGRAM NO.8 Socio - Admrnrstrotive Volues Scoles PATIALA OISTRICT Hi gh
gectricity Deportmcnt
Moderote Low High Moderote
Irrigolion Deportmrn r
[ow High Moderote
Revenue Depor tment
Lori,
MOREN-A DISTRICT High
Electricity
Moderote
Dep
ortment
Low
High
Moderote Low
lrrig otion Depor tmcnt
High Moderote
Reve n ue Depor
Low
Percentoge
tment
Socio' Personal, Socio'Cutt;ural
and Socio'Administrutive Values
of the work of revenue collection) gave enough discre' to the various levels of officers in theso depart' iioou.v po*.* 'g"to after the achievement of Independence' no signi'
(as also
ru"tt.
of powers i'*"i "n".gt in the rules and regulations' devolution The occurred' p*.edures of these departments has were ""J""it erercisotl by the departments in the Headquarters *oftot,
with the increasing ,"r"*i"ii.u.ictivc in nature. Moreover, in developmental projects th-e ofrcers beoame il;;;tand tbus conservative -por..ful. in the exorcise of power .""ia"t has, thorefore,
Status consciousness ili. ffi;;;" ""a power and authoritv that thev had the of ;;il;;;;uct ."*1" irtii"v in the disbursement of various funds for develop' ment at theit discretion'
the ofrcers of the value 21'r-(chi'square) 166 Pradesh' of Madhva c;;;;"i of officials these amongst foi variations in status-consciousness in' is which only 3'86 is Pradesh ii" 4"".**."t of Madhya per cent' There is .l*lO.uot even at the proiability level of 5 of the consciousncss status pattein of ii"* ^" itr",r*ship in the nonof the officers The omt.t. in the three dopartments' arc Pradesh in Madhya Revenue dcvelopment Department of develop' of the those than ,orn.*hot more status-conscious of the Govern' mentul depurttents. On the whole the officers *r"i "f Madhya Pradesh are less status-conscious than those of Gove rnment of Punjab' The position is somewhat diffcrent among
SUMMARY the From the above analysis it is clear that comparatively depart' ofrcers of the Government of Punjab in all the three lents give very high values to the characteristic of integrity of character. The percentage of officers attaching high values in the varied between 67 per cent in the caso of the officers O.p".t-"ot of Eleciricity to 78 pcr cent in the Department of IttL"ti"o while the officers of the Department of Rcvenue fell in between. Thore is thus no signi0cant di$erence as amongst these three categories
integrity of
of officers so far as
character is conccrned.
perceptions about
-t44
Eureaucratic Values tn Developmenr
The offcers of the Government of Madhya pradesh also attached high values t,r integrity of character. The extctrt of high values was, however. somewhat less than those of tbe officers of the Government of punjab. ln tr,taOfrya fradesh the highest percentage of officers in ihe Departm#-or Revenuc, namely 60 per cent, attached very high values to integrity of character followed by 56 per cent officers of the Department
Irrigation. In the State Electriciry Board only
ai p.,
of
olicers attached high values to it. On inter_departmental ""o, comparison we find some insignificant differenccs among the tbree sets of departmental offcers. The perccntage oi oftcers attaching low importance to this socio personal value differed from department to department. "Ihis percentage was 36, 25 and 2O respectively for officers of tbe Electricity, Revenue and Irrigation departments. On the whole, it can safely be concluded that all the three departmental officers of the Government of Madhya Pradesh were also keen like those of the punjab Governoent to observe integrity of character. The difference in inter-State variations in.the scales of values attached to the integrity of character is somewhat marginal. The officers of the Government of punjab value the principle of equality of individuals as a very important eleme nt in their performance. The lrrigation, Electricity and Revenue department officers (with 57, 5t and 45 per cent respectively) attached high values to adhering the principle of the equality of indi viduals in the discharge of thsir functions. Altltough the valuo differences did not signi0cantly vary from departmeot to departmen., officers of the Revcnue department attached somewhat low values to this characteristic. High, mocjerate and low values were almost equally shared by ttrem- The offfcers attaching moderate and low values were aboiit 50 per cent of the total number of the officers.
In Madhya Pradesh the pattern was somewhat d ifferent. The percentage of ofricers attaching high, moderate and low values differed from ctepartment to department, The hetrogeneity or
dis-similarity in behaviour was most pronounc€d developmcntal departments of Electricity
in case of and lrrigation. Low
Socio-Personal, Socio'Cultural and Socio' Administative Values
found to be comparativoly of differcnt dimensions in the three departments varying from l3 to 3l pcr cont. The comparatively low percentages of officers attaching high importance to equality of individuals indicates their in' capability to absorb the due or undue pressures that they might havo felt from different quarters in the discharge of their scale values were also
functions. Regarding socio'cultural values, castes/class considrations did not piay any hindrance in the effective discharge of duties in tho deveiopmental as well as non'developmental departments of the
Government of Punjab. The percentage of officers, however, attachiog low valucs to caste/class considerations was as bigh as 84 and 83
in the developrnental
departments of Electricity
and lcrigation, wbite it was only 60 per cent in case ofnon' prio' developmentai departlrent of Revenue' On account of rities givcn latcty io the developmcnt of the weaker sections of the ,oiiety and small and marginal farmers, the Governmcnt is itself encouraging prefercntial treatment to these classes and the policies Dopartment of R"n.oo. is likewise also shaping the new for development. lt is, therefore, somewhat natural that in the
Dcpartment of Revenue, the government will ..bo the first amongst the agencies to initiate somewhat discriminatory
policils putrr.d in favour of
the depresscd and the weaker
sections. This was very much visible in Patiala, but the installation of electric lines and the irrigation networks in Punjab did not discriminate between the rich and the poor'
of
socio-oultural values in Madhya Pradesh is of all the three somewhat different. The percentage of officers is conciderations caste/class to values gi:r,ing low depurtments
Thc pattern
The extent of values, are howcvet' low to those of the officers of the Government of Punjab' of "oipn.tA The low percentages were 5l and 4l for the Departments per for tho cent 4l onty and Revenuo Electricity and Oep rtment of Irrigatioo. Io the Department of lrrigation (41) and modc' t#percentages of officials sharing high values of low valtes perccntagc the than iuir'nutu", (il) were lo*er considoraliong caste/class the way Any depariocots. ii
large ancl
"tl"t
onifot..
146
Bureaucratic yalues in Development
had less impact in Madhya pradesh as the l2.value was stati. stically insigniflcant. The ofrcers of the Department oi Revenue indicated extreme cases with 28 per cent for high vatues and 44 per cent for low value. There was however, no relationshio
to
between the adherence caste/class. considerations in the development and non-development departments of the Govern_ ment of Madhya Pradesh. To the question whether the bettcr-off people in the community were willing to sacrifice fot the poor, the replies differed. Aboui 92 per cent, 78 per cent and 56 per cent respectively of the officers of the Punjab lrrigation, Electricity and Revenue depart_
ments made the observation that the rich beneficiaries of development work were not in favour of making sacrificos for the poor. Only 39 per cent, l0 per cent and 3 per cent officers respectively of the departments of Revenue, Electricity and Irrigation of the Goveroment of puujab thought that the rich were vzilring to make adjustments for the weaker sections ofthe
society.
The percentages varied in case of the officers of tbe Madhya Pradesb. Only 62 per cent, 50 per cent and 44 per ient officers respectively of the Electricity, Revenue. and Irrigation departments opined that the rich were not willing to saciifice in favour of the poor, while 38 per cent, 23 per cent and 6 per cent officcrs respectively of the. Etectricity, Irrigation und R"u.ou, department officers thought that the spirit or sacrince did exist, The conclusion was not, therefore, very different from that of the officials ofthe Government ofpunjab, except thJ majority of officials tberedid not feel.that a greater proportion of the bettcr off population was wilting to tretp tneir t'.r, i.orp.rou,
brethren.
So far as the socio-administrative values are concerned, status consciousness, maintenance of distance fro, ,ufoiJio"ie officers aod the cxtent of freedom enjoyed by junior oin".r, Oircur, freoly office and personal mattrrs with senior officers- were taken
io
asJhc indices refleering rhe-cluster diffeloncos wcre noticed
of such Jignigoant ";;;. d"purr*.ot ffrc n.u"oo"
in paiiala.
Socio:Pe rson
al, Soc'to-€tih u?at iiail Socio-Administ rat lve Yalues
topped the perceptions of status conciousness aud as much as 64 per eent offlcem maintained high values towards status'con$' ciousness. But in ths Departments of Electricity and Irrigation the p€rccption of status consciousness was low' Only 42 per cent and 4l per cent of the officcrs respoctively showed a high degree of status consciousness' The percentages of ofrcers with moderate and low perceptions ofthe charatcristic wore much lower, Tho chi-square value being high, thore is thue significant association noticed among the officers of the threc dcpartments of the Government of Punjab,relating to the valu€
of status oonsciousness. The reason for high levels of status consciousness amongst the officors was traced to tho working of the departments. A remote and rcstrictive centralised control of the departmental authority and availability of large developmental funds at their disposal gave enough discretionery pow€rs to tho officcrs. Their status-consciousness was the result of this power and authority that they thus came to wield.
In
Morena, status consciousness among tho officers was
noticed in all the three departments but to a lcsser cxtent. Thc high values varied amongst 44 aad 47 por cent of the officers. Moderate values varied in 35 to 4l per cent of officcrs,
If wc club together high and moderato values, the psroontages are 84 and 88 respcctively in the Dopartments of Revenue in both ths State Governments which show that status-consciousness in developmental departments of both the govornments is
lower than what it obtains in the non-developmental departments. On tho whole, status conciousness was independent of thc departments for which the officers worked as revoalod by ths low value of ohi'squarc.
Tho findings in this chaptor clearly dcmonstrate thst despitc of development in both the States, the achievement of development performance is independent of the soci.ological-pereonal and socio-administrative values of the of6cials engaged io their tasks. As-thore is little correlationthe cmphasis
148
Burcaucratic Values ln Devclopment
ship" between the value perceptions
of the offioials
of
the deve-
lopmental and non-developmental departmonts except in caste/ class consciousness and socio-administrative values in Punjab, a couclusion can be drawn that the cbanges in existing sociologica! and socio-administrativo values may not be easily affected to bring about tho desired lcvel of performance in the development
tasks.
Status consciousness of the officers
of
the
Punjab had been a byproduct of the power and authority that the officers had enjoyed for a long time and because of various historical factors. As the development activities get established and ingrained, the offcials become mor€ statusconscious than they were in thc beginning.
6
Official Perception of Behavioural Values
This chapter is concerned with the. examination of
some
behavioural charaoteristics of bureaucracy cngaged in devclop. mcntal and non devclopmental activities in the two districts of Punjab and Madhya Pradesh, The strict Weberian modol of bureaucracy envisages a rational behaviour on the part of the mombers of an organisation. lfowever, in aotual practice, because of the various socio-economic or psychological factors such ratiooality of behaviour is not always possiblo to maintain. More so is thc situatioo io the contaxt of developmcntal activitieg where decision in regard to developmental programmes may not always be based on ratioual considerations but on cxpediency or feasibility. Hence in our study it was thought desirable to examino the extent to which our respondents adhered to the priociples of rationality in their behaviour. In a developmental system,.as. the changes in the economic and sdcial fields have to be brought about quickly, the administrator's performance is most ofteo evaluated on the basis of the targets/r€sults acbieved. The satisfaction of the citizens
is also taken as an important criterion in carryiog out thc developmeotal tasks which sometimes may not be achieved on the basis of rational decision-making, Thus in actual work and field situations, the of0cials may be very often obliged to dcviate from tho strict norms of rational deoision-making.
.
Burcaucratic Values in Development
150
Selistion of Behavtoural Characteristics
The purpose of the chapter is, therefore, to analyse some of the behavioural characteristics of the officials cmerging out of the Weberian notion of a rational authority system. The deviations sought to be investigated are in respect of, rationality,, exercisc of aut[ority, the extent of officials' change/result - orientation and their attitude to collective decGiinrqiaking is officjal ' activities. A comparison of the values of the officials in developmental and non-developmental departments is made in these respects in order to enable us to examine if the nature of activities performed by officials makes any difference in thoir attitudes and value systems. Ratlonality Thrls.
section atternots to analvse the extent to which the officials
as decision makers are able to reconcile with the different typer of pressure affecting their rational behaviour. The Weberian model of bureaucracy assumes decision making by officials on a basis ofstrict rationality but as the writings of most post-Weberian scholars on bureaucracy have demonstrated, this is more of a theoretical assumption than a practical reality, The issue of'rationality' was examined through the answers received to a set of four questions, posed to the respondent officials. These were (i) whether they would like appointing a known person who is good at work and is readily availablc, even though it may mean deviation from the existing rules of
recruitment; (ii) would they be influenced by tho pressure groups and adjust particular programme of action against thc set rulis and prccedetrts; (iii) would they liketo go out of the normally prescribed proccdures and take initiative iF they were convinctd of the right cause of the case, and (iv) whether they woiild consider any popular public demands even ifthey rnight not stand favourably the test of rationality.
The scores of the respondents on lhese questions wer€ tabulatcd and the analysis of the high, moderate and low values
l5l
Officials' Percepion of Behavioural Values attached by the officerf
p.
t52.
From
to
ratiopality is shown in Table
I
the
I
Table
it will
6'l
on
:
be clear that the. behavioural
officers' of all tbe three departments of both the The highest State Governments are more or less similai' compromising of favour nutUtt of officers who are neither in favour with political leaders and pressure groups and- are not.in of the demands of accetling to the pr€$suros and non'rational
nui*, of
political I'eaders and idterest groups to satisfy them is noticed in the Irrigation departments of both the State Governnrentsjip., cent rospectively in Punjab and Madhya Pradesh' -ie l"J even opening il"il;g.t; alignmeoL oi irrigation channels orgroups oorir, at a piint exclusively at the request of certain elevation' of "" of p.opt. ani not on scientific considerations There is no rfop., *., &re very often not feasible at all' in fhe percentages of officers allocating moderate and variation -""i*t iu case of those . belonging to irinit ' r"r' rationality punjab, while such iriin"tioo department of the Governmont of ;;;;ii;"t itr case of Madbva Pradesb are considerable' l
in favour of making The next dighest petcentages of opinion other development the in notioed are t.f"""ti"" 46 per cent "qideviaiions Alout gove(nmentst Orort*."" of both the and Madhya fr.a!e1f Electricity t-"J*"dt"" pf both the Punjab
wirh the il"liJ. o" nbt favour makiog compromises usual rational from deviate ir*pVp"fi,rc"f leaders and bv the ird percentages The remaining :#lili"b;t' ^sharedof both officers of this.class iigi ""0 low values attached by less in the samq proportions' pressure
,tl
St"t" Governmcnts, m6re or
Revenue of both In the non-developmental department of of officials percentages th;-i;; Govdrnments, the largest two deve' in: the i-*iiJ utt lower than their counterparts per respec' cent 36 and 4l iopt.o,ut departments) i e' officers These rationality' tioety nan" low perceptions about pressures io favoui of making doviations as a rEsult of officerr of percontages "r" soufcos. Thi remaining ir","ot
".ri"*
t52
Bureaucratic Values ln Devetoiment
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OfictuN' Pcrceptloi of Eehaviowal have moro or less oqual values tions in the two States.
l53l
Values
for high and modorate percep-
The reason for high percontage of offlcerslof both the State Governments having such values for rationality' partioularly
in the devolopment
departments is obvious.
After
having
feasibility and potential of rural olocrification in particular diroction or of flow of irrigation water according 'to ievels and fertility of soil, there was hardly'any further scope of ohoosing an alternative alignment as a result of pressures or courpromises. The scopo of change was, in fact, vely limited in the development departments whereas the officials of the revenue department had some discretion to depart from the established norms of revenue collection in cases of low agricul'' tural productions because of natural calamities or other assessed the
ciroumstancog'
The perceptions of offrocrs of tho various State Govornments and d-partments on rationality are illustrated by the- Bar Diagram No. 9 on P. 154.
The ?(2'(chisquare) values for variations in the pattern of perceptions of officers of the three departments of the Punjab and Madhya Pradesh Governments in iespect of rationality per come fo 5.3 and 5.8 respectively, which are insigriifi'ant at 5 no significant is there that ' cent level of prabability' This means comelation in the perceptions of of0cers of the developmental and non'devclopmental departments of the Punjab and Madhya piuaesft Governments so far as the observance of rationality in values of the deoision'making process is concerned' The scale The be' departments' rationatity aro thuJ independent of the Governments havioural pattorn of all officers in the two State they are are more or less similar irrespective of the fact whether activities' engagsd in devolopmcntal or non-developmental Authorlty Apart froo the structural factors the performance of -of0cos is of relationisjfluenced by tbc authority they enjoy and the kind
154
Bareaircrat lc Values in Devclopmefi
BAR DIAGRAM RATIO NALITY
NO. 9
PATIALA
OISTRICT
High Modero te
Electrici ty 0epor tmenl
Low
|ligh M o
derot?
Irrigotion
0e
por tment
Low
High Moderole
Revenue 0eportment
Low
MORENA DISTRICT
High Modero te
-__Etectrici ty Depoitment
Low High M
oderote
Low
',
trrigotion Deportfient
High Modero
Low
ti
Revenue Depor tnent
Oficials' Perceptlon of Behavioural Values
155
junior ship that consequently follows between the senior and the to noc€8sary offcers in the samo deparfment. It is, therefore, of officers strata evaluate the rolationship between the diffsrent as an index of the total efficioncy of thc organisation as also thc prevailing authority system. In order to get their perceptions in this respect a number of questions were asked to the respon' dent offictis of tho concerned depattments. Whether there did exist a feeling of superiority/inferiority complex in the government hierarohy; what was the attitude of senior officcrs towards
their subordinates; whether the senior officers liked to meet their subordinates; and whether enough authority was del€gated negativcly by the senior officcrs to their subordinates (which is a The evaluation' sucb of nucleus the formed iramed question) 6'2 on Table in presented and are analysed were rtctiuta
,.ptiet p. 156.,
complex The pattern of authority and superiority/inferiority of departments non-dcvelopment obtuining in development and percep' value high with uniform the GovJrnment of Punjab is
the develop' iioos utongrt 63 and 62 p€rcentages of officials in 57 per cent and ment departments of lrrigation and Electricity vary perceptions in the Revenue department, The moderatc and high Taking amongst 30 to 39 per cent officials only' the moder-ate vatue perceptions together we 6nd 4 per cent 7 and-perc€ntage varying betweeo bl und 96 per cont leaving bureauc' of onty for low value perceptions. Thus the degree an authoof ratisetion so far as is evid6nt through the existence the
of rity system is quite apparent in the-various departments Government ol' Punjab.
IntbocaseofMadhyaPradosh,thehighvalueporceptionsin Al per cent tn, O."efopttnt depariments vary betwcen l] anA of half per c€nt .f*iog to less than 50
of offioials_the average officers in all the three of the respondents, The other h-alf of the towards modorate i.p"il.itt tuare their perceptions more authority ,system' Thc values than towards' low uutu"* oo the greatly vary from department to i"i,ti" "f perceptions does not in in. r..ri"e oi t-" periiitv / inferioritv complcx It Patiala' in Morena is tiss tuan what optains in
;il;;il"'ili iii
"ffi.i"f,
t56
Bt"reaucratic Yalues ln Development
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ception of
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iour
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Yalues
r57
thus se€ms that thc officers in thc Govornment of Punjab display a greatef buroaucratic authority than their gounterpafts in Madhya Pradesh, Bar diagram No. l0 on p. 158 illustrates the position. However
it is clear from the analysis that the cxistence of
an authority system is not the close pteserve of a particular department in a particular placc, The general characteristic and pattorn are similar both for the development and non-development departments in both the govornments. The little variations that are observed may reflect the differing attitudes of the officials to the nature of work performed. The development departments in Madhya Pradesh being new and in a state of
growth,'show less tendency towards bureaucratisation. But as the oxample of Punjab illustrates, this trend is likely to pick up once the things get settled on the gr6rind. 169 1l(chFsquare) values of the characteristics of perceptions of the officials in Punjab aod Madhya Pradesh are found to bc ouly 2.26 and 3.?7 respectively which are insignificant at 5 per cent levcl of probability. There is, therefore, not much of diffcrenoe in the existence of the authority system either in tbo dovelopmental or non-developmental departments of Punjab or Madhya Pradesh. Only the percentag€ of officials giving low values to this characteristic in Madhya Pradesh is slightly higher than their counterparts in the Puojab in all the threc depart' ments.
Oficials' Perception of the Attltude and Eehapiour of their Clientele
In order to evaluate as to what the officers thought about tho attitudes .of the public and their clientelo towards them aod their work, two questions, wbether the citizens who came to seo the officers for tbeir work were respectful in thoir behaviour while making demands and whether the visitors were uonocessarily apprehensive of the officers' attitude and dealings were sim' ultaneously put to tho respondents. Value scales were attached to the possible degree of replies, whethor the visitors were highly
.Bureaueratic l/alues in Develapment
158
BAR OIAGRAM NO.IO AUTHORITY
PATIALA DISTRICT
High M
o
dero te
Low
Electr
igity Dtpqrlment
High Mod€ro te
Irrig o ti6 n Deportment
LOW
High Modero te
Reven ue Dep or tm€n
Low
t
MORENA DISTR ICT H
igh
Mo dero te Low
Electrici ty Deportinent
High M0dero te
Irrigo tion Deportment
Low
High
Moderote
Revenue Deportmen I
Low
Percentoge
Oftcials' Petception
of
Behalioural Values
159
respectful and whether they officials' or somewhat or not apprehensive of the and tabulated were "* of the resprndents oiiained The- porceptions t. ate given in Table 6'3 on p' 160'
or mcderatety t"Jft *.r,
respectful
ot not
**f
tft
not very much
different amongst
The pattern of response is States' to different depattments in the two ,rtJ lini..t Ur"oging -ma;ority to respect gr,eater of visitors showed il r*;',h;i a meet to were also apprehensive the officers and at the same time of the two Stato governdepartments various of the
;;; ;il;;t;
an environmentof an autho' by the feeling where the clientele group is dorninated
ments. It is somewhat natural in
ttir'tt*ti the officiats and in order to .il ii;;**.t;:ecking favourrirom argue or annov done thev should notunnecessarily ;;;;; -; 'p.i*n' to *t'o could afford to be less respectful inJ .ii..ttl' upper the of the officers g:neralll belonged,to l, the visitors *as uiso this category "*'i."""fr"iJ of the clientele' ft ^of strata as ihe officials at an informal level with contact ili;; il; rather is of tle ctientete in this categorv
#;.-'il"
;;;portion small'Thefindings,r'o**"',doinawuyindicate.thepersis. uulot' of th: colonial times when tence of the old lraditionui not as dispensers of favours and the officers were mostly tookJ the servants of the Public'
of visitors was more or less similar The pattern of the attitude irrespec' the Governm:::jj-1""'ib towards all the officers in 40 to -ofthe department' .About tive of the neture of the work of Punjab the Governnont' of
l;";;;;;-;iit"
uri""
l*J'i.u'iil",-;';."::l'*J::'-3;?1y,";':ffi :::l;,:3&i? cent repcrted t
to 33 Per to have hardly developed any to 29 per c:nt officials ttpoii"J them' informal relationshiP with IntheRevenueandElectricityDepartmentsoftheMadhya reported :o t"J s+ ger "l:L1:T,:*t
Pradesh Government'
;
i;',
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cent ot tne o onlv 39 Per toararotion'
".'"1
said that rnt pt*entage of officers.who 33 between varied *rpectful the visitors were olly tn:."ri.iy
"'at.,
160
Burcaucrutlc Yalues in Dcvelopmeat
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to 39 per cent. Only 8 per cent of the officers by the Eleotricity Department in the district of Morena felt that the visitors held low respect for them.
in
Thus on the whole there was no significant difference
the
attitude and behaviour of visitors coming to meet the ofticers of the three departments of the two Stato Governments and the pattern was more or less similar, but it appears that the visitors' uttitod" towards the officials was governed by their own socio' cconomic brickground as also by the amount of authority weilded bY the officials. Officials' Anitude s towards
C lient ele
present study, whether involved in developmental or non'developmental tasks had frequent contacts with the citizens, The citizens visited officials with innumerable complaints, problems and requests. In order to examine the clientele' orientation ofthe officials, a set of few questions was
The officiats chosen for tho
put to the respondent officials of thc three dcpartmcnts of thc iwo 'State Governments about thc fre quency of their meetings with the members ol the public. An inquiry -was also made whether the meetings were superfluous so far as the performance of the officials was concerned, and whether the officials thought that they had been hetpful to the visitors' The replies wcre tabluated and are presented in Table 6.4 on
p'
162'
From the Tablo it will be clear that in the State of Punjab a targer percentage of officials felt that the citizens did come to
the officials with regard to their problems' Tho combined peroeotage for the offroials who felt that such meetings were very Lften and occasional came to 92 with respect to electricity deplrtments against 95 of the irrigation department and 82 of revenuo department. The corresponding perccntages Pradesh werc 77,71 and 79,
in
Madhya
As regards the question whether thc meetings were superflous the corresponding figures of the officials' perception were 95, 87 and ?8 in the State of Funjab and 71, ?7 and 80 in Madhya'
162
Bureacratic Valucs in Devsllpfisnl
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163
164
. ,,. .
..,; ;.Bv,ecatarattc Y..plaes ,irt'Q.evelogur*.pt
Pradesh, These figurbs indicate that the majority of of6cials felt that the meetings with the clido,tele were largely unproductive. HoweVer, when tbe officials were confronted with the questions whether they thought that they had been helpful to rhe visitors, a majority of them _had indicated that they had been cither very often ol occasionally helpful to the visitors. This is indicated by the corresponding official percentages of 96, 95 and 82 respectively in the three departments of punjab and g5, 73 lnd 87 in Madhya Pradesh - who ttiought that way. In the case of Punjab the Xz.test gave significant results, which is indicative of the faot that the attitude of helpfulness of tho officials was correlaled and thc officials, whether they belonged to the developmental or non-developmental department, held tho same ataitude towards their visitols. This was not the case in Madhya Pradesh where the l2.value was insignificant.
of the citizens with the officers of the State Electricity Board tnostly related to the issue of Dower The meetings
for lighting, energising agricul:ural pumps and for other industrial uses, reported over-charging in the bills, unauthorised conneptions, misuse of tbe power points, disconnections
connections and restoration of electric. connections which were discounted in accordaace with rules. In case of irrigdtion' water,
lhe common complaint was the issue of notices of irrigation dues when the fields .were repoited to have rece,ved no irrigation
water. The ofrcers,, on their part were of the opinion that the fields were irrigated and the beneficiaries denied having received any irrigation water supplies. : Irrigation dues were lcvied on all the beneficiaries simultaneously when water was released for the fields" These disputes wEre very often reported to us during the field enquiry. In caie of the departmeot of Revenue, although primarily assumed as a noudevelopmental department, their officers had to certify the ownersbip'oF land for evcry kind of fertiliiers, pesticides,.. agricultural loans, benefi ts to small and marginal farmers,:1oins, from land mortgagc banks for agricultural pumps,., machineries, etc. Very often the citizens were found to be moving after the revenue ofrcials for all types of assistanca in their developmental programmes. The cliontele of course. oxpccted the officials of the rovenuc assistance, like
Oficials'
Fer cep t ian
of Behavioural
r16J
Values
be helpful to them in all the cases. But the officials bound as they were by thsit rulos and reguiations could.not 4lways be fully helptul to the citizens. Howdver, by and large-iin cases where there was some scope of flexibility, thc officers in thc Dopartment of Revenue did adopt a postur€ of. help.towards their clientele. dcpartment to
If
the fcrceptioris of officcrs that the numerous mectinss
between,thc m and th€ clientele were superfluous is acceprei, it s€ems,that a.majority of .the meetings ea4 be done away with
I aving more tims for the officers to attend to their work in all the three dbpartments of the two State Governments. However, it is doubtfol whether such an action on the paft of the' officials may imbibe a s€nse.of confidence. in the cliontelc that their problems were being looked into and would keep.them satisfied. Sometsort of public relations work then booomes neoessary at this: level.'
The potceptions about the: frequencies of meetings between thc officials and pitizerts, tfreir.. su.perfluousness or necessity and helpfulness werr used as indices forexarnining the extent to which peoples' grievances wsfe removed. The relationship between the administration and citizens in development and non-developrr,e nt administration of thc two States over .a numbar of issues discussed .in such meetings revealed the weakness of the inherited systern of administration. In 40 to 50 por cent cases of disputes in,Punjab and 50 to 60 per cent cascsin Madhya Pradesh t-te .grievances of citizens could be removed by such rirectings. In the remaining cases disputes or problems could not be solved to the satisfaction of the eitizens.
r
:
This was because of the number of references or cross references that had to be made by the ofrcials and the painfully slow process of the:-systgm of accounting and auditing. Proliferation
of a large number..of governmental agencies also in some ways cogtributed, to coofusion among the clientele. Lack of cootdiartidn bctwres these agencies was often responsible for delays and frurtratibn of citizens.
166 Officiatd
Bureaueratic Yalues in Devehpment
O
entation to Changeland Target Achletements
developing society, it is essential that the o$ciali in the taslc of rapid socio'economic transformation shoukl develop the necessary orientation for change. In tbc context of tho present study it was, therefore' coosidered necessary to put a few questions to the respondents to analyse their outlook towards chauge. In addition to the officials of thc departments engagod in the developmental tasks, evbn the officiats of the so'called non'developrnental deoartments aro also required to work for new targets of ,"u"oo" collection for frnancing the functions of thc State Cou.romrnt. As such thosc ofrcials also nee d to have new outtoot towards their dutics and responsibility' Thereforc both the categorles a set of qu€stions was posed to officials of questions in oldepartments in the two aelected States' Six with himself ihis se.tion : (i) whether the official is coucerned good potentially ionoro.ing the attitudes of unwilling but devtlopment ; targets ,i r"pr"o*r. for achicving high -of achieving plan for pursuasion and initiative iiii *t.trr., his his work ; (iii) whether inru.t* it any indcx of thc officiency of ,i""u.t i.u.t"nt of targets/resultc was considered, important mean deviation from in nir J.ou.rtent ovcn though it might (iv) he be rated high would them ; rules of achieving .ri*i"g-"tftitoea which he was for targcts/results tbe dcsircd if i. governmebt a set'up existing tho in ,LrpooriUte; (v) whsther achieve the to oitizens helping in ,.rir"i,."( much interest (vi) whother he considored his and ri..rn.a resultsftatgets ; put ware ho dealt'. whom people with rJsoonsititity to guide the under study' The respcnses wsrc tabulated and i""it. "mtitit presented in Tablc 6'5, on P' 167'
In a
engaged
it is noticed that thc p€rcentagcs of high bv the oftcers of three ;;; ;i";; to ch-angc/target orientation 41 and 48' Onlv between vary States iri"uit."" in the two of Madhya departmcnts development i" Ii. *t" of the two just than lcss per i.€.' cent 48 are l0 pcr 'Fnt;. i;r"A..n the valr.res This small 45' aad 4t bctitecn vary ;ilt*it. the values targets about clarity of absenoe an to variation may be due Curiously enough
{.
r67
Values
}fficials' Perception of Behatiourat
s 5}
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168
Bureau eratfe Values In Develoi ment
of
developme nt/revdnue collection .and difrculties faced in achieving them, The perfornianc€ qf an individual official depends upon the clarity of understanding of the organisational goals, not only collectively but also for individual work areas so that enofgies are fully diregted towards realjsation or achieve_ ment of the desired goals. Withdut clarity of goals the organisations may be in confusion and the iodividual role incumbent may be in darkness. It may he that the targets for an electr! fication/irigation zone may bave clarity at a highor level, but it might not have been broken up for smalter zoies over whioh the lower level officialb have their jurisdictions. Moreovcr agricultural production prograpnres are the direct responsibitity of the agricultural and extenslon staff in rural areas. power and irrrgation are th€ only supporting inputs foi achieving tho defined targets of agricultural production. Similarly Revenue ofrcials are also given certain. targets, but litigation, court int€rference and other difrculties often impede the achievement of
such targets.
Another feature of the data in the Table is the uniformity in the distribution o' moderate and low values of perccptions towards the change/result orientation. Tbe middle ievel scores range between 3l and 37 per cent while the tow scores vary between 19 to 24 per cent among the three sets of ocfrials ia the two States, During our discussions, quite a number of ofrcers connected with agrioultural development stated that they did not feel it their duty to inffuence the attitudes of iire people and that they were not concerned to pursue their clicnteL to cffect the desired changes in the agricultural pattern, Such an attitudo was also reflective of the fact that the promotion in the service was determined mostly by seniority and not by the results/targets achieved by the.officers. In fact helping a citizen in development activities was nbt an item on whigh aoy scores was to os r€corded in the character role or service record of the officials. ,The development programmes werc mostly in tho nature of dictates from above, and the officials had only to comply with the instructions given to them. It was, ther(fore, natural to exp€ct a middle level score from the respondent officials of our studv. Change and rosult oricntation of the o$cials which ir an impor.
Offi et a Ls''P i r ctp t io h, if Eehai'inili dfV alu e s
1'&i
tant charateristic af developmental bureaucracy for bringing about successes in development performanco, does not s€em to to be deeply ingrained among the officers of the three departments of the two StatCi as the highest a:nd moderate values noticod are only to thd extent of the average of 43, per cent and 34 per cent respectivgly. Thus the oommitmeot to the developmental work of rhe ofrcers of the development departments thpt. we hpv.e stu{ied, was found to be only partial. Bar Diagram No. tl oh p. 170 illustrates the position, For the range of variations of higb, moderate and low value peroeptions of the officers of the three departments of tbe two State'r', Golertirnents, .1'-(ehi-square) vatues for-. Patiala and Morena werc insignificant at 0.67 and 1.49 respectl_vely. Therc was not, therefore, much difference amongst the scale values of
the officials of both developmental and, non-developmental departments towards change orientation.. which was independent of the naturo of the departmental work, preceptions amongst
Participative Decision M aktng
Most of the development_ plans in a society have to be sitizFnorienfcdj as it is the citizen who ultimately derives the benefit of development, The ofrcials working in thE fields are supposed
to be nearet to the citizens and have, . therefore,. a continuing responsibility to acquaint the higherro$cials about the problemi at thqir levelg, sinqe they have to initirte policy actions abou{ the over-all assessment of the needs of the people. In the development context, therefore, frequent consultations aud
participative decisions between higherand- lower levels of ofrcials are ioevitable, The administratign dees.well in taking participatiyc deuisi6ns where the lower level offcials have the opportunity of bringing to the notice of higher officials thb desires of a common man. The pay ofl from participative , decisions may, at times, bring about improved performance of ' activities neant to ensure lhe maximum good f,or the maxirnum 'number of persons. Howovor, many a timo
thr
sonior oficials havc a tendoncy
.
t70
&neas$atic
@
Values in Development
BAR OAGnAM NO.!l PATIALA USTRICT
Higf.
te
Elcclricity Oeporlrncnl
Modero te
Irrigoiion Dcportmrnt
Modero
fo* High Low
High Modero t€
Revenua Depor tment
LOW
MORENA DISTRICT High MOderote Lo rv
Elec?fici
ty
Deportmsrf
Hrbh
Modero L0w
lrri go tion Depor tnient
Hrph
Moderota Low
Rlvenue Oepg nrnt
Ofraiatr' Pe?csplioil
of
Behavioura!
Values
l?I
they think to take policy decisions on their own initiative as be taken not can and iiJt".'n o.iitions are highly techuical by them to as conveyed oo tt. busi* of what the people desire highthe that supposing i"*.t-tt-t"" of officials. Forinstance, pulses are to yi.iOiog programmeo of paddy, wheat, oilseed.s or of the Power officials Patiala oi Morena, the l. feeling that the "J"i,LJt"t have Boards or the lrrigation Department may see programmes to it is for them to decide and to challa out for impleare available whether more power oi water inputs There. is no forrnal times' appropriate at montitrg the schemes involved in the or others officcrs freld r""i"-." to consult towards tendency is tittle there Thus process. decision making thc various of officials the amongst purti"ip"tio. Oecision making dpPartments
The incidencc and frequency of partioipative decision-making To the question' abongst tho officials were thus investigated' any participative taking lb* o-ft.o do the officers Deet for respondents are the decision, the replies that were reoeived from srrrmmarised in Table 6 6 on P' 172'
From the Table it oan seen that only about 20 per cent of the offioials in the two developmant departrnents of the Government
of Punjab felt that meetings for participative de-cision'making offioials of tho took piaco occasionally while 16 per ceat of the The percentage perception' Revenue department had similar partioipative decisionfor meetings of offioors who observed that Irrigation the 74 in making were rarely held 'varied from departlent and 69 in the Electricity department to 55 in the Revenue department'
In the case of Madhya Pradesh the percentage of ofrcers' occa' sional meetings for participative decision'making who thought that thcso were important was somewhat larger than in Punjab' This peroentagc ranged between 38 to 4l while about half of tho ofrceis belongiog to both the development and non'dovelopmcnt departments said that meetings for participative dccision' making wcre rarc.
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l'alues
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This uttimately'means, that littl6 .importbnc€ rh given to tlG holdingof meetings for participltive decision'making in Punjab wbileitisprevalenttoasmallextentinMadhyaPradesh.
Ir we 6nd tbat it is insignificant for both Punjab. rThe process of participative Pradesh and Marthya of developmental and non' independent thus declsion-making is are engaged in. the officials develop.nentril activitios that On calculation of
A factor which is conducive to good relations betwecn the senior and tbe junior officers as well as of better role perfor: mance of the subordinate is the extent to which members of the. organisation participate in the decision making process. The tendency towards divorcing field experience from the deci' slon-mdking authority lends unreality to decisions. Such a situatio.n can be avoided by encouraging participative decisions in consultation with the .persons who possess expericnce and knowledge of the ficld situations simultaneously. But this bas not been the caso in the Govcrnments of Putrjab and Madhyb Pradesh, especially in the Electricity and lrrigation departments of the Government of Punjab.
l"l4
Bureaucratic Values in Deve[opmeni
to be ingrained in the dcvelopmental activities of tho two States. For quickeniog the pace of development it is ncccssary that plrticipativo decision-making should be encouragod by the offfcials io both the States. SUMMARY The findings of this chapter clearly in.licate
bureaucratic model made
by
is at times in conflict
that the
classical
with tho tlemands various pressure groups and other institurions on the
decieion-making process. Thus behavioural cbaracteristios revolve around
About 46 per cent respondent offcsrs of the punjab and Electricity Boards arc not tn favour Y.lalf ;-.:tsh of pressure groups/political tnro rne demandc leaders and deviating from the usual rational pro.rrs. Thc remaining per_ shared by.high and low values attaehed by these T""",:l.-t. orncers to"::. this value, About 56 and 5l per cent rcspondents of the Irrigatiou Departments of punjab and M, p. Soara. not.in f.vour of making deviations from the ratioiat-tera*our "re under pressure
l
;i;t;;;
Is. coopromise on the par! of oftciars cssetrtiar for deverop. -;;biguous. Bcnt ? The answer to thc questioo scems d bc Dorclapmont ic orcentiaily cA""g*rirot6d.-
i;
;'dynamic
.
lfictals'
r?5
Perceptlon of Behavlourul Values
has to be situational situation of change ths decision-making Tho dcvelop situations' of changing ;;;;;;;"*it. tJ the needs service' a senee.of with **i"f Ltf. has to be accomplished thc arisc occasionally may Thus in the percent eontext thore andrules Procedures for n..a of flexiUility in the application of adequate and r"otA ilrl, of agriculturai proiluction through tlmely inputs of power and water rogourc€s' the of In the non-developmeotal Revenue departmext -both and 56 Pradesh' Madhya Stntr- Co"rrotents of Puojab and low values to ratiooal:' attach 5l por cent of officers respeclively
no significant association among non-development dopartoin.urc or the development as well as valucs towards ;.",.;iil;oStaio Govetnme ts into thelr all ssts of officers seem bobavo independently
*nort tuttt is
;;.*il;;
."ir"""ii, ""0 so far as rationality is concerned'
pattcrn of the exercise of authority' again' tho of both of all offrcers in the three departments Compared to "f'l.;;;i;;; ti, li"r" g*..nments is uniform and62similar' por c€rrc of officials and ;i;; ;"i"-. perccptions of 63 and departments of Electricity respEctively of the lrrrgation percentage in thc iorta"ri"dc";.rn..ot, int corresponding perceptions were moderatc The Revenue Department was 57'
In
matters
thc perc€ntage Uy 3O to 39 per cent officers while raoged authority *irtt to'" value perceptioos about from4toTonlY'
.-"".r.1 ;;iflilt
IocaseofMadhyaPiadeshthopercentageof-officialswith varied between
to authority and stalus hi;; ;;i;" perceptioos '"g"i"tt the pcrcentag; of officcr-owith modcrate' ;I""J';, wi'th percentage of -9nce11 values ranging from 26 to iq' fno only' 27 btt*o"l l9-* low porceptions to autioiiiv 'ooqtd department to depart' Lt The percepticns did not nu'y *o"n
ment. The feeling of ofrcials in Morena
*u'
seniority/infcriority .complox amongst tt" than that in-the- Patiala district'
is'
ot-p"'"tptions of authoritv il;;;;i;;itt'n for officers ot'atuifopttot and ^ non'developmcnt similar "a'"p"ii*.i t
pr both th€-state
-Governments'
howeveeo
, ' ' Durcaueratic
{76
ltclues in Developrterrt
. The reason for this type of distribution of value scales to authority pari be traced to,the fact that massive .investments in i*igation and elecrrification over
ha\ie " ";;b; ;iieyears functional p*, l*l U.,"o in their
creat€d oumerous new units at the fie{d tevel., agoncios"dealing with irrigation una
r:rL
complexity ;and have carved Jot inriepcndent :11q of .and their operation. In the abscnce hofizontal coordinatiou with other agencies, "f *"0.,huu, the farmers ,o ,uo about for the fulfilment of theirneedsiril'ooJo.pu.rran, Each department is an empire by :: an:the.r" of itself and concentration such authority within tt. nigfr.,liu.f -percept.", officials obviously reflect the value curing the field survey. areas
Decentralisatio.
fr
y""'ri*ji, i-,i uppropriute olihe offisials,
remcdy to diluto the authority. oriented ""ii"ri outl-ook
Along with the authority orientation
of
officers,
their perceptions of ths attitudes and behaviour of the beneficiaries who come and meet them- were also studied. ihe pattern seemed to be alike. About 40-44 per cent uirimru to U. offcials of Punjab Government were iiighly respectful towarrls.
oiil.
tbem white 30-33 per cenr visitors ,";;;il;;;ii and 22.28 per cenr visirors had d.;;;-;;;l contacts with the officials.
respectful
infor.oar
In
Madhya pradesh 50 and 5i per cent visitors to the officers in the Revenue and Etectriciry ;.0;;.;;;";r Morcna had highly respectable auitude ;"*"idr'il;;" *tit" onty 39 per cent of the visirors ro, the Irrigation Oepariment fraa high respect for its officers, il;;"";"J" o'r""rilrro,, moderate respect for officars Ih" for tnu-1.U.Jr"ir,of ofn".o "irn varied between 33 to 39 ot "ff . ui,ito,s wrtn #"' lt":';ff ::rr:f'- ff of Etectrical Engineois of the district .f M.;;.-
ll; ;**;;
About one.tbird
of the
#:l;,
:-:Jj
visitors to th€ departments of two State Gcvernments uncler studythree were fouad to be 'iJrcentages moderately respectful ,o offi.ers." il. -Cou.rni."ii, . :h.. of citizens meeting the officials io tt. -';;;;,. ,oo;ub varying between 38 to 40,, were hidt only _.
the
Oficisls' Perccption of Eehauioural
Values
r77
26.ts 29 per cent of the vidtors to the. ofrcials in Punjab showed lcss respect towards them against 15 to 20 per c(nt of Madfrya Pradesh. It se€ms that the porc€ntagos of visitors attaching hi!h, modium ot less degrees of respect for the o$cials was in
.with the p;rcentages of the visitors who *ere and hiehly, moderatply and less apprehcnsive of the 4ttitude governments towaids State two of the beiaviour of tne officers thom. On tho whole there was no significant inter'departmgntal aimur"o*, in thc attitude and behaviour of the visitors coming io meet the officers of the two State Governments in tho threa
coirespbndenco
departments under studY.
In all. the three departments, the citizeo'clientele had often to Put$ab visit the officials for their problems' On an average io ofrcials of the 64-69 per cent of visitors came to meet tbe percentags development department while the corresponding About ;;;i.dl;**" 46 and 39 in case of Madhva Pradesh' developmeot depa ments Si-OZ p"t centof the officials of the of Punjab thought that th€y^were occasion' of "i,t*'C"o.toment aifv'iJprui to their clientele nhile in the Governmeftl Pradesh 45-50 per cent ofrcers tho-lclt- that'fhey i,flaftv" 'o""rtionally helpful to them' About 27'36 per cent *".. and 3l'33 per cent officers of the Govetnment of Punjab felt that visitors Pradesh Madhya officets of the Government of percentage of small a only while ,". in.m very often About them' visited seldom ""r.'i, ;ffi;i"it thought that the clientele to the helprul were thev the officials thousht ;;:;;il;;, to tbe belonging "f Dersons who visited them very often' -Officers Punjab' of Government of tbe in their^ attitude of helpdiversity greater showed however, of- helpfulness with officers' fulness. There wis sttong association departmetrts aI LJn the development and non-development in Madhva so not was it whilo ;i;; c;"tent of Punjab significance' of as revealed by the Xe test
;.fiil;'a'ip*,t*"
il"J"tn
per cent and 46'6.2 pcr cent of the visitott very often and.occasiontllv that could bc done "d;;;;;;t-ttr! were superfluous' li tbese meetings ifr...;ri"gt
It
was also felt by 26'39
l?8
Bareaacr atlc Yalues ln Develapriteat
away with, tbe officers would
be left with moro time for their
work. Regarding the offcials' orientation towards change/or achieving targets, the highest percentage of officers belonged to the two development departments of Madhya pradesh who gave high scores to this characteristic (48 per cent). Ia case of Punjab, the pcrcen tage ofthe officers working in thc develop. ment dcpartments giving high values to this charactcristic varied between 4l and 45, This small variation, was, .at times, found to be due to the absence of clarity amongst them about the targets of development/revenue collcctiou and practical difrcul-
id
achieviog these targets. While tbe targets for the electrification and irrigation programme may have been drawn up at a higher level in consultation with the Agriculture Departmcnt, which is responsiblc for inoeasing agricultural
ties
production, such an orientation, does not seem to have percolated down to the lower level officers. Similarly many difficulties like litigation and court interference, ctc. have impeded the achievdment of new targets laid for the Departmenr of Revenue.
A sort. of uniformity in the distribution of moderate and low values of perceptions about change/result oriqntation hAs been noticed in the case of ofrcers under study. The middle level scores range between 3l and 3? per cent, while the low scores vary between 19 and 24 per cent among all the officials of the three types of Departments in the two States. euite a number of officers were of the opinion that they had nothing to do with changing the attitudes of the people,and pursuading lhem to change the pattern of agricultural practices wasnot their responsibility. They placed it squarely on the omcials responsi_ ble for integrated agricultural proiluction programmes. A possible reason why the officials did not develop a right attitude towards change oricntation was due to the lack of motivation as their promotion in service was largely .governed by the principle of seniority. Some officers were even of the opinion that their role was only to carry out orders lrom the above and it was not for them to pursuade tho peoplo in adopting
.
OffciaPs Perception of Behavioural
Values
179
new methods of agricultral prod.uction. Tbere was, however,not much difference amongst the officers belonging to dcvelopment or non-development departments as is characterised by the low and insignificant values of X,s. This is true both for Punjab and
Madhya Pradesh. In fact the developmental activities in rural electrification and irrigatiol works seemed to bavc been carried on without the involvement of the people. Tho traditional administrative cfforts to provide nec€ssary support to developmett of agriculture codtioue to function.
Whether the officials believed in participative decisionmaking was the other aspect of bureaucratic behaviour that was examined. It was found that the iocidence of the meotings of thc ofrcials taking place very often for participative dccisions werc thc lowest and varied botween 5 and 12 percent only. Occasional mectings were reported only by 20 per cent of thc ofrcers of thc development departmcnts of the Punjab Govcrnment and 39-41 p€r cent of the officials of dcri'elopmcnt departments of the Madhya Pradesh Govcrnment, and 36 per ccnt of ths non-development department of Punjab. In good majority of cases, meetings wcre seldom held in the dcpartmants
for taking partioipative decisions. A study of tho officials' perccption about decision making in the two States leads to believe that the, process of individual deoision-making at. higher lovels of bureaucracy by individuals aloae has not yct given place to partioipativc decision making. A comparison of the perccption of the officials in the Statc of Punjab and Madhya Pradesh does not support thc hypothesis that development in the statc of Putrjab was in any case the consequence of participativo decision proc€sses
making process
.
7
Clientele's Perception of the Officials' Performance
Rural and agricultural development is essentially an iutegratod process of change. It is a cooperative ventute between the people desiring change and the members of the official machi.
who bear the responsibility to briog about change. A healthy relationship between the people and the ofrcials is thus necessary for ojrtimum returns in the developmental activities. As it is ultimately the peopte who are in th.e true sense the nery
judge of
the
performance
of
the offcials in
development
administration, it was considered neccssary to ask the benefciaries about their perceptions of the officials' actipns, thsir role performance and capabilities. For this purpose, in each of the tbree blocks, three villages were selected, and interviews an{ ,discussions on these issuos were held with the people including beneficiaries and r on-beneficiaries (but knowledgeable persong Iike teachers, traders, gram panchayat officers, office.bearers of the co-operative societies etc.). Structured questionnaires and unstructured questions were used in the field survey for noting their reactions about the process of development thtough the governmental set up. The Gbnerat Problems of the Villagers
in the Two States
It will, however, be appropriate to first look at some gcneral ptoblems of the villagers in the areas of our study in the
182
Bureaueratic Values in Development
two states, Thc main problem in the irrigated villages where programmes of high-yielding wheat and rice, oilseeds and pulses and sugarcane have bcen taken up rvas thc seepage of irrigatioc water and waterlogging, which tended to damage the crop on both sides of the canals. Thus considerable areas were lost for
agricultural production. Anti-seepage actions were already being taken by tbe State Govornments other kinds also needed to be taken
and further actions of
to
enable tbe farmers to mako the b€st use of the land adjoining the canals and the distributories. In Punjab the laying of pucca water courses, which can save upto 20-30 per cent loss of water through seepage had already been undertaken in the Bhakra canal systems and is continuing on a phased basis. In Morena, the position was different and lining of the Chambal Irrigation network was not under consideration, although Kumari Drainage Programme was in operation for a year. As a result of the inauguration of the iotegrated rural development programme as an important step aiming at the transformation of the rural economy, the farm growth rate has risen considerably lately in both the districts under survey,
In Patiaia a new boom in agricultural producrion was in evidence. Programmes of .high yielding varieties of wheat, paddy, cotton (long and medium staple) groundnut, sugarcane (moetly for loc4l consumption of gur), maize, bajra, gram and oilseeds were intensively operated which brought all round prosperity to the farmers. The scramble for land ovcn at tho exhorbitant prices intensified quarrels in the families and created. disparities in the incomes of land-owners and landless cultivators. The canals in this area supplied water for 8 days at a stretch and irrigation was allowed upto 110 days in a year. A farmer had to take his weekly turn in 168 hours of watering at a stretch, The easy availability of agricultural loans, mechanisation of oultivation and harvesting, strong marketing and warehousing arrangements, etc. have all oontributed to the, spectacular growth of agricultural production. Although about 80 per cent of the water pumps were reported to be diosel operated, which in a way increased thc input cost of agricul-
Cllentele's Perceptton of the Officials'
Performance
tural products; but even thon the farmers
183
mado substantial
profits from the agricultural products.
in Morena, on the other hand, the ptogrammes for paddy development had not taken roots and people were thinking of alternative Kharif crops like jowar, maize and bajra. Groundnut cultivation was not popular and sugarcane production was only picking up in Jaura Block. The only sugar mill in the coopcrative sector at Jaura had its own problems relatiDg to production, marketing and prices. In the Rabi sowing season Mexican wheat was irrigated thrice, mustard and gram crops wcrc irrigated twice and once respectively. Arhar was widely grown in unirrigated areas, and available pesticides were trct applied to mustard crop unless it was badly damaged. The warehousing and marketing organisations were weak to meet the needs of tho farmers. The Central Cooperativc Bank
having 65,000 ntembers in 140 cooporative socioties and 8 marketing societies had its problem of recoveries which was as high as 52 per oent. In spite of the lead bank (Central Bank of India) advanccs and public financing societies having programmes of Rs. 44.5 crores, private money lenders werc having good lending business, financing mostly oilseeds and pulses of the srnall producers, while the Food Corporation of India was found to be mostly dealing with the large and medium farm' producers.
The innovative outlook reflecting the farmer's readiness to treat agriculture as a commercial enterprise and their preparedness to evaluate relative costs and benefrts of alternative
of different
outputs constituted the in Madhya Pradesb. The willingness of farmers to conduct practical experiments and take risks for arriving at a better combination, of inputs was noticed more in Punjab than in Madhya Pradesh. The scarcity of capital, information gap in agricultural production and host of other factors did not altow the farmers in Madhya Pradesh to be as progressive as the farmers in Punjab. Only a minori8 of farmers in Madhya Pradesh were progressive enough to accept changes in agricultural production technology' Thus the
inputs and profitability
most important variables in Punjab but not
184
development offioials in
Bureaucrutic l/alues in Develooment
this gector had a continuing responsii
bility to render technicat advice, make availabli
supplies aud credit facilities agricultural income for them.
requisito
to the farmers, leading to high
The lrrigation Faciltties
The performance of the officials engaged in the developmental tasks in the present study related mainly to thc sectors of rural
electrification and canal irrigation while the offcials engaged in non-developmdntal tasks related to the Department- of Revenue, which in many ways assisted tbe citizens lor securing
various agricultural inputs in addition to the performance of their normdl revenue duties. Some of the beneficiaries of the canal water irrigation system in the selected nine villages each in Punjab and Madhya Pradesh were canvassed three q-uestions in respect ofthe water input, They were: (i) whether the people were able to get timely supply of water from the canals; (ii) whether the canals had adequate supply of water when irrigation was needed; and (iii) how well were the canals main. tained. It may, however, be noted that the villages with poor performance did not have any canal system and the villages with medium performanco had usually the benefit of irrigation canals only in certain peripheral corners of the viilages which meant only partial benefit to them from irrigation. The villages at the tail end of the canals did not havc adequate supply of irrigatlon water as the supply depended on enough availability of water. Villages with good performance that were selected had usually the benefit of canal water irrigation. The replies about the availability of water for irrigation purposes ,.r. tubulut.d and are shown in Table Z.l on p. 185. Tho replies are highly corr€lated. About 45 per cent of tho _ villagers in Patiala seemed to have the f€;ling thal they teceived timely supply of water and the samo percentage of peoplo said that the canal system bad adequate water when irigation was oe€ded, while a little bigher percentage of people (54) said that the canals were well-maintained. About 37 per cent of the people held the other extreme view that rhc
Cli*telels Pcreaptlan of thc Aficials, performance
l|) bo qt
g !)
q
ca.
t'c.t
c{
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..i (\
(J
oo
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.}
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o9
185
186
..
Bureau$atic Values
in'
Dcvelagnent
aaDals had rarely adequate supply of water
for irrigation. A little lower pcrcentage of people, viz., 28 pcr cont ob,served that the canals were poorly maintained, Thus one thing seemed certain, that if the canals had adequate wat€r, the supply was regular. In the years of the scarcity of rainfall, the engiueers of the Department o[ Irrigation admitted that
the supply of water was inadequate and very little could be done about it. In the district of Patiala 54 pcrcent ofthe villager respondents were of the opinion that canals wcre wellmaintained, In Punjab the current i igation programoes consisted of strengthening the prosent canal system so that with the availability of more water from the Beas, the avail- . ability and water discharge oight be furtbcr augmented. In Morena the situation was not very much different. A
slightly higher percentage of people viz., 50 and 58 per c.ent of the villagers respectively were of the bpinion that they rcceived timely supply of water and that the canals were wellmaintained; but only 44 per cent peoptc thought tbat the canals had adequate supply of water. The Madhya pradesh Government was trying to make more water available from the Chambal to people. About 26.27 per cont of the respondents -the
in
Morena district thought thet the canils hardly gavc timely supply of water as they did not .have enough water and that
the canals werc poorly meintained. This extromo view was held consistently by 26-27 per cetrt of the respondcnts. A middle view that canals generally supplied enough water, and had adequate irrigation watei and that the canals were adequately maintained was shared by 22,29, & lTper cent of the peoplc respectively. But the trend of replies in this area closely resembled thc pattern noticed in Patiala,
,
The engineers
of the
of the canal
of both the tbe working
Department of Irrigation
State Governments were found to be satisfied with
systems. But they had to worlc under certain limitations. Firstly, the availability of water in the canals varicd from year to year. Thus io some years tbey coutd not satisfy the beneficiaries fully. Secondly, the fields situated further away from tho canale and distributaries naturally
could not get as much watcr as the fields situated closo
to
the
Clientete's Perception of the
Affeials' Performance
r87
canals/distributaries could receive. These factors werc reported to be responsible for the wide fluctuations iu the pcrceptions
of villagers about the
performaoce
of
the officials of
the
irrigation dePartment. Power SupPIY in the Rwal Ateas
Almost similar questions were put to the villagcr respondents regarding the supply of power and its interruption and utilisatioln for- development of agriculture. Replies to the thrte questions: (i) whether the supply of electricity -was regular; ('ii) wtrether'there were frequent interruptions in the- supply of (iii) whether po*". wu. utilised by the farmers for po*rr; "oO production as it should be, wcre analysed ioti#J"gii"ultural and are presented in Table 7.2 on p. 188'
It
seemod
that the supply of power was more regular in
per cent Patiala than in Morena. About 46 per cent and 26 ofthe villagers had the two extreme perceptions of the supply u.G..goiu. and irregular respectiv€ly wnite l+ per cent and of the villagcrs of Mot"ou respectively said that +O p"tt supply "iot the power supply was regutar and irregular. The power Morena' was, however, fourd to be somewhat more irregular in Three processes-the generation oi electricity, its transmission and distiibution are involved before thc supply reach€s tbe uillug.rr. The greater the distance of the power transmitted' the gr""i"t *ut thJ transmission loss'and more was the interruption in transmission on account of the rains, storms' etc' Thus' thc ' the availability of power was more continuous in the villages- of ,district oaPatiolu tuuo in thc villages of thc district of Morena'
in the supply of power 5l and the 24 per cent rcspeotively of tbe villagers io Patiala gave .impression that the power supply was often and rarelY erratic' while the corresponding percentages of villagers holditig Regarding the interruption
eively. On the
of
Morena were 36 and 44 resPecwhole, the supply of power was more regular
similar views io the districJ
188
Bilteauerdtic l/alues in Development o
rp
q
c)
I
()
li ru
o'
B
a! o$!+ =rfv
a.t
o\
C.a !+
C.l \o (n
F-
.o
t-
*OOOO
\o a.l
co
6l
c-.1
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.:
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ca
a(sl
\o
ral a.,l
F .O 0.
he-
(t)
C C
'O .=
Bg +E;T .=€
Ht +g "'FLCJ.
.s
3
ol
E";.:e €; ;E.:E .UE E.e E i*' E r *. :': " 3=E ;:-E 3,E!'sxE:
s€;si5Fg
.i
c.i
.",
Cltentele's Perceptio:n of the Oftcials'
in
Performance
189
Patiala than in Morena and the breakdowns were less
frequent in Patiala compared to that
of
in
Morena.
for agricultural production wa$ in Morena. In Patiala multiple cropping praetices had already taken roots. Thcrefore, tho land was never allowed to remain fallow. In Patiala 5l The utilisation
power
more popular in Patiala than
p€r c€nt of half the respondent villagers used power for agricul' tural production while it Morena only 29 per cent or a little
mole than a quarter of villagers utilised power for increased agricultural production. However, 38 per cent of the villager iespo4dcnts in Patiala and 45 per cent of the villaget respon' dents in Morena thought that power supply was not being properly utilised, as it sbruld be for increased agricultural production. This made considerable differences in the perceptions of the villagers of the two States about the performance
of the officials. Villagers' Percbptions rabout the Copabilities of the Oficials
Thc capability of the ofrcials in planning,
energizing and
stimulating developmbntal efforts in the fictd are on trial today. The obligation of the officials to serve and not to rule has by necessity brougbt them closer to the people and has broken the past traditional isolation of the ruling class. An attempt was, tberefore, made to find out the perceptions of the benefr' ciaries about tbe working of the officials both in the policy' making areas and the day-to-day administration.
The perceptions of villagers about the functioning of the and non'developmental depart' ments . of the State Governmentd of Punjab and Madhya Pradesh were recorded duting our field visits to the villages' The answers to negatively keyed questions like (i) do you agree that the, planners and policy-makers wcre not well' informed about the real probiems in villages and set unrealistic targets; (ii) do you agree whether there is delay in the decisionmaking at highet lcvels; and (iii) whether it was true that thc offcials were not well-trained for developmental activities were
officials, both in developmental
190
Bureaucrutic Values in Development
tabulated and are presented in Table 7,3 on p. l9l. The negatively toned queetions were put to the villagers because it was thought that they came nearer to the impressions of illiterato and semiliterate villagers.
From Table 17.3 it will bc seen tbat about 40.42 per cent of villagers thought that the planners and policy makers were well'informed about their real problems and the targets aimad at were not all that unrealistic. Such perception about the officials prevailed both in Punjab and Madhya Pradesh. About 35 and 38 per cent villagers thought that the planners and policy makers of Punjab and Madhya Pradesh rospoctively were ignoraot oftbe problemc that the villagers faced and set deve. lopmental targets. Only 20-25 per cent respondents took the middle course by saying that the statement was only sometimes true. There was practically no large difrerence in the perccptions about the officers of the two State Governments. Of course a large majority of the villagers were themselves ignorant about the kind of education, training and experience of the officials that werc required of the developmeotat ofrcials.
Regarding perceptions about delay in decision-making at higher levels, 55 per c€nt of the villagers in puojab and 49 per cent of the villagers in Madhya pradesh thought that there was avoidable delay in taking decision. For. instance they mentioned that on occasions where there was no fain aod the crops were in need of irrigation water there was considerable delay in the decision to release the water in canals. In sucb cases the villagers had to approach the local politicians for putting pressure on the officials to have the irrigation water released
from the canals. About 2? per cent
of the
villagers
-both in Punjab and Madhya Pradesh reported oceasional delays in taking such decisions. Only 18 per cent of thc villagers of Punjab and 24 per cent ofthe villagers of Madhya Pradesh believed that ofrcers did not delay in taking decisions. Thus it would be seen that only a quarter of the respondents had good perceptions about the ofrcials so far as the decision-
l9l
Clientele's Perception of the Oficials' Performance B
o oo
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Bureaacratic Vgluet in Develaflflew
making was concerned, had no grievance against them and thought that there was no delay on their part in taking decisions,
If this perception of vilagers about the officiars is read with the perceptiou of the officers on participative decision_making
(Tables 66 in Chapter VI); we find that ooly g unJ-:l per cent of the oftcers (on an average belonging to tfr. a.u.foprnent and non-development departments) of the Governinents of e,foluU Pradesh respectivety felt that decisions were very 1,11_YI,OO*
olten taken quickly after due consultations. This was against 18. per cent ofthe villagers in punjab and 24 per cent of
viltagers
in Madhya pridesh
the
u'no inoolr,t ;ha;;le ;fficers did not delay in taking decisions. Thus the iifl"g".r, about the officers in respect of decision.mating "piri"n
wa"s *ori Urtt., the perceptions of the officers thems;ru., Jool ,h"i, tnuo o*o decision-making
process.
The farmers in both the Statos are in general industriouS and
receptive
to modern
techniques of cjtivation, y"i tl.y many probtims and rhe ,oa;Liiiy of them "r" sult dtsplay an element of distrust againsi -administrators. The perceptions of vilragers about the odciars' education and might,have grown out of the general distrust they lt:,totT nold towards the oftcials, The conflict between the,slow bureaucratic pr.ocess and the rapid requirement of development might have also distressed the viflagers anO iuir.a-aooUt, uOoot their.administrative competenco and capabilities. Neverthersss rt seemed that the full utilisation of education, training and experience of the ofrciat, *... il ;;;1il ;rceptibte of punjab and Madhya pradssh.' A gap in .1 ljl]f"rs^ . rne lh", perception of villagers about officials and the latterns,own perceptions was, therefore, found to cxist. besieged
with ,
The Behaviour
of the Officials
We have already examinod the perception of fhe ofrcials on the attitude and behaviour of the clientele towards Chapter VI (vide Table No. 6.3). Thsir peroeptions them in whether
:
elienlclei s Perceplia:E ofthe Africiats'
Performance
:l'93
they were apprehensive of the officials behaviour bave also been discussed in this Chapter.
It will be deshable at this stage to examine the reciprocal expectations of the villagers about the behaviour of the
officials. To know the perceptions of the villagers about the behaviour and helpfulness of the ofrcials, we put two simple questions to the respondent villagers. They wero (i) did the Government servants behave with beneficiarics and non-bene' ficiaries politely and (ii) were the officials belpful to them? The replies were analysed acd are presented in Table 1.4 onp, 194'
that only about 13 and 14 per ceut of the villagers in Punjab and Madhya Pradesh respectively thought that the ofrcials behaved impolitely with beneficiaries and non' bene0oiaries. About 4l per cent of the villagers in Punjab and 45 per cent in Madhya Pradesh stated that tho officials bohaved politely with villagers while 46 per cent and 41 per.cent of tbe villagers of Punjab and Madbya Pradesh respectively were r"poited to have said that the ofrcials behaved indifferently with them. There was, therefore, not much difrerenoe in the behavioural pattern of tho officers of the two States'in the eyes of the villagers' Let us now examine the reciprocal state' ment of the ofrcials about villager's behaviour which was given in Table 6.3 of Chapter VI. Hero it was noticed that about 24 per cent olEcials iu Punjab stated that tho villagers w€re flot respectful to them. This was against l3 per ocnt of the villagers'
It
is siguificant
impolite perceptions about the officers of the Punjab Government' perceptions wcre not, therefore, exactly reciprocal. There were also some gaps in the reciprocal perceptions of villagers and officials so far as the middle values were concerned. As against 32 per cent of the officials in Punjab claiming moderate levels of respect from visitors, 46 per cent of villagers found indiffe' rent levcls of behaviour from the ofrcials. Here again the villa' gers suffered from reciprocal treatment' The unhealthy citizen'
The
relationship
in a
developing society like India this imbalance in th€ two sets
"driorrt."tot has, pcrhaps; been responsible for
of perceptions and diference in the reciprocal perception levels of tho higher values. Against 42 per cont of the ofrcials of the
r94
Eureateatlc llalues ia Development tte) CI dE
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Cliente.le's Perception of the
Ofictals' Performance
t95
Governmcnt of Punjab who thought that they got high respects the visitors; 4l per cent ofthe villagcrs in Punjab thought that the officers were polite aod reccptive in dealing with them. On the wholc however this did not point to good communityadministrator relationship, in the absence of which the devolop. meotal work is likely to sufer.
-from
In Madhya Pradesh, while
14
per cent
of tho
vitlagcrs felt
that tho officers whom they approacbed were impolite, 15 per cent of omcers felt that villagers were not respectful. Here the absence of courtesy at both ends neutralised each othar. Against the 4l per cent of villagers flnding tbe ofrcials indifferent, 37 per oent of officials found the villagers moderately rospectful., There is not much differcnce in the reciprocal percoptioos. Against 45 per cent of the villagcrs in Madhya Pradesh who found the officers polite in their dealirgs, 48 per cent of the ofrcials founrl that thcir visitors wero respectful. So in Madhya Pradesh, it was generally a case of the same reciprocal percep tions between tho villagers and the ofrcials. Yet another aspoct of the villagers' outlook of the ofrcials' bohaviour $tudied was the pefception they held about their being helpful to them. Reciprocal perceptions of both the clientele and the officials \ were obtaioed. Acoording to th€ statements of the ofrcert thsmselves (see Table 6.4, Chapter VI) in tbe Department of Rcvenue in the Government of Punjab, l8 per cent of the officers Tesre stated to be seldom helpful to the people, while only 4.5 per cent ofroers ofthe dovelopment departments were seldom helpful. The average of the three percentages was 10. Against these 10 per cen! average of the officers in Punjab that thcy could not be helpful to the villagers as their requests were very ofteo uoroasonable, 34 per cent of villagers maintained that tho officcre wero unhelpful. Thus there seemed to be a big gap in tho porceptions of ofrcers and the villagers in this regard. Against an average ofl 54 per cent of the officers in Punjab saying that they oould be helpful to the people only occasionally, 38 per ceot of the villagers in Punjab found the officers sometimes helpful. Ilere again, a large gap existed between thc perceptions of the officers and the villagers. Such weak
196
Bureaucratic Yalues in Development
linkages impede the goal achievements and ,ol" prrfortuuc" of various incumbents engaged in developmental work. [low' ever in Punjab 37 per cent of the officials considered that they were often helpful to the people while 29 per ceut of thc people thought that the officers werc 'often' he'lpful. Here again, a small gap existed in the perceptions of the officials and their .
clientelc. Madhya Fradesh on the other hand, 18 per cent of the officers, on an average, thought that they could not bo helpful to the people who scught their help, but 24 per cent people thought thal the officers were rarely helpful. There is, thus, a confidencc gap of 6 per cent" Similarly, 44 per ccut of the officers in Madhya Pradesh, on an average, thought that they were sometimes helpful to their clientele, while 38 per cent of the people found them neither helpful nor unhelpful. Here' again, there was a confidence gap of 6 per cent, but this was
In
a confidence gap in the reverse direction. While 35 per cent ofrcers, on an avetage, considered themselves helpful to the people, 39 per c€ot of people thought that the offioials wer€ helpful. These cross tabulations of perception reveal considorable gap in the relationship of the officials and tho poople. But tho gap is narrower io Madhya Pradosh compared to that
in Punjab. Thc existence of such a confdencc gap could possibly be explained by the fact that in order to be belpful,.the officials had to distinguish between the just and legitimato demands of the viilagers from their unjust and illegitimate demands. Ever while meeting their genuine and legitimate demands, the officials .had to follow a certain set of rules and procedures, which often led to dolays, thus giviog the impression in the minds of tbc villagers that the officials w€rc not doliberatoly helpful towards them.
Villagers' Perceptions of the Officials' Aptitude Work.
for
Development
We have aheady analysed the perceptions of the officials about
,
Cllentele's Perception of the Officials, perfonnance
t97
their wlrk. [t was considered necessary to know from the villagcrs as to h)w they felt about ths aptitude of the officials for doveloprnent work. There is no doubt that the structura-l €omponents of bureaucracy considerably shaped the nature of aptitude for development work. How far the old attitude of maintaining the statu$ qdo has given place to the lotion of service to the people was investigated and assossed by a sirrple questioo put to the villagers-do the ofrcials in your opinion have the aptitude for development work? The replies are presented in the following table,
TABLE
7.5
(Percentage) Questions
Patiala
Morenu
Usually Some- Rars- . (Jsyq- Some- Rare-
times ly
Do the officials, .in your opinion, have the aptitude for development work?
lly
times ly
25.6 32.8 4t.6 30.5 33,9
35.6
Aicording to the percEptions of the beneficiaries about thc aptitude of the officials towards development work, only about 30 per cent of them in Madhya Praclesh felt that the oftcials usually had such an aptitude as against 26 per cent in punjab, tlowever, the perceotage of beneficiaries who did not think that the officials had that aptitude was 36 in Madhya Pradesh as agarnst 42 per cent in. Punjab. Thus the perception of the villagers in Punjab was at divergence with that of the beneficiaries in Madhya Pradesh, although the stage of developmeot was much higher in Punjab thao that in Madhya Pradesh. Was it due to the lack of oommunioation between the ofrcials and tho villagers or due to some oth€r reasons? This can partly be explainod by the fact that after an initial success, the developmental work in Punjab has lost some momentum. It may also be duo to the fact that io Punjab many of the farmers were not
Bureaucralic Yalues in Development
198
of the ofrcials in relation to or water supprles' Being somewhat well off and
dependent on the small favours
eloctricity
needs could acquiie a pump set to serve their own
"ir".Jin"v on the official obligation' It was not' ;;;;;i;;ptnding in Punjab had low
tU.t"iot., wiihout riason that the farmers o-rr*otioo, about the development aptitude of the officials to what obtained in Madhya Pradesh' "otpar.C
as
The Villagers, the Officials and the Political Leaders'
officials' After having analysed the villagers' perception of the, proper thought was perfor.anc!, behaviour and capabilities,'it to' attitude and io investigate another aspect of theii outlook the about perceptions warCs tne'officiats' This related to their *-Lp.rutioo that they rendered to tho officials, their commonly
villagersl held belief that the officials were indifferent towards the toem over needs, and the kind of pressures they could exercise through the local political leaders'
Villagers' Perception of their Coopetatlon with the Officials
in energising and directing developeffective cooperative participation an ment programmes require of the bureaucracy' A rapport effotts of the beienciaries in the has thus to be created benefioiaries the and between the officials front' devevelopmental tho on performance for securing good Institutional arrangements
Failure to foresee the needs of the people not only has adverse effect on administrator'clientele relationship' but also causes set'back in the achievements of developmental targets, 0fficials often complain that they do not get ready coJperation of the people iu their developmental efforts' In ordir to test the validity of this outlook of the ofrcials a ques-. tion was put to tho villagers whethsr they felt. that they were
not generally cooperative with the offcials in theirde volopmcntal The negatively framed question was asked because the oflcials of th? Irrigatiqn Department generatly found the benefioiaries whose fields were situated near the distributory canals drawing more water for their fields before the fields situated at a distance could be irrigated. The officers of th€ Department
effoits.
Clientele's Perception of the Officials'
Performmce
199
Etectricity also found that many persons did not cooperate witb them to have the electricity poles for rural electrification installed in thcir fields' Thus thc negatively framed question was ,asked as some of the ofrcials reported that the people were not coop:rative. The replies, however, were as follows:
of
'
TABLE 7.6 Villagers' porception of their cooperarion with the officials (Percentage)
A general complaint of the officials has been that
the people are not
Perceptions
Districts
Question
Patiala
5.6
l
l.l
83.3
Morena
4.6
4.6
90.8
co-
operative with them in their development efforts. Do you agree?
The respoadents very often resented this question, They maintaincd that people were always prepared to oooperate atrd it was the officials themselves who were mostly indifrerent to th€ people. In Patiala 83por cent of the respondents said that it *ut oot true that the people were not cooperative' In Morena also 9l per cent of the respondents replied in the .same way' Only veiy small percentage of people of both the districts genorally and partly agreed with the statcment' Officials' Apathy
If it is assumed that th€ people were on the whole, co-operative, how was it that th€y were not getting their legitimato needs ful-
fllled througb the ofloial channels? Wer€ the ofrcials indifferent and cut off from the people and tbus igndred popular demandi? The replios received from the rcspondonts io this respoct aro tabulated below.
200
Bureaucratic Yalues in Development
TABLE 7.7 Aloofness of the Officials from the Villagers (Percentage) Percepttons Question
Do you feel that the offcials are cut off from the people and ignore popular demands?
District Yes patiala
34.4
Morena
38.5
Perhaps
29.3
No
32.2
. It would be clear from the above Table that the perceotions of the villagers about the indifferent attitude of the oificers were almost equally divided among the three value scales in the districts ol Patiala. Tho picture of Morona was not also very much ditrerent, There was only a little weightage towards the first scale of value at the cost of the middle scale. The villagers felt that many ofrcers were inaccessible to them, According to them, the officials thought themselves to be different from the public whom they were actually supposed to serve. Even when they were on field visits in the villages to assess and uDderstand some Iocal problems they tried to maintain distance from tbe villagcrs and rcmained aloof. The pool section of the villagers could never mix with them. The officials were seen moving more with the ir own circlc of administrators either of equal or of higher ranks. In such cases the villagers thought that the general attitude of the officials towards them was one of indif-
ference and aloofness.
Political Leaders and the Officials-Their Inter-relaiiont For studying the inter-retations betwcen the polltical leaders and tho officials we put a question to the offioials whether they felt that pressufe sas put to thom through the political leaders in the discharge of their duties. Thb rcplies as tabulated were as follows :
201
Clientele's Perceplion of the Officials' Perfumance
TABLE 7.8 Political Ptessure on Officials (Percentage) Perce?tions Question
District Mostl )' Sometimes Seldom
Do you feel that Poli' Patiala 8.5 tical leaders often Put pressures on you in the Morena 14.8 discharge duties?
of
40.6
50.9
39.I
46.1
1'our official
As is clear ltom the above table, only about 9 and 15 per c€nt of the offieials in Patiala and Madhya Pradesh seemed to be of the opinion that pressure was brougbt upon them through the
political leaders in msst of the cases. This meant tlrat the offcials, on the whole, were not under great political pressure' But 4l and 39 per cent of the officials thought that political leaders did sometinres put pressure on them. Thus, about 5O per cent of the officials thought they were somewhat or fully pressurised to take decisions on tho basis of political considerations. In such cases very often the officials found themselves in a dilemma to distinguish betw€cn the legitimate and the unjust demands accompanied by such pressures. The officials had to cope up with a difrcult situation where they had eithcr to face the wrath of the superior officiers if they took inappropriatc
decisions under political pressure or annoy the political Ieaders iF they bypassed tieir rcquests as being unsound and inapplicable tothe local situation, At least a section of the political leaders did cxpect the ofrcials to heed to their instructions and even
circumvsnt the usual norms, procedures and the supcrior officers' instructions in order to carry them out. Many a time this created difficulties and stalcmate in the implemeDtation of development policies' The only rcdeeming feature was that atleast 50 per cent of the officials thought that political leaders hardly dabbled io the administrative activities both in Punjab and Mddbya Pradesh.
2O2
Burcaucratic yalucs in Development
Simultaneously, we also oxamined tho villagers' perception
orientation towards the effectiveness
of
of
tbeir poiitical leaders
TABLE 7.9 Villagers: Perception of the Influence Political Leaders on Bureaucracy
of
(percentage) Perceptions Questions
often
l.
Do you have to take help of political leaders in meeting your demands for
agricultural
times
Patiala 11.2 37.8 Morena 9.2
37.4
51.0
53.4
needs
fulfilled through the officials
?
2. Do you find '
admini-
strators more accomqodative to political leaders?
Patiata
12.8 4A.6
Morena 17.3 35.6
46.6 47
.l
in getting their work done. Two questions were put to tho These were, (i) Do you have to take the help Itjlig-tT: porrtrcal teaders in getting your or
demands for agricultur;i devolopmcnt needs fulfilled by the ofrcials and " (ii) Do ; you find that the administrators are morc accommodative to the political lcaders. The replios were expected to give the recipro. cal people about thi influenie of political of -perceptions leaders on the officials. The result of theso questions is shown in Tablc 7.9 above.
It was noticed that in both patiala and Morcna districts only a small percentage of the respondcnts, I I per cent and pei 9 cent respcctively felt that thcy had to take the help of political leaders to get thcir devclopmcntal needs fulfillcd, ibout g8 and.
)n7
Cltentele's Perieption o.f the O.fficials' Performance
37 por cent of the respoadents in Patiala and Morena further addod that th! peoplc had sometimss to takc holp of political leadcrs for mecting their needs for agricultural pfoduction ful' trlled through the o6cial chanoels. On the whole, in about 50 per €ent oascs, the peoplc very often and sometimes ap'proachcd the political leadors with rcgard to the fulfilment of their needs and 'yet in thc other 50 per c:nt of cases the villagers did not necd to use political leverage to get their work done. This perception of lillagers was patallel to the pcrceptions of ofrcers towards their 'use of political in8uence in bcth the States. However, on the 'basis of p:rsonal discussions with the officials, it was noticed {hat a majority of them were negatively disposed towards them.
to
determino {o this context the natural follow.up was 'whether the adminietrators were rtrore a@ommodative to the
politieal leadcrs, Thc trend of perceptions was similar to ths About 13 and 17 per cent respectivoly of tbe ,rrillagers in Patiala and Morena thought that the officers were
'carlier qucstions.
,usually accoomodative to politioal leaders because they had the :apprehension that they migbt try to spoil their sorvicE records or
€et them transferred through thoir influence with the Minister€. This type of fear sooetimes compelled the ofic€rs to complying with thc requests of the villagers in Patiala and Morena political {eadors. It seems, as thc findings in Patiala and Morena reveal that only 13 and l? por ceot of the ofrcers felt it necessary to teep the potitical lcaders satisfied. The number of villagers who, believed that administrators werc sometimes favourably disposed to political leaders wsre only 4l and 36 per ceot ofthe total ,respondents in Patiala and Morena respectively' About half of the people, therefore, thought that the administrators were rarely ,.accommodativo to political leadsrs and acted on their own dismetion or in accordance with the guidelines of the rules and were quite in agreement with the 'regulations. These observationg peiceptions of the officials as given out by them (vide Question No. 10.4 of ths Ofrcers' Schedule in Appsndix lI)-
SUMMARY 'This chapter has been coocernod
with
an
analysis
of
the
204
Eireaucrati c Values in Developmenl
villagers' porception of the officials' performance, behaviours and capabilities aod their own cooperation with them. We have secn that villagers are generally faced with diflerent types of problems both deveiopmental as well as regulatory in relation to agriculturil production. Tbeir. response, to tho officials' behaviour are very much determined in the way they get these problems solved at the hands of the ofrcials. The two big problems for irrigation in both Patiala and Morena districts are the watdr-logging on account of seepage of canal water and high water level. Rice, pulses and groundnut are fast replacing bajra as the principal kharif crop. Nursery' raising and transplantation of paddy on staggering basis has helped production of paddy in both the districts. In Patiala the Food Corporation of India has an efficient organisation for lifting paddy and wheat while the marketing and warehousing arrangements for paddy are vcry weak in Morena. The marketing of ipulses an(l oilseeds are mostly in the bands of private traders, The price incentives have lately given a push
to the cultivation of crops in both the districts. Higb yielding wheat has made tremendous progress in both the dis' trics and as a consequence the farm growth rate has considerably risen. While the farrners in Punjab are very progressive with multiple cropping practices after evaluation of relativc costs and benefits of different crops, the scarcity of capital . and information gap in agricultural production has prevented the farmers in Madhya Pradesh from taking risks ' for better combination of inputs to yield greater outputs. Only a small section of the farmers of Madhya Pradesh has seen influence of the technological changes taking place in the country and is willing to experiment rvith new techniques of agricultural production with the help of the concerned officials. The present study relates to the role of development officials belonging to the sectors of canal irrigation and power and the Revenue Departments of the Punjab and Madhya Pradesh Governments. Although the Revcnue department has been assumed to be non.developmcntal, it is significant that the offieers of this Department are also indirectly promoting develop-
Clientele's Perception of the Oficials'
Performance
205
ways. But for the cooperation rendered by the omcers of this supposedly non-developmental mental activities in many
department many developmental activities could
not have
been
accomplished.
In the district of Fatiala 45 per cent of the villagers maintained that canal water was available whenever irrigation was needed aod the canals were certainly well'maintained, But at the same time quite a good section of beneficiaries viz.,37 per cent of them held that water was not available to them in times of their irrigation needs and the canals
did not have enough
supply of water. This difference in villagers' perceptions was on account of the fact that all 6elds could not be irrigated at the farthcst end of the canal system. This' was also admitted by the
irrigation ofrcers. Only l? pei cent of tho villagers took a middle stance that water was generally available ior irrigation purposes.
In the district of Morena about half the villager respondents said that water was:ivailable for irrigation needs, alhough only 44 per ccnt ofl them held that adequate supply of water was available from the canals. The suptly of power was more regular in Patiala tban in Morena. About 46 per cent of the replies indicated that power supply was good although 5l per cent of the people held that there were interruptions when
power was needed. About 24-26 per cent people held the opposito view that power'supply was not available when they needed it and there were interruptions of power supply. Only 26-28 per cent replies followed the middle perceptions.
Irregularity
in
power supply was more evident from the
replios of respondents in Morena, About 44 per cent of the people said that power was not available when they needed it and 36 per cent peoplo said that interruption in power supply was frequent. Opposite views were also expressed by quite a good proportion of the people. Forty per cent and 44 per cen t of the people respectively said that power supply was not regu'
lar and that interruption
in
power supply was vqry frequent-
206
Bureaucratic Values ln Development
Tho middle course of perceptions was expressed per ceDt of the people.
by only l6-20
With regard to the perceptions of villagers of the officials' knowledge of developmental targets, about 40-42 per cent of ihern thought that the ptanners and policy-makers were not well-informed of the problems of villages and the targets aimcd at were not all realistic. Such a perception about the officials prevailed both in Punjab and Madhya Pradesh. About 35 and 38 per villagers in Punjab and Madhya pradesh respectively ,cent were of
the opinion tbat planners and policy makers
were
ignorant of the problems which the villagers faced and concequently set unroalistic targets of development. Only 20-25 per cent respondents took the middle course by saying that this was only'sometimes' true. Thero Statc variation in this perception.
was practically
no
inter-
Regarding the villagers' perceptions about delay in decisionmaking at higher lovels, 55 per cent of the villagers in punjab and 49 per cent villagers of Madhya pradesh thought that there was def nite delay in taking decisiq$. Occasional dclay was reported by 27 pet cent villagers of both th€ States. Onty l8 and 24 per cent villagers respectivcly of punjab and Madhya Pradesh did not notice any delay in making decisions.- We havc already seen that only 8 and 9 per cent officers, on an average, in the Governmcnts of Punjab and Madhya Pradesh rcspectivaly met very often for taking participative.decisions. The divergence in the two sets of perceptions was considerable. That tbere was occasional delay io taking decisions at higher levels is clear from the fact that 20 and 29 per cent respectively of the officers in Punjab and Madhya Pradesh reported to have occasionally taken decisions individually without any consultation, agreeing more or less with 26 and 39 per cent of the officials of the two Statc Government who thought that decisions.were taken on participative basis. Thc perccption of villagers about the officers and those of the ofticers about lhemselves did not differ much. The villagers have a tendency to consider all their needs to bc
C I ient
ele's Perce pt ion of the Officials' Performanc e
207
of tho early fulfilment of thcir ofrcials' de-mands are belied by ihe delay on the part of the on they become restive. The dclays ocourred becauee the man the spot was unable to take decisions on his own initiative' Consultation witb the higher ofrcials involved delays' Even when thore was atr opportunity for the higher o{Fciale on visit urgent.
When their erpectations
to the field ofrces to iake on the spot decisions, there decisions were more frequently deferred. Thus the occurrence of delay' mainly on ur"ooot oi conceotration of decision'making at the highei levels had an adverse effect on the perceptior s oi the citizens about the bureaucratic method of work' possibly be fully. awalo of but in tho tu. lJo""ioo, trainiig and oxperience of the officers' ia villagers of the per cent ?0 oerception of about 80 and wer€ not oftce^rs the respectively Foo;"U uoA Madhya Pradesh for the development work' However' 80 per cent of that €irher "iiili*i*o iil'"in.r$ r" roth the State Governments thought utilised or fully was iu.iiJor"tioo, trainiog and experience between gap good a was ooiv -oa.tutufy utilisetl. Thus there find' to not difrcult is reason iu.i"" *.t. oiperceptions' The and industrious are general' il. i;;;;; io'uotn'tte states, in manv have They improve thoir economic conditions' ;;il;; officials' when their expectationg ;;;il;;1$solved bv the li. L.ftta, they develop anil display an eleoent of distrust Although the villagers could
not
closeness bctween ;;;;; ;i. ofror,. In the absenoe of anv the growing distrust ilu na*ioirr."tors aod their cliontela'about the education'
aioungst the latter raiscs tliubts thcir part ir"i"iii""O""perience of the officials' although on are not training thdk that their qualifications and il" seemingly "m""r"G ilJ"g-pt"p.irv utilise
208
Bureauerctlc Yalues in Devektpment
of the two State Governments behaved impolitely in their officials dealing with them against af af plr-".n, of ,1" villagers respectively punjab in
that.ofrcials behaved politely another
.16
and
4l
""A pr'uA"J *f,o ,uia anO lUuaiyn with the p*plr.-
per cent of the villagers
and Madhya pradesh rsspectively thought that bebaved
indifferently with the people.
any.inter-state variation
in
this respect.
i"
addition, of punjab ihe officials
i" ,1" 3r"i"
it.r, *u,
irlu,
nurOty
.-About 24 per cent of ihe officials in punjab had stated that villagers were not rcspectful to then ug.i"riii.'lj per cent of the villagers' percep{ions of tbe omcers"", U.f"g irpJtt". The perceptions were not, therefore, reciprocal io-puriiaU. There was also some gap in the middle vah,es of perc.piion,
villagers anC the officials. Against 3Z'p", 'cent of tn" of tfu officials in^Funjab claiming moderate r.rp."t'f-nr:uisitors, 46
per cent of villagers found indifferent levets of behaviour from o6cials. Here again, the villagers suffered froni reciprocal treatment. The unhealthv citizen_administrator relationship, the inherited tegacy of the pasr administration,;;;il;.
the
some of the reasons for this imbaLnce in the *"ipi""ity- Luhaviorr.. There was, however, no appreciable aifere'oce "f reciprocal iri tie of the high order in runiaU wrrere 42 and 4l I1?,i"ltr::t per cent ofrcials and thc oeople respectively showed reciprocity of polite behaviour.
'againsl 15 per cent of the officers per. ^"1:y^.93r.1,Pradesh, that the vi[agers werc nor respectful, 14 pcr cent of ::1 1"J: rne omcers were reported to be impolite by the villageis. There seems-t9. be some rcciprocity in this respect. Aiainst 4t per cent.of the villagers who-found ofrcials ioiin r"otliz per cent officials_found the villagers modcrately respe"ttut. wlich is not much of a difference in reciprocity. H";;;;;;'"fie 45 pcr cont of villagers in Madhya pradesh foundlle omcere polite, 48^the per cent of the ofrcials found the visitors respeotfut, In Madhya pradesh, therefore, the perceptions were reciprocal.
to the Department of _Ilr"O:t* ot ths oftcers in the Governmen
cetrt
Revenue abour 18 per
of punjab worc rcporied
Clieitele's Perception of the Off cials' Performance
209
to be seldom helpfrrl to the people, while 4 to 5 per c€nt of the officers of the development departments only were rcported to be unhelpful and 34 per cent of villagers held that the ofrcers were unhelpful, Thus tFere was a wide divergence in Punjab between thi two perceptions' llowever, agalnst 54 per cent of the omcers in Punjab reportiog that they could occasionally be helpful, 38 per cent of the villagcrs in Punjab found the offcers only sometimes helpful. Here again a large gap existed. Against 37 per cent of the officers considering themselves helpful to the people, only 29 per cent of the citizen respondents thought that they were helpful. . Such perceptions certainly weakened the relationship between the officials and the people. Although the findings on the whole do not support the hypothesis that the developmental bureauoracy is indifferent to the citizens' develop' mental needs butit clearly indicatos none too happy at citizenadministrator r'elationsbip lvhich results in an attitude of distruet towards the officers and produces unfavourable perceptions amongst citizens about tho officers.
In Madhya Pradesh 18 per cent of the officers p€rceived tbat they werc helpful to the people' -but 24 per cent of the people thought that officers were rarely helpful' Similarly 44 per crnt of the officers of Madhya Pradesh Govornment' on aD averago' felt that they wcre helpful to the people occasionally while 3! per cent oi peoplo found them neither belpful nor unhelpful' There was, however, a small confrdence gap in tho roverso direction as 35 per cent ofrcers, on an averag€, considered themselv€s helpful to the people, while 39 per cent of the people thought that the officials wcre hclpful.
Acoording to the porceptions of th e villagers in Madhya Pradesh, the percentage of thc officcrs who had aptitude for development work did not have aptitude and showed occasional aptitudc were divided in the ratio of one'third each' In Punjab 42 per cent officers were reported to have no aptitude
for dev,:lopment work whrl: only 26 per cent officers
seemed
to
tor
dovelopment work. One-third have showed their aptitudc of the officers, however, showed only occasional aptitude' Com' paring this with the capability (although aptituda and capability
2lO
Burecucratic Valuet in Development
are not identicalt weifind a different pattern except in the middlc values of perceptions, tlalf of the officcrs in both the Governments of Punjab and Madhya pradesh thougLt tbat they had enough capabilities. This gives a divergent pattern in boih the extrem€ cases of good and poor capability.
In Punjab many citizens are not dependent on the governmenr for small favours wbile in Madhya pradesh the citizens cxpect the government to do everything for them and thus seem to be dependent on tbe govcrnment channels. ln punjab, if a few persons werc afruent enough to have their water-pumps, they were independent ofthe offcials ofthe Irrigation Department. It was not, therefore, unnatural for them to develop low perceptions about the aptitude and capabilities of the ofrcers who were generally taken to be apathetic to the needs of the people. The gap between the perciptions of tb€ citizens and the officials in Punjab was, therefore, wide. But it was not as wide as in Madhya Pradesh where they had to depend upon the officers for their developmental needs. In respect of the often repeated complaints of the officials people arc not generally cooperative, thc villagers both in Patiala and Morena did not admit that they were not cooperative with thc offioials in the developmental work, About 83 and 9l per cent of the villagers in patiala and Morena respectively werg of the opinion that the villagers were vcry cooperative while the administrators were indifferent. A very small percentage of villagers of the two States thought that thoy werc not generally or sometimes not cooperative. people in general seemed to be quite enthusiastic in development projects and were willing to cooperate with the offcials in these venturss. The perceptions of villagers in .patiala and Morena about the apathy of the officials werc eventually divided among thc valuo scales ofyes, probably and no. Thc isolation of the officials, they said, was responsibli for their incffective role pcrformanco in developmont work, Sincc the findines about thi villaeors, perception about the officials in both the States onc of whilh is developed and the other not-oo-dcvctoped are almost the same, it follows that tbc psychotogical hiatus betwecn tbc admiais-
that the
-
Cljentele's Perception of the Offictats,
performance
Zll
trators and the citizens is very much present in both the States. There is, therefore, the nced for brushing up the image of the administration tbrough eliciting citizens' cioperation and conscious effort on the part of the officials towards enlightcoing the public on developmental programmes and their role and rnvolvemeDt in them.
tbe villagers' perceptions about the use of plolltlcal leaders for putting pr€ssurcs on the officials for getting tnerr work done, it was observed that both in the districts of Patiala and Morona balf thc rerpood"otsiJraJti" officials had to be pressurised through political teaa"r, to grt tl.i, .iort Regarding
fulfilled. This percepion of th€ vilageri agreed with tbe reciprocal perception oftho ofrcials regarding the-prcssures put by the political.lcadors for mecting iublic ueeds, The people in general believed that the officiali r,r,r.. ,or. accommo_ dative towards the of politicat leaders. In many cases _requests the officials were afraid to ignore the requests of the political leaders, because they were apprehonsive oi the punitive actions in the shape of transfers, etc. that might flow as a result of thc complaints, genuine or otherwise, *hi.h might bo made by the influential potitical leaders to the ministe-rs at the State demands
leYcl,
The findings of the chapter arc important rn as much as tbe kind of perccptions that tho ofrcials hold about their performaoce and achievements in the developmontal activities and tho way they react with the peoplc. The rcciprocal perc€ption of the viitagcrs towards their behaviour and capabilities shows the divergonce ic their own conception of tlo situation, These dcviations should be helpful in planning these indicate
somc proposals
for
socuring
a
more harmonious relationship
betwecn the officials and thc citizons
devolopmcnt worh.
for
better performance in
8
Relationship Between Bureaucratic Characteristics and Developmentfil Orientation
In Chapters lV, V and VI, we examined th6 structural, sociopersonal, socio-administrativc and behavioural cbaractcristice of burcaucracy engaged in dovelopmental and non-devolop mental activities in th€ Statcs of Punjab and Madhya pradcsh with the hclp of data collected in eelected btocks of patiala and Morena districts respcctively. . In Chapter Vl wo also oxamincd
thc orientations of these ofrcials towards development. In particular w€ tried to discuss the extent to whioh tbo officials workiog in the different departmcnts wero motivated by the goals of dcvelopment as rcwaled thrqugb an analysis of their value systems and attitudes reflccted in .the answers to sone of the questions canvassed in this respect.
In this chapter, it is proposed
to
cstablish'a correlatioaship
between tho averagc composite attitudes of the ofrcials engoged in the devclopmcnt tasks towards their devclopment orientation
in our frndings in Chapter VI witb the yarlous structural characteristics of the Weberian model of burcaucrary. Since in the findings of many of the earlier studies on thc subjcctn it has clcarly been established that the bureaucracy in India by and latge sharcs thc same Wcberian structural chargcteristiog it wquld be intercsting to note in tho prcsent contef,t as to the way cach.of thc charactcristics ir cqrrclatcd as rovealed
214
Bureauuatlc Talues in Development
tn. officials' development orientations. Since in our study 'we have siade an assumption that the ofricials working in the Revenue departments in both the States are primarily engaged in non"developmental activities, we are at present only taking into consideration the results of the averages of the developmont orientation of the officials of the Stpte Electrlcity .Boards
.',fuitn
-in
-Irrigation Dcpartments (engagod develop('ental iatrd. thg Statos ,avhave. activitios) in the two !ee4.wqtted out in the Vl of this study. tablcs outJined in Chaptet
is proposed to test statbtically if the average perceptions of dovelopment pcrsonnel towards selocted bureaucratic characteri. estics and values in the two States is consistent with the averag€ perc€ptions of development eipressed in terms of thelr change/ result/target orientations, Let us first examine the correlationship in between the offcial's perception of hierarchy and their devolopment orientation, Table 8ll oir page 215 gives the , oorresponding figurcs of the ofrcials'value scoro on hierarchy: as a characteristic of buroaucracy and their orientations towards devolopmont in the States of Punjab and Madhya Pradesh
It
Thile
Table 8.1 gives an' indication that high perby the officials to hierarchy as a bursCucratlc value in botb the states correspond to the higher development values of the ofrcials, the figures when plotted on a bar diagram give a differont correlationship especially in relation to the moderate and low values of perceltions of the
.bcptions attached
ofrcials. :
.-'From the Bar Diagram No. 12 on page 216, it
is evidcnt that
'ofricials having higher scorc on thi value of hicrarchy in the State ofPunjab havc somewhat lower scores on their perctption about
devclopment, IVhilc the oficials having moderate and low scotcs on the same stfuc,tural valuc tend. ts havc higher scores 16f : +h€ir ,orientation towsrds developmcnt; ' it follows that .thixir officials wliro assftia' .a .big&el - +elild to hiorarehy mry
Orientation
Eureaucra+c Characte$$ies and.Developmental
Ir te (D
ao
ll\l
c.|ci C\N
slB
rs
st>
3x
()
q9
lD
' .,
-ll
'o (ilo o€
t(a
a h
a)
Sls Ir:
t.s lll.{
(\
s$
o.=
€ !:6 r'l(DE
c4 gA
F FE 0)c) Fg
E*
^lD ,=-
EO ! !)
v?q t\
(\l e.l
\o
o6 od+ e{
cn
rrt
ol
+d
B
tri:o
EET Eloo
a.l
att
,r6
Bureauctatic Yitlues ln Eevelopment
BAR OAGRAT r{o.12 PUNJAA
HAOI{VA FRADESTI
Hbrorchy
f=
0avcloprnenl
Perecn iogc
Mo
derole LoI
High
HIERARCHY AND OEVELOPMEN
Modirote T
Etneaucrattc Chancterlstics & Developmental
Orientation
217
rtoaia behind their developmentel orientation than thosc who assign hierarchy a moderate or low perception score. From the corrclationship thus cstablished in Punjab, it may bc
ouggeetcd that too much altachment to hierarchy.as value acts as a ncgative factor in thc proccss of development. The same corrolationship is, however, marginally ofthc reverse ofder in
case of Madhya Prade having high perceptions
sh.
it
seems that the officials of bierarchy as a value have also larger orientations towards dcvelopmcnt while thc ofrcials having middle and low perceptions about hierarchy as a valuc correspondingly show less orieotation towards thc development goals. 'fhe divergence ia tbe fndings in the two States may ' possibly be cxplained by the fact that developmental activities bsing comparatively ncw in Madhya Pradesh, therc was moro initial enthusiasm amongst the officials towards dcvelopment goals despite their high attachment to hierarcby as a value. At the same timc the officials baving moderate and low score per' ceptions on hlerarchy did not seem to be much oriented towards dcvelopmont goals. To some extent this reflects the scepticism of the bfficials wbo dcspite their low attachment to the value of hicrarohy could not orient themselves to larger goals of development.
Here
The x2 values for Punjab and Madhya Pradesh for 2 degrees' of freedom are 2.56 and 0.20 respectively which are statistically insignifcant at 5 per cent level of probability. Tbus the scale' values of perceptions about hicrarchy arc indcp:ndent of-
delelopmental activities and there seems' to be of hierarchy and value orientation. towards devclopmcnt, But thc value system of the officials in. the State of Puojab clearly supports the view that in the long term developmcot&l goals, too much adherence to hierarchy may not bc a factor promoting development goals. It also shows that 'hierarchy'a$ a value cannot altogetbcr be done away with
thosc
of
divergence betwcco values
oither. Division of Labour and Development
We now examins the correlatiaoship
of
another
:
1
"
.
218
' 84gpqss761Sa YalueE
itt
Developxent
cbaraoteristic of bureaucracy thcr.division of labour drr wsrk it rclation ro the development orisntation. Tabls g2 on pago 219
division gives the scalc vglues of Berceptions of the ofrciale about thc division of duties in the two Staets and tbeir devclopment oricntations. As the division of duties. among the ofrcials is an fmportant characteristic of any burcaucratic organisation, what is proposed to bc examined in this con,text. is whether th€ Exis-
ting value system of the officiats to the division of duties or impedes the orientation of officials towards
encodrrages
developr,nent
in the two
States.
Here again it will be noticed that high perception ofthe officials on division of duties both in punjab and Madhya Pradesh are usually associated with reqpeotively high pcr. ceptions of deyelopment, and modcrate pcrccptions ofthe qfficials on division of duties are similarly associated with their moderate developmental orientations, However tow valuo scores of oflcials on the division . of duties are accompanied by great€r scores on developmental orientations. The trends of scores on division of duties and development seem to b€ alike both in Puajab and Madhya pradesh.
From the Bar Diagram No. 13 on page 220 it is clear that in Punjab, oftcials who have high and moderato value soores on
the bureaucratic characteristic of division of duties also have correspondingly high development orientations.' However those offcials who ascribe low values (only 12.4 per cent) havc still higher orientation towards developmcnt (22.0 per cent). In.Madhya Pradesh, however, the oftcials attaching both
.high and low values to the division of duties show grearer orientation towards devcloparent. Whil€ those having moderate value ecores attach correspondingly lass value preference to development. The difforence is, howover, marginal only.
The
I,
values
for
division
of
duties and developua.c ;
orientation in Punjab and Madhya pradesh are 3,30 and 0.4
which are statistically insigdifieant at 5 per cent for two degrees of freedom, This means that thc officiols' scoree 60, divieioa of duti€s aild d€vetopmlr t respectively
level of probability
,
&r''au&atk
Charaderistict &,Dettelopmental
ra,
!)
tt
t
oo
Orientation
o
oio
c.l
€s vi
c'i
F\O t.;
F-
t
tal
dAr
€s
* ,P9
s{tr
o
,-!
(D
c.t a od.9
l=
0)
.tl Ft{) t-l /l
ls
so a.l
C.l
i
l
rt
.o
n
Rl$ t.*
o€
oo
\o O\
c.l
\o
'(L
lo t*.30
tr
I
.tl
I
(q
(a
.o
r^
-(\ ll
.99
r\5q E(I)
6
=-
aE
ql
'.3
gr
x
219
220
Burcoucratic Vafues in Dcvelopment
6AR OIAGRAM
NO, 13
MAOHA PRAOESH
Pergentoge
High
Mo
derote
Low
High
Moderote
OVISION OF OUTTES AND DEVELOPMENT
Bareaaeratlc Charucteristics & Developmental
Orientation Z2l
oriontation aro trot correlated. However the percentage of ofrcials with low perceptions of division of dutics in tbc State of Punjab having a correspondingly bigher orientation towards dcvelopment is very small, giving an impression that once the dsvelopmetrt programmes have got rootod in the system, adherencc to tho division of duties becomes essential for their cootinuance and efrcient implementation. The high and low p€rceptions of such valucs in Madhya pradesb on division of duties with correspondingly higher orient. ation on development may be an indication of thc desire on the part of a larger number of offcials to achieve the dcvelopment targets without being muoh influenced by a rigid pattern of division of duties in the initial steps of tbe developmcnt work. It also follows that by and targe, on an average, adherencs to division of duties as a bureaucratic value is in correspondencc with dovelopmeot orientation in both tbe Staies. It is only when too inuch stress is laid or when there is no str€ss on this characteristic that developmental goals scem to suffer. It can also be inferred that a strict adherence to division of duties in dovelopment organisations in the initial stages may not be vcry feasiblo. Syuem of Rules and Development
A bureaucratic organisation depends upon an elaborate prescription of rules and proccdures. In both Punjab and Madhya Pradcsh the officials of the Electricity and lrrigation departments have been no exception to this principle. The activities oftho dcvelopmeotal ofrcials arE necessarity governed by €laborate codes which while' protecting them against criticism from arbitrary action simultaneously furnish them some guidclines to enable them discharge thcir development functions. Ih practice, howcver, the adherence to rulos often means frequent delays in the accomplishment of goals, Table 8.3 on page 222 givesthe pcrccptions of officials engaged in devclopmental activities abo'irt the system of rules and their oricntation towards development. Tbc comparative figurcs gcet to establish a correlation betsrcen the bureaucratic
222
Bureaucratic Ye.lUes in Develapman
eharacteristic of the system mental orientation,
of
rules and thc oficials dovelOp.-
. The data indicates that the developmental offcials, particularly in Punjab observe very high values for systcm of rules. During .the field visits it has been observed that th€ ofrcers of the .higher levels were more rigid in the application of the rujes. They do not see the necessity to deviate frqm the codes which prescribe their methods of work. This higb.rigidity about following rules and procedures, frequently causing dolays TABLE.8,3
Officials' perception on systom of Rules and their orientation
to Development by
States
(Percentage)
Characteristics
Punjab
Higt-M;Aiate-nw S1'stem of
Rules
Development X,2-value
1.2
16.3
43,2
34.8
1
(d.f.:2)
l6.l 5*x
30.0 22.0 47.6 32.4 12.5 55.6
t4.4 20.0
1.62
bo very much ingrained in thc miadg of officers. Thus it can be construed that although the officials show a high value preference to the system of rules are not really development orientpd. This is very much clear frodr the Bar Diagram No. 14 on page 223. At the same tioe ofrcials who have moderate and low pelceptions on the system ofrules seem to be having correspondingly higher scores on Jevclopm€nt. . Almost a similar situation obtains in Madhya Pradesh where ofrcials attaching higher values to systen of rules atc lesle development orientad, while those attaching moderate and low in performance, seems to
m | |
Sysremot
R
ulci
Developm€nl
Percentoge
Hgh $iodcrote
Lo*
-
Hign
Moderote
. .SYSIEI{ OF RULES AI{O T}EVELOPTIENT \
224
Barearrrqtlc lalues tn Dewlopment
1n Puajab is 16.15 which is vcry significant even at one per ccnt lcvcl of probability for 2 d€gro6 of freedom. Tbere is thus a good .association betwel thc values attached to the system of rules ae observed in punjab and thc orientation of the officiale. towards dcvelopmcnt. .ddherence to thc system of rules not only scem to protect tbe individual ofrcials agaiast uaduc criticism fiom the public quarters, but in punjab it does not secm to be ilconsistant with their development orientation.
In case of Madhya Pradesh the difrerences in value scales of the two variablcs are very much less with the result that the It valuc of thc tcst of significance of the two variables is only 1.62 which is vcry insignificant at 5 per cent level of probability for 2 dcgrees of freedom. Thus thore is no correlation between the offiicale adbering to tbe systcm of rulcs and their devetopment
oricntation
in
Madhya Pradesh. Although the pattern of
individual valuo system is the same both in punjab and Madhya Pradesh, but the low Xe value indicatqe that the ofrcials, development orientation is irrcspcctivc of their attitude to adherc to tho systcm of rulcs. Impersonallty and Developmmt
For an ofrcial, one person is just more or less the sas€ :ul aoy other pcrson in his official dealings. The ofrcials are not undulv coaccrned about the satisfaction of their clientcle, if they havc obscrved the prescribed rulee and procedures and principlcs of impersonality in their dealings with thcm. Wc havs tricd to examinc the relationship of thc bureaucratic characteristic of impersonality and the ofrcials' oricntation towards develop ment in both the Statos of punjab and Madhya pradesh. Thc
1grc1 of devclopmcnt officials of both thc Staies of puojab and Madhya Pradesh oa both thesc valucs are given in ?ablc g.4 on pagc 225 and illuetrated tbrough thc Barbiogram No. 15 on p_age 226. From the bar diagram, it.may be ,roi th"t in casc of Punjab tlo perccntagc of ofroiats atticning iJg-l oJo. to i.pe-rcoqality in thcir dcaliogs seern to te oucn-niiler thatr thoe who tend to indicate tho samo lcvcl of oriontrtioi toryardr dcv+
Sureaucratic Chatacteqsrict & Devplopnental
Ofientatton
225
lopmetrl. While the perccntagc of officials ehowing moderate and low value to imporsonality is vcry smallr the correspoading per' ccntagc of ofrcials sharing the same lcvels of values towerds dovolopment oricntation is much higher. It can, thorofore, bc infemed that observancc of a high degree of impersonality in thc bchaviour of ofrcialg ie not vcry much associated with devolop' ment odentatioo, while moderate and low degrces of values attacbcd to this characteristic may be associatcd with corres' pondilgly bigber orientation towards developmcnt. The pattern of perceptiors of tho officials in Madhya Pradeeh is similar' but with little variations in high, moderate and low value scores in contrast to Punjab where tho variations are high.
TABLB 8.4 Impcrsonality and Devetopment
by
States
(Percentage)
Madhya Pradesh
Pmjab c har
acter is t i
c fii-u
Iop€rsonality Development x'z'value
('l'f':2)
o
de- tow
Hlgh Mode- Low
tale
rute
78.1 t9.7 43.2 34.8
2.2 54.9 29.0
30.42*'
22.O 47.6
32.4
16.1
20.1
2.48
The le-value of impersonality vis-a-vis developmcnt in
Punjab is 30.42 which ir vcry significant satistically at one per ccnt level of probability for 2 dcgrees of freedom. It can thcrefore be concludcd that the scorcs on impersonality followcd by the ofrcials of the development dopartments of Punjab and tbcir dovolopmont orientation have high association.
In Punjrb the offcials connectcd with the developoental work had obrcrwd grestcr imporsonality in thcir bchaviour tow ds
BAR--
DIACRAM NO. 15
Percenicge
Moderote Low
High
Moderote
IMPE RSONALITY ANO DEVELOPMEI{I
.
Bweauerifr ic Charoct 2 ri stlc s &.
D evelopm ent al O I ient
ation 2n
their clieotcle but this has not significantly hampered the progrrss of devclopmcnt.
The position is different in Madhya Pradesh where the high values given to imp€rsonality- ma-rgiqally €xceed thosg given to dcvelopmcnt. .The moderate and low values given to imperso-
ratttrffirc.rEargtf'dlly fall short of the levels of their devetopment orientation. As the xe-value in Madhya Pradesh shows that there seems to be no association between the value of im: personality and officials' development orientation. It is possible that in Madhya Pradesb tbe observance of impersonality by the officials in their behaviour towards their clientele has boen conduciva to some progress in the field of developmental activities. 3ut,as-th€ ease of Punjab illuskates, the observence of imper' sonal behaviour of the officials has not produced the dcsired dovelopment orientations amongst the officials in the long run. Thus impersooality as a characteristic in the behavioural pattern of thc oficials may be hclpful to some cxtent, but a high degree of its observance may not always produce the desired resulte in developmental activities. In other words it follows that the developmental activities would have to be ultimately geared to tuit the Civcrsified rieeds of the heterogenous elements of the clientelo.
Relattonship of Offi.ctals' Combtned Perception of Stuctural Chalacte stics of Bureaucracy on their Orientation to Development
We have so far examined the relationship of offcials' orientation towards individual characteristics of bureaucracy like hierarchy, division of duties, impersonality and system of rules and their orientation towards devolopmontal activities in Punjab
and Madhya Pradesh, We now propose to examine the relationship betweeo thc ofrcials clubbed perception to the combined bureaucratic characteristic and their ofientation to development. Table 8.5 on page 228 gfues the figures relating to the officials' tot.rl si.:ore on their pcrception of hierarchy,
Bureaucr atic Values in Development
228
TABLE 8.5 Relationship of Officials' combincd pcrception of Structural Characteristics of Bureaucracy and their Development orientation
bv
States.
Low
Characteristics High tarc
All Structural
Madhva Prailesh Eigh Mode- Low rate
63.3
25.2
I 1.5
49.8 32.2
r8.O
43.2
34.8
22.0
47.6 32.4
20,0
oharacteristics
'Oricntation towards deve-
lopment Xt value
.
(d.f.:2)
9.6*
0.15
divieion of duties, system of rules and impersonality orientation to developmont in the two Stat€s.
It will be seen from thc Bat Diagrau No. 16 on page 229 that the ofrcials in Punjab who have high perceptions about all structural charateristics of bureaucracy aro in higher percentage than their corresponding pcrcentage with orientation to development while the pprcentage of the officials with moderate aod low p€rceptions towards the structural characteristics of bureaucracy fall short of the percontage of the ofrcials with similar orientations towards development. The ?t2-value of .porcoptions of thc struotural characteristic of bureaucracy in Punjab vis-a-vis development is 8.6 for 2 degrees of freedom, It is significiant at 5 per csnt level of probability for 2 degrees of freedom. To sum up, the I'z-test sbows that the data would lead us to helieve that in Punjab there is good association betwoen the officials' perccption towards their clubbed values of bureaucratic characteristics and their orientation to
Eweeucratic Characterlstics & Dewlopmental
gAR
Orlentation
2Zg
DTAGRAM NO.16 MADHYA PRAOESH
n
Att sfructurot chorocteristict
Percenfoge
High AU
Mod€ro
STRUCTURAL
C
ie
Low
High Moderote
HARACTERISTICS OF BUREAUCRACY AND DEVELOPMENT
Low
2r0
Buritauqallc Values ln Development"
development, and that the stractural charactoristics of bureaucracy in Punjab are not in dissonance with development'
In Madhya
Pradesh the position is
different. The percentage
of officials having high levels of perceptions about buroaucratic characteristics are marginally higher than the corresponding percentage of officers
with high perceptions on
development-
it i, .ruttt. in the case of moderate and low perceptions of the that two variables. The differences'in the variables are so little
is only 0'15 which is insignificant' Thus, it orientacan be concluded that in Madhya Pradesh, tho officials' no correlationship witb tion towards bureaucratic values has ihe valuo of
1,2
their develoPment oricntation. Inter-State Variations
far as the structural characteristics of tbe bureaucracy in thc percep' two States are concerned, there is diversity in the value attacb Government of Punjab tions of the officials. The ofrcials than bureaucracy of higher values to the structural characteristics their counterparts in Madhya Pradesh' So
On the whole, the above findings clearly indicate that the pace of development cannot be accelerated through a very rigid udhatao." to the Weberian bureaucratic oharactcristics; nor it seems possible for development to proceed in the organisations having iow values with regard to structural characteristics' Thus it may seem essential to consffuct a bureaucratic oraganisa' tion even for achievement of developmental goals but without also disproves making the organisation as an end in itself' This tho hypothesis that in India there is any significant difference in the value perceptions of the ofrcials whether belonging to devolopment or non'development departments towards thc Weberian characteristics of bureauoracy' S oclo - Per
sonal V alue s and Deve lopment
The relative importance that tho officials attach to some socio-personal values deeply affocts thelr performance
of the in the
Orientation 23f-
Bareaacratic Characarlstics & Developmenlal
organisation. In ao earlier Chapter we examined the respcctive value perceptions of the development officials in Punjab and Madhya Pradesh towards two of such characteristics, namely, tbc integrity of charactor and the equality of individuals, In this section we propose to establish the correlationsbip between the official perception of such values and their devclopment orientation. Integrity of Character
lntegrity of character is an essential socio-personal value which of all.Government officials. No ofrcial can be efiective in his activities if he succumbs to undue pressures of all kinds and begins to compromise the principle of integrity with expediency. As revealed through their statements, it has already been noticed that the ofrcials both in Punjab and Madhya Fradesh attach high values to the quality of integrity of character. Table 8.6 gives the comparative perceptions of the officials about intorgrity of character and its relationship to the developis *oquired
mental orientations.
TABLE 8.6 Relationship bctween Integrity of Character and Development Oricntation by Statos (Percentage)
Madhya Pradesh
Punjab
Characteristlc High Mode-
Low
rale
tate
Integrity of Chara:ter
72,4
15.0
12.6
49.5
30.0
20.5
Development
43.2
34.8
22.O
47.6
32.4
20.0
X?-Value
(d.f.:2)
17
0.r3
;19**
From the Bar diagram No. 17 on page 232,
.
it will
b€ seon that
:.
,,7',
Bweaucratic
Value s in Deveilopment
BAR DIAGRAM NO:.!7 FUNJAB
MAptlYA PREDEF}I
@
Integrlty of Chargstel
furcentogg
trbderote Low
HE[-
INTEORITY OF cHARACTSR AND
ModerG DEvErrRtENt
Bareaucratic Characteristics & Developmental
'
Orientation
233
thc ofrcials attaching high values to integrity of character in Punjab. seem to have a lower orientation towards development, whil€ those attaching moderate and low values seem to be having greater oricntatioo towards development. Thus in punjab ofrcials seem to have attached much higher emphasis to the intogrity of character than dgvelopment. About 72 per cent of thc officers ofPunjab government attached high importance to integrity of character while only 43 per cent of tbe respondent officers gave high values to development, Compared to 15 and 13 per cent of the officers attaching moderate aad low valu€s respectivoly to the iategrity of character, 34 and,22 per cent of the officers had moderate and low perceptions about developmont.
Thc Xs.value for perceptions of th€ integrity of character of the developmental bureaucracy in Punjab was very hrgh at 17.79 wnich is very significant statistically even at I per cent level of probability for 2 degrees of freedom. Thus, association. between p€rceptions of integritv of character and orientation towards development is significant. The two variablos are. interrelated in Punjab, suggesting tbat integrity of character is. fundamcntal for any program.of development.
In Madhya Pradesh it is observed (Bar Diagram No,l7) that: the percentage of officials attaching high values to the intcgrity of character is marginally higher than tbe correeponding percentage of ofrcials attaching the same value to developmentThe saEe observation can also be made in the case of ofrcials attaching low values to integrity of character and corresponding. low orientation to development. But the percentage of officials attaching modcrate valuc is marginally lowei than the officials having moderate orientation to development. The Xr-value is only 0.13 which is very insignrficant statistically at 5 per osnt level of probability. Thero is thus no correla. tioo betwc€n the two sete of valub scales. The aciherence to principles of the integrity of character and the progress of development soems to be indepcndent of each other. A comparison batwecn the scorcs of officials in Punjab and Madhya
234
Bureaucratic Valses
h
Devebpment
Pradesb officials' score on this value and their relstionsbip with development orientation, on the whole, gives an imprcssion that while there is .good association b€tween the p€rceptions on integrity of character and officials orientation to development in Punjab, there is no such relationship between the trryo in the caso of the officcrs in Madhya Pradesh.
Equality of Individuals and Detelopment The officials' treatment to individuals on an equal basis is the other socio-personal value which was sought to be correlated with their development orientation. It would be observed fiom Table 8.7 that the percentage of ofrcials in Punjab attacbing
TABLE
8.7
Equally of Individuals and Development by States (Percentage) Characrcristics
Madhya Pradesh
Punjab
EtsE --M;A;---Low
EUE--MoA;---Xow
rate
Equality of
Individuals
53.9
Development
43.2
'37.3 34 8
faI e
8.8
46.4
22.0
47.6
33.3 32.4
20.3
20.0
I2-Values
(d.f.:2)
6.94"
0.04
high valuos to this eharacteristic exceeds those who have high orientation to devclopment. Similar is the case with the officiale attaching moderate value to
this
charaoteristic
who
correspon-
dingly have moderate orientation to development. But the number of offcials attaching low value to this cbaracteristic, though very small, has corrcspoudingly larger percentago of officials having such orientation to devcloprnent. It, thereforo, follows that officials who nay not attaoh high value to equality of individual may stilt be oriented towardo development.
Bur eaatr xtlc Ch arac te r tittcs
&
Developpent
al
O
rientat
ion
235
In respect of Madhya Pradesh, there is no signifrcant diffe' retrce between the percentage of officials attaching high' moderate and low values to the cquality of individuals and their corres' ponding orientation towards development. From the Bar Diagram No. 18 it may been seen that high and modorate values of perceptions of the offi:ials in Punjab Govern' meot in respect of equality of individuals exceeds their high and moderate orientation towards development. The low values attached to the equality of individual is very small compared to those of development.
The X2-valuo of the charactristic of equal treatment of individuals vis-a-vis development performance of Punjab is 6'94
which is significant at 5 per cent level of probability' Thus it soems tbat there is good association between the principle of 'equality of individuals and development orientation.
on the other hand, the percentage of 'officials with high value perceptions to the equality of indivi' duals is marginally lower lhan the peroentage of officials In Madhya
Pradesh,
development. The percentage of offi,cers with moderate and low valus perceptions on equality of individuals are marginally higher than their correspondiug lpercentage of ofrcials having developmsnt orientation.
'showing high values
to
The X'z-valuo of equality of iodividuals vis'a-vis development 'is oniy 0,04 which is very insignlficant for 2 degreos of freedom at 5 per cent level of probability. Thus the principles ofequality of individuals followed by the officials engaged in developmen' 'tal activities in Madhya Pradesh is independent oftheir orienta'
towards develop;nent. The two perceptions are not correlatcd although the ofrcials whilo remaining conscious drwards dovelopment goals were also fouod to be inclined to observe the principle of equality in their doalings with their *tentele.
tion
.-
236
Euicancratlc Values ln Devel6polsns
gAR OAGiAM NO.I8
RNJAS
MADHYA PRAO€SH
Fercen tgge
High Moderote Low
ttigh Moderorc
EOUATITY OF INDIUq.|ALS AIIO TEVELOPTI|ENT
Low
Bw e aucratic Characteristics & Developmental Or lentatlon
237
Socio. administrative Valucs and Develooment
In an carlicr Chapter, an examination was made about the p€rception of the ofrcials engaged in development tasks in both the States of Punjab and Madhya Pradesh with regard to their socio-administrative values. The socio.administrative value chosen was tho officials' status-consciousness along with their senior ofrcials' attitude of keepibg their junior officers as a distance and the extent of freedom enjoyed by the junior officers to discuss freely their official and persooal problems with tb6 senior ofrcers etc.
An attempt is being made here to determine any associatioo between these value perceptions and orientation
that exists
towards development.
TABLB 8.8 Socio- Administrative Values and Development by States
(Percentagc) Characteristics
Punjab
__
High Moderate Low Socio.administrative Values Development 12-Value
(d.f.-2)
41.4 35,6 43.2 34.8
23.0 22.O
Madhya Pradesh
High
Moderate Low
43.8 35.2 47.6 32.4
2t.0 20.0
0.29
0.07
As can be seen from the Bar Diagram No. 19, tbat the pattern of association between thsse two values is similar itr both the States of Punjab and Madhya Pradesh. With regard to thc high value perceptions, the orientation towards development seem to be slightly higher than the high values on the socioadministrative axis, while for both the moderate and low values, orientation towards development
is slightly lower than their
perception of the socio-adminisfiative values.
Burdaucratic Vq.lues in Development
238
EAR
AAGhMI NOl9 MAOHYA P.RADESH
v7-'
Soc
io- odminislro tiv? Votues
Develogrnenl Frrcenroge
High Mod.rote .Lor ffi SOCIO- AOMINI STRAIIVE VALUE9 ANO OEVELOPMENT
Bureaucrtiibl Charaeterieties & Developmental
Orientation
239
vis-a-vis The lC2-values for socio'administrative characteristics Pradesh Madhya and a.nJ"ptg"l u* verylow both for Punjab verv are which. om;i;i" They are b.07 and 0'29 respoctivelv of level per cent 5 at ;;;;i-6.""; for 2 degrces of" freedom of the' valucs otr"U"Lifiry. Thus the present socio'administrativo with their orienta' iil"l"itl" u*u the states are not correlated the Bar Diagram No' tion towards development' From both that there is a tendency 19 and Tablc 8.8 it seems to be clear states to be conscious about ;;;;; il-;m;als in both theIlowever this factor has treither ln"i, .-ru*, as administrators' ntrpia their orientation towards development' in deve'il;;';;t ""t ,;; ioferred that officials whether engaged
ilffi;il
non'dovelopmental, tasks share the socio'atlministrative values and type of perceptions towards the developmental activities does the fact that they are engaged in status ;-r';;;-;;v difference in their feeling about their
;;;;-;;t*t
same
or
coosciousness' P ers onal Combined C ort elations of Socio' Oientation tive Values with Duelapment
antl
Socio-Administr a-
-like.integrity of Wehaveeraminedtheindividualrelationship...betweensociopeiceptions oersonal values of tn. om.iuts' of individuals and socio'administrative perfor""J.q*litv iit" .,*us consciousncss' etc' with development Let ue Pradesh' ""i,ir, .""""i",n. States of Punjab and Madhya with thoir values those of ."-t*. ,n combine'l relationship Tablo 8'9 gives these valuo com'
ffi;il; ;:;il;
orieqtation'
parisons. From.the Bar Diagram
No'
20
on p'241 showing the combined
values on association of sooio-personal and socio-administrative perceptions punjab high the only in
iririlp*J
iiisclear that far excecds' uioot .o"io-p"rsonal and socio-administrative values picturc is revcrse the ;f" fiti fttitntions of development'whilo it seems possible to Thus il;;;i."d.rate and low values' having officials of pcrcentage infer that in Punjab although the
p"i*pai"ns of socio'-personal and - socio'adminidrative uof".t i. vory high, the percentagp of officials having correspon-
ilgi
Bureaucr
TABLE
atic
Values in Development
8.9
Socio.personat and Socio-administrativo Values and Development by States (Percertage) Characterlsics
Punjab
Hlgh Modc-
Low
fare
Madhya Pradesh Mode- Low
High
aate
Socio-persooal
and socio.adm-
inistrative values
55.9 29.3 43.2 34.S
Development X'z
Value (d.f
:2)
14.8 22,0
46.6 32.8 20.6 47.4 32.4 20.0
3.s3
o.02
dingly high orientation to deveropment is srighdy lower while the percentage ofofrqials having moderate and low value perccp-
tions on.socio-pers6n2l nad sss;o.admioistiative ,.Jtl, ..., ,o be associated with a liute n:gle. perceni;g"li-.inliuj, ha";oe the same orientation towaras aevelop*."tl li ,Ii]'nn"r"rorr, be concluded that the existence of ievelopmentlrientation io individual offcial is more or .less pereonal to him and such a^n orientation is not. likely to be atrected Uy tne-Oidereo"", io socro-personal or socio-administrative values as thc officers on the whole tend to share thc same value perc€ptions.
rn Madhya Pradesh high perceptions of socio_personat and so:io-administrative values margioalty falr Joii 'oi tnu nign pT:ellio,ns of development functions inif. ,n. f"r_* is marginally higher than its counterparts in casc of moderate and low values of development.
The X,2-values for thc two characteristics are 3.53 respectively for Punjab and Madbya pradcsh
and 0.02 which are statisti-
cally insignificant at 5 per cent levil of proUabitity for 2 d"gr*u of freedom. Thus thcrj scems to be no signincaai assooiation
Eueaucratic Cha,roctefisttcs & Devclop'nental
Orlentation
241'
BAR OAGRAM NO.2(l MAOHYA PRAOESH
PUNJAS
@
Soco
F?rsonol
e Soco- o dminislraliw
VOlues
OevelOgment
Percentogc
High 50c10
Modemie PERSONAL ANO SOCIO AOMINTS1RATIVE VALUES AND OEVELOPMENT
212
i, .
'
I
'
Buieditcratli; Vdlues in Devildprcni
between the combined socio-personal and rocioadministrative values ofthe administrators with th€ir development
in both the States of punjab and Madbya peradesh.
oilrotufioo
Ratlonality and Development
Let us now examine the correlationship between thc value of rationality observed by the ofrcials both in punjab and Madhya P-radesh with respect to their dcvelopment o.i.*uiioo. Tablc No. 8.10 gives the statistical scores on both the dimensions.
TABLE 8.IO Rationality and Development by States (Percentage)
Characteristics
Fdf
Punjab
tAA-a rate
Rationality Development
Iz-Value
22,7 25.8 43.2 31.8
(d.f.:2;
while Bar Diagram No.
19.55**
Madhya Pradesh
Iqtsh-fr;Ae--Zow rute
51.5
22.0
19.1 32.3 47.6 32.4
48.6
20.0
24.14**
2[ prescnts a graphic illustration of the inter-relationship. It will bc noticod that in tbe State of Punjab the high and moderate scores on the observancc of rationality are given by 23 and, 26 per cent of ofrcers while more than half of the officers gave tow scores on the same characteristic. In Madhya pradcsh scores are similar to those in Punjab. On the other band, tho corresponding scores on development orientation at high lovols far exceed ih. ,"oru ut the same level in the same dimension both in punjab and Madhya Pradesh namely 43 and 48 per cont respectively. It can, therefore, bc scen that thc officials attaching low perception to observance of rationality in their doalings with the public and clientele and in discharge of thcir duties are. proportionally larger, but have lcss orientation towards dcvclopmcnt. At the same
Bureadcratic Characteristies & Developmental
Orientafion
BAR DIAGRAM N0.21 PUNJAB
MAOHYA PRAID€gH
A
Rotionotity
furcen toge
44 1.7)l
Moderote
Lo$,
RATIONALITY ANO DEVELOPMEN T
243
244
Bureaucratic Values in De elopmenl
same time a larger percentage of officials may have higher orientation towards development but the samc numbet may not have higher perception about rationalitv in their behaviour.
The l2-values of the characteristic of rationality aod
devo-
lopment orientation which are as high and significant as 19.55 and 24.14 respectively in the two States however, show a great deal ofassociation between the two characteristics. lt canlhus be suggested that the officials engaged in development work in both the States would have to depict a greatei rationality in their behaviour if the goals of development are to be realized to the greatest extcnt. The present situation of somewbat low or moderate emphasis on rationality by the officials concerned might be a reason for a partial achievement in the realisation of developmental goals.
Authority and Development The second behavioural value that is sought to be corralated with development orientation of the officials is the authodty
in the organlsational situation, This is the different Ievels of ihc officials that they work with. The value scores had alrcady been examined in an earlier Chapter. Table 8.ll and Bar
that they
exercise
reflected in their behaviour towards
Diagram No. 22 give rho statistical analysis and the grapbic
TABLE
8.1I
Authority and Development by States (Percentago) Characte-
Punjab
Madhya Pradesh
ristics
High Mode- Low High
' rAle
Authority Development X,2-Value
(d.f.:2)
62.3 31,9 43.2 34.8 13.03**
Mode;-
Low
rate 5.8
22.0
45.3 28.7 47.6 32.4 1.57
26.0 20.0
Bureawcratlc Chatacteristics
& Develepmental Ofientation 215'
ALL BEHAVIOI.'RAL CHARACTERISTICS AND OEVELOPMENI
BAR oTAGBAM NO.22 MAOHYA PRADESI{
PUNJAB
ZZ
rAuthoritY
Percentoge
lbderotq
Low
High
Moderote
AUT HORITY ATO DEVELOPMEN T
246
Bureaucrutlc ltalues ln Development
reproduction of the correlationship of this value with devclooment orientation. From both the Table and the Bar Dagram, it wilt be observed that in Punjab, only a small proportion of the officials have low score on the behavioural value rclating to authority and the combined proportion of officials having high and mode rate valuos on this characteristic is-as high as 94 per cent. Ifowever the percentage of ofrcials havin! correspondingly high and moderate degree of orientation toward development is 78 per cent, while the low degree of orientation toward
is shared by correspondingly higher percsnmge of officials i.e. 22 per cent as against 6 per cent of thi officials attaching low value to the authority aspect of their behaviour. development
In Madhya Pradesh, however, the percentages. of officials sharing high and modcrate perceptions of the behavioural value of authority are only marginally lower than their percentages showing the same degree of orientation towards development. It is marginally in the opposite direction for the low value.
The Ie.values of these characteristics namely authority and development orientation in punjab, is B.O wnich is statisti_ cally significant at I per cent level of probability for 2 dsglssg of freedom. This means that there is a high degree of agsociation between authority and developmcnt oricntation while in Madhya Pradesh authority of offcials is not related to deve-
logsenl-as revealed by the insignificant value of Xs, namely 1.57, The exercise of authority has no influence on development orientation of the officials, The differences between the two States could possibly be explained by the fact that in Punjab, the authority system is morc or less siablized 4fter ao initial progress in development, while in Madbya pradesh, the devclopment organizations being only io their critical stagos of growth, the authority system is not that ingrained. It thus proves that for a programmo of achieving rapid development, a rigid authonty system may not be helpful in the initial stage$ until the development organisations, ggt stabilized. After the
Bureoucratlc Characteristies & Developmental
Orientation 24t
of stablization, bowever, the authority system that develops may not necessarily hinder the proccse ofdevelopprocess ment.
Conbined aorrelationship
of all the
Behavioural Values of
Bureaucracy and Development
io far examined the relationship between tho individual bebavioural characteristics of developmental buroaucracy in Punjab and Madya Pradesh in relation to their developmcntal orientations. We now examine the inter'relationship of the clubbled perceptions of all bohavioural oharacteristics. of the developmental ofrcials in these two States in respeet of their developmental orientation. Table 8.12 gives the average scotes of tbe officials on all behavioural characteristics aod their development orientation by States. We have
TABLE
8.I
Z
Alt Behavioural Characteristics and Development by
States
(Percentage)
Charccteristics
All
Madhya Fradesh
Punjab
E@--MA;--6v 'rate
High
rue
Behav-
ioural charac' 42.8
r.8
25.4
39,8
31.4
28.8
34.8
22.O
47.5
32.4
20.0
3
teristics deve'
lopment
42,2
X2-Value
(d.f.:2)
1.50
8.t2
the Bar Diagram No. 23 that in Punjab, scores on high valucs of all behavioural characteristics almort equals the scores on high levels of development while the scoreg
It will be clear from
Bureaucratic Yolues ln Development
248
gAR
,DIAGRAM NO. ?3
PUNJAB
tZ f-]
MADHYA FRADESH
Atl gehoviou ror oevetop ment Perce ntoge
Bureaucratlc Characteristics
&
Developmental
Orientatlon
249
scores of Development oricntatiol corresponding values on development. only erceeds marginally in case of scores on high and moderate values of all behavioural characteristics. On tbe whole the
on moderate and low valuefl arc lower thao the
of the combined behavioural characteristics like authority and rationality in Punjab is not associated with the association
officials' development orientation. scores on high and moderate orientation the scores on high and moderate exceeC devclopment towards while tho scores on low characteristics values of all behavioural corresponding valires of falls far short values on development the bureaucracy. Thus of of all bahavioural characteristics levels of combined the existing there is association between ofrcials' developand the values of rationality and authority Pradesh. mental orientation in Madaya
In Madhya Pradesh
and 8.12 respectively for Punjab and is insignificant at 5 p€r cent level of
The X,z.values are 1.50
Madhya Pradesh. lt probability for 2 degrees of freedom in Punjab, but significant in Madhya Pradesh. It meam that the oflficials' combined perception of their behavioural characteristics of rationality and authority has correlationship with their development orientation in Madhya Pradesh. In Punjab the combined effect of all behavioural characteristics has no relationship with their development orientation.
SUMMARY
This chapter has been concerned with an aoalysis of the relationship ofthe perception of aspects on bureaucratic values with their development orientation. It has been not€d that the scale values of perceptions of the officials about hierarchy are independent ofthose on orientation towards developmcnt in both the States of Punjab and Madbya Pradcsh, although high values of pcroeptions of hierarchy exceed the high values of perceptions about orientation towards development and moderate and low values of perception of hierarchy fall short
230
Bweaucratic Talucs in Development
of the eorresponding values orientation in Punjab,
of
perceptions on dovolopment
In
Madlya Pradesh the scores of the officials on hierarchy were marginally higher or lower than the corresponding scores
on dcvelopment orientation and the low insignificant valuc of X2 explained the independence of thc two variablos namely the bureaucratic characteristic of hierachy and orientation towards devclopment.
The scores of the officials of both the Governments of Punjab and Madhya Pradssh on their perception of division ofduties-one of the structural oharacteristic of bureaucracy and their orientation towards development were not also iutcrrelated as the X2-values of the structural characteristics of division of duties and developmental oricntaiion are statistically insignificant. Thus the present structurc of division of duties amotrgst the oficials of Madhya pradesh, eogaged in develop. mental activities noither impedes nor helps the dovclopment activities.
Thc ofrc-ials of Punjab are very particular about the oboervance of prescribed rules and procedures. High values givcn to thc_ system of rules by the ofrcials engaged ia dwelofmental
tasks excccds the high scores on orientation towards development u,hereas on moderate and lower valucs attaehed to tho system of rules fall far short of the corresponding scores on orientation towards development with thc result that thc ?("value is very significant. Thus the present system of strict a.nd procedures also serves as a corretating ::a^T:::" lo,tul:r
tactor towards devclopment
In
in
punjab.
Madhya pradesh
the scoros on the observanco of rules by the officers engaged in dcvetopmeatat activities are cither greater or smaller thatr thc correspondirg scorcs on orientation towards devclopment and tho lz-vatue is very insignificant. Thus there i. no .orr.iuti-onrh-i-p b.t*.ro the officials' observance of rules uoO pr*.Ouiu, 'and their and procedures
orientation towards develooment.
Bur eauer atic C haracteris tics
& Developnental
Ot ient atio n
251
Examining the relationship of the perceptions of officials engaged in developmental tasks in Punjab on impersonal treat ment of thcir clientelc and their orientation towards develop' ment, we fnd very high values attached to impersonality far .exoeeding the high perception on development orientation with a sharp reverse picture for modefate and low values attacbed do the two characteristics. The result is that the I,s-'ialue is 30.42 which is signifioant at I per cent level of probability for 2 degrees of freedoo. The ofrcials' perception of impersonali$ {n Punjab is, thus, strongly associated rriith their developrnent
orientation. The same situation docs not exist in Madhya Pradesh. The observance of the principle of impersonaiity by the ofrcials is not related to their orjentation towards develop' Inent.
that in Madhya Pradesh, the observanco of the principle of impetsonality by the officials might not have been a hiodrance towards their corrosponding developmcnt orientation, but as the caso of Punjab .illus atcs, a too strict an observance of impersonality by ofrcials in their -d€alings has not proctuoed the righi development orientation in the values of the officials, The orientation of ofrcials towards dcvelop' 'ment has thus to be conditioned by the diversifred requirement
It
of
is possible
different clientele grouPs.
of the
officials ' of the structural division of dutiss' hierarchy, charcteristics of bureaucraoy, with their correlatioo system of rules and impersonality has devclopment orientation in Punjab but not in Madhya Pradesh' The combincd perceptions
In respect of strirctural characteristics of bureaucracy and its inter-relationship with development orientation of the officials officials there is some inter'state difference in the perceptions of of in the two states' The officials of the Goverument Punjab of bureauattach higher values to thc structural characteristics percep' The cracy tban their counterparts in Madhya Pradesh' correlated tion of the officials about impersonality in Punjab are with their perception about development' The trend of high' ooderatc and low vsluos about the sttuctutal characteristics of
2s2
Bureaacra c Values in Development
bureaucracy in the two States is, however, somewhat similar, On the whole it can be eaid that the pace of deveroprnent is not impeded tbrough an adherence to the weuerian bureuucrati"
characteristics case of Punjab.
of
adherence
to rules anti procedures
as
in the
On socio-personal values, a very high emphasis was given to the integrity of character by the devclopment officials ofpunjab cornpared to their orientation towards development white the
moderate and low values given to integrity of character were much smaller than their orientation to development. This resulted in large increase in the Xr-value which became very significant at 17.'79 for 2 degrees of freedonr at 5 per cent level of probability. The integrity of character of the officials of Punjab has therefore strong association with tbeir orientation towards development.
In
Madhya Pradesh the high, moderate and
low
values
attached by the officials to integrity of character are more or less equal to those given to orientation towards development. This gave very low and insignificant value of X,z at 0.13. Tbus
the present level of the integrity of character of the officials activities has no relationship with
engaged in developmental
their orientation towards devetopment.
In Punjab high values of perceptions in respect of equal treatment of individuals were indicated by 53.9 per cent of the respondent officials and low valuos of perceptions by g.g per cent ofthe offlcials compared to high and low values of43.2 and 22.0 per cent of the officials respectively in favour of orientation towards development giving the Xz-value as 6.94 which is statis. tically significant. There is, therefore, good association between the observarc€-of principles of equality of individuals bythe officials in Punjab and thoir orientation towardi development.
In Madhya
Pradesh, however, the high, moderate and low by development officials to the principle of
values attached
equality of individuals. were either marginally higher or lrwer to devclopmeni oriintatlon. The X,r_
than the values attached
Bureaucratic Characteristics & Developmental
Orientation 25t
between value is insignificant at 0.04 indicating no relationship by lbe of treatment principles of equality oOtttuui.. of
inu
orientation" om"iats of Madhya Pradesh and their dovelopment State' in that The two variables are independent
like
status conscious' is no associa' there o.s.1"], vis" a-vis. development oriEntation; developmenon those and tion between the officials, scale values There is a Madhya Pradesh.' iul otit","rioo either in Punjab or conscious be to States the the officials in both ;il;;;;""gst neither bas factor this alrd stat-us as administrators, "U"ltitt "ii nor helped their orientation towards development' irop*ait.a and in aoutyriog the combined relationship of socio'personal orientatiotr' so"io-admiJirtrative values with the development perception of there is no associaton between the we find that ";;;;;;;;tsocio-personal and socio-administrative
As regards socio'administrative values
ffi;
in the two States' uu1o". una these on developmental orientation It may be conciuded, however, that.the existence,of'Jevelopment or less persotral to orieniation in individual officials is more bv the *".t uo o,i.ntutioi it not likelv to be affected as values ive differences in socio'personal or socio'administrat percepttons' thc off&cers tend to share the same valuc
;;; ;;;
tbe Governments of As regards tbe perc'eptions of officials in P;;J with regard to the principle of
Punjab and Madhya orlsntatioc LiiJi"ritt and its correlation wittr their dev:toprent these two to attached ; fi";'*td" divergence il values of high and low values variables, €specially in extreme cases and-developmeLt rationality there i, a gooct coirelation between values' orientation in both the States as indicated by signiflcant Pradesh Madnya and Punjab ofx3 at 19,55 and 24.14 for officials respectively. It can further be inferred that the in their rationality of io* perceptions to obsorv&oce of their "ti""ti"g discharge in and dealiogs with the public and clicntele cotno have they Butlarger' duties-may be proportionally the At development' towards respondinily largei orientaiion of States the in,both same time a larger percsntage of officials orientation higher have p""pU Uianya Pradesh may "ta but the same number may not have higber developmont towlrds
254
Bureaucratic Values in Development
perception about rationarity
in tbeir behaviour. It can,
thercfore, be suggested that observance of rationatity as a behavioural value is associated with developnrental orientaiion.
,In Punjab only a small proportion, -th;
ofrciars have tow score on authority against 22 'per
viz.6
per cent
of
thc
beha;io;;;i ;i;r' rElatins to cent ofthe officials hauiog tow dogr.,
of orientation towards development. fnr.or-Ui'"j proportion gf gmcia! having high and moderate *f"., is as higi as 94 p€r cent against 7g per cent ot ofrcers "r-'"*lority fiaving high and moderate scores on develsprnsnl orientation, 1n Madhya Pradesh the percentages of officlals sbaring n*n moderate perceptions of the behavioural value ""0marginally of aut-noriiy are lower than their percentage showing the same degrees of orientation towards development. It i, *urginuity io the opposite direction for the low value.
The Xs-test shows correlationship between the values of and devetopment punjab, in the 3tate of bur not 3tlh:tily in Madhya Pradcsh. The results howcver, demonstrate that lbr a programme of achieving rapid development, a rigid authority system may not be helpful in the initial stages of ievelopment, but once the system is stabilized aDd esb;ished the authoritv system that comes into being may not necessarily hinder the process of development. While examining the relationship of the clubbed behavioural , characteristics of tbe bureaucracy and its
orientation, we
development
find low and insignificant values of
Xr in
Punjab and significant values in Madhya pradesh. The com_ bined effect of the bchavioural characteristics
like rationality and authority has thus not hindered the oftcials, development orientation in Madhya pradesh but not so in punjab. The findings in this chapter should be helpful in the validatlon or otherwise of our hypolfreses that had been constructed in the beginning of the study.
9 Bureaucratic Values and DeveloPment : An overview
A fundamsntal assumption that has prevailed throughout tho prcsent study has been the acceptaocc of the concept of development as an aspect of change "that is desirable broadly predicted, or planned and administored or at least influenced by developmentalactioo."i Development adminishationhas' therefore, bson takan to be synonymous with the carrying out qf planoed chango in the €conomy (in agriculturg, or industry' o'r the capital infra.structure supporting either of theso), and to a lesscr extont, io the sooial services of the State (especially eduoation and public health). The most direct forms of governmental action are influenoed and executed through its bureaucratio apparatus, and in turn the bureaucracy atso influ' enc€s th€ actions of othcr groups and agcnts as well as lhe efforts of the eotire community. The whole pfocoss, howover' presuppo$es
a
system
of
bureaucracy-comprising
a band of
civil servants, who nsoessarily accept devclopmont as their paramount goal. Tho issue of using oxisting bureaucratlc uppurutu, for development purposes is. linked with tho ways of romoving what most civil servants porccive as thrcats to
their personal or institutiond survival and of encouraging more productive attitudes and behaviour. Thc bureaucratio
dcvelopmcntal goals may be possible,only through ohuogot in their social, administrativo and political valucs'
approval
of
256
Bureaucratic Vatues in Development
The basio proposition underlying the present study outlined in great detail in the first chapter tnut tn" old traditional values of the Weberian and Colonial bureaucracy place impe di. ments in the achievement of developmental goals had been the theme of many learned work in this 6eld. Anv mean neful analysis o[ an administrative system requires a deeper insight into the value.orientations of the administrators. bur investi_ gations in this study have focussed attention on some of the administrative and behavioural values of the civil services at the grass root level with a view to enquire into the impact of the bureaucratic values on the adnrinistrative performance and to discern wbether ao anti.Weberian moclel of the administrative system and the process of de-bureaucratization can holp meet the requiremeots ofachieving the developmental goals of a developing society.
We began this study with the consideration of the value perceptions of the officials ol' the Srate Ele ctricity Boards who are engaged in the development of the rural slectrification
programmes and of the Irrigation Dcpartment who are responsiblc for agricultural irrigation work iepresenting the two
developmental activities as also of the Rivelue D-epartment, responsible for revenue collection representing the non-developmental activity of the government for the puiposee of
project. Although the Departmont of
this
Revenue is treated even today as a non.plan department and has ostensibly no developmental tasks to pertbrm, the officials' responsibilities have
peroeated greatly into developnrental endeavours. A tehsildar, the most important man in the so.called non-developmental department, is now very activeiy engaged in developmental planning, arranging for loans, agricultu;al inputs and a host of other developmental inputs. In fact no'progr"ss in rural development is possible without his active suppiit-.vro tnougt !e laf be generally regarded as an ofrcial unconnccted with the developmental tasks of a devefoping country, in" Oi.tlo"tion between the dovelopmental and tasks is made in this study solely with tne"oo-O.ojopnrrotal purpose ii compars the . value systems of offcials performiug t*o aiif*.Jtur*r.
Buresucratic Valubs anil Development : An Overview T.HE
257
VALIDATION OF HYPOTHESES
the beginning of this study' its findings' while others fufor, of ihrs" hau" found support in of Lave revealed marginal nuiiutioot' The most important engawhcther India those hypotheses that the bureaucracy in
Several hypotheses were raised in
' share tbe in dtuatopmental or non'developmental tasks proved' The s-a.e role perceptions and values has been truly the same values shows lr.eptioo oi officials of their bureaucratic pattorn in all the three depattments irrespective of tho ofiasks assigned to them' The structural characteristics
g"a
;;ii";t r",",.
of oi uurruo"tu"v, viz. bierarchy, division of labour' system imiersonality are predominant in both segments of rrf"r ""J adninistration and in different territorial areas' The interand these departmental difierences, if any, are only marginal' but from reasons' organisational any at.t out not because of
p"r*onut value considerations of the o{ffcials concerned' How' in.r, differences have been noticed in the order of high values utt*trca by tho officials to those characteristics' While the to officials engaged in developmental tasks attach high values
of impersonality, system of rules, hierarchy and division non'developthe in duiies in that order, the officials engaged system of mental tasks also attach high values to impersonality' In order' that in ,of.t, alnirion of duties and bierarchy and Duties of Division positions for other words ths value hierarchy get interchanged io tht two activities' demonstrating that impersonality and system of rules are still tho most tasks importani guiding values for the officials irrespective of the performed.
The inter-State variations in this respect also follow the percentage of same pattern. Curiously enough while a greaterPradesh Madhya tban state officiais in Punjab, a moie developed the chatacteristics' structural show high atiachment to these levcl same attaching Pradesh Madhya o..o"n,# of officials in stages ii t"r"ti it gomewhat less, suggesting that in the initial of systcm existing the in neifuitiry oi Jrnutopt"ot, a littls once but necessary; and pcrhaps desirable is burcaucraiiaation
258
Bureaucratlc Yalues in Developmenf
a- programme gets going thcrc ie evcry tendency on th€ part of the ofrcials towards increased Uur.uuoratiraiioir.
amongst the socio-personal valucs, a greater proportion of officials attached high value to integrity of character (at leasf ostensibly) followed by equality of individuals. The value perceptions do not reveal any significant inter.departgenlal differencos. it appears that the nature oftask performcd .Thus by the officials has had no impact on sbaring these valuo perceptions. Howcver, with respect to socio-iultural ard socio"adminisirativs .values of caste/class considerations and stalus-consciousncss, there were significant intcr_departmental as well as intcr-State variations. While a greater perc€ntage of offcials engaged in tleveloping activilies in puniab showed less attachments to these value ofientatioor. grautff percentage of ofrcials engaged in non-devetopmental " activities showed greater attacbment to these vatues. The intcr.state differences also reflect the some patt€rn officiats in Madhya Pradesh showing less orieniation -moretolf,.r" values than in Punjab.
'
.
The.officials- of the Department engaged
in
non-devclopment
greater status.consciousness thao the ofrcials engaged in developmental tasks in both the states. This supports the largely held view that the officials in the traditional departmcnts arc bound to bo more bureaucractic than in the newly established dcvclopmental agencies. tas&s drsplayed
. Similarly with respect to the behavioural values, the findings indicato tbat tho offcials of the so.called non-development department tend to be more rule-oriented, authori ty-conscious and rationat than the officials .og"g.d in Cwetoprentat tasks. The inter-Statc variations aie'sigoincaot. Grcater pefcentage of officials in Madhya pradesh had low attachmcnts to these bohavioural values comparcd to that of nun;af, wn.rc jl: i""iO.."T of.devolopment was higher. This again supporrs tne conclusion that in the initial stagcs of thc estiblishment of ofan organization, when tho rolo-eipectations ana goal-percep. tions of the officials ere not quito cliar, thcy i;d-;, demon-
.
Bureaucr'otic Values and Development : An
Overview
259
Etatc grester flexibility in tbeir behaviour than in the obsorvanco of bureaucratic values in the agcncies whicb havc cxisted over a period of time. This oonclusion is also evident from th-c fact that the value-perception of ofrcials cngagcd in a
traditional activity likc that of revcnue collection
remains more or less identical and on the same pattern in the two States
irespective of their geographical locations and the nature of work performed. On tho wholo, thus, the first hypothesis that the bureaucracy in India whether engaged in devolopmental or non-developmental tasks share the same values and roleperceptions, is truly proved.
The sccond hypothcsis whether a different sst of values, orientations and attitudes is necessaty for the officials cngaging in developmental tasks also gets good support from the findings of the study. The analysis of empirical data in both the States clearly show that the percentage of ofrcials engaged ia developmental tasks who could be regarded as having the right type of developmeot oricntation varies only between 4l to 48 perc,cnt. It follows that a larget proportion of the ofrcials have a more bureaucatic attitude, which hinders the procosses of change and dovelopment. There is thus a need to inculcate a const€llation of a different value systems otber than the strictly bureaucratic ono amongst all officials, but particularly a&ongst thosc engaged in acbieving dovelopmont targets. An ofrcial having grcater dcvelopment orientation is likely to be one who could show more flexibility in the intcrpretation of system of rulcs, and less rigidity in the observancs of thc principlos of hicrarchy, and impersonality. Amongst the behavioural values which secm to be most cherished amongst the officials have been the strict observanco of codos, rules and regulations and adhering to tbc principlo of rationality in decision-making. While from the ofrcials' poiot of view such valucs ensure thcm protection from unnccessary public criticism, the dovelopmental work which is most often situational, docs need some flexibility in the strict observance of the letterr of rules and rogulations. It thus scems desirable that for developmcnt purposes, the group of officials shr;uld be imbibed with different burcauoratic valucs than those who are eogaged in the non-developmental work.
260
Bureaucratic Values in Developtnent
Apart from the bureaucratic charactcristics, the study
atso
reveals that the developmental ofrcials must po$ess a definitive attitude towards the decentralization of authority as well as encourage participative decision-making. The ofrcials engaged in developmental tasks do need to poss€ss a different attitude of change and dovelopment orientation rather than ao attitude. of the maintenance of status-quo alone.
The third hypothesis whether
the value orientations of
the Indian bureaucracy are in dissonance with the developmental .goals and are ambivalent, complex and contradictory is only 'partly supported by the findings of the study. As the conclu'sions in the earlier chapters sbow, the degrea of bureaucrati-
'zation of the developmental or non'developmental d€partmcnts is almost on the same par in both the statos, although one of the states is wetl developed while the other is still in the process .of devolopment. This follows that the officials' attachment to "the structural characteristics of bureaucracy aro not entirely incompatiblc with the processes of development. Thc frndirgs €ven go to illustrate that a burcaucratic organization is some' 'what ossential to the processes of devolopment.
However, some
of the socio'administfative and bchavioural
that the officials sbarc do come in conflict witb 'their developmental orientation. Whilc the pattern of values attached.to the 'integrity of cbaractot' and'equality ofindividuals'is more or lcss the same in the two States under study, the compatativcty low percentage of officials attaching high importance to 'equality of individuals' in both the States and particularly in tho dcvelopment dcpartments indicatos their incapability to absorb the due or undue pressures tbat arc often brought over thcm from difrerent guarters in the dischargc of 'their functions. Although the ompirical data does not reveal .characteristics
"any significant variations on the attitudo of ofrcials to caste/claes considerations in their decision-making, it does not also show any sigoificant correlationship between the adherenco to caste/ class considerations , in the development and non.developmert departmonls of both thg Statos. Even the kind of preferential .treatBent that is constitulionally requirod to be shown towards
Bureaucratlc Values and Development
the
weaker soctions
t An
Overuiew
261
of the community gets bogged down io
actual practice. Some significant percentage of officials of tho Department of Irrigation in both the States s€em to attach high imiortance to this value as compared to'that in the Electricity or the Reveoue department. This clearly supports thc welF prevalent belief that in the matter of opening of irrigation-d ucts -or
water channels, caste/class considerations docome into play, especially in a less developed State like that of Madhya Pradesb in comparision to that of Punjab' Interestingly the findings also indicate that the officials have a feeling that a greater pro' portion of the bettor'of population is not. prepared to give appropriate consideratioDs to the needs of the less prosperous oiti""*y, and on thcir own part they seem to be quite helpless in showing preference to the needy sections of the society'
Amongst the socir'administrative values, a high incidence of statuJ-conciousn:ss has been noticed both amongst the ofrcials working in all the three departments in both the States' Whilo this sort of perception is understandable to certain
.
€xtent amongst the ofrcials engaged in the non'dovolopmontal the activity of Rivenue collection, the same is imperceptible in various casc oi officials engaged in development work, wbere the on the classes of ofrcials have to work as a team' Although in the whole incidence of status consciousness tends to be lowpr proportion developmental departments in both the Statos' the a high' very still is trait colonial this to stickin!
of omtiutt
If
spirit of team-w;rk ig to be inculcated amongst the ofrcials' ,ii i, neccssry that such a value gets low priority and sooe
institutional doviccs to secure participative decision'making and team-work be introduced in the system. Howovor, it must
also bo remembered that thc ofrcials' perception of status' consciousness tends to inctease in relation to the pow€r and authority that the ofrcials come to enjoy as a consequence of the growth in their developmental programmes and activities' Caro has to be tak€n to see that the influence of such growing authority is. not avetse either to the processes of decision.rnaking or to the accomplishment of developmontal objectives'
The fndiogs haw also indicated that a
majority
of
262
Bureaucratic Valaes tn Development
officials in the development department show less orientation towards change and achievemeat of development targcts, A possiblo reason why the officials are trot able to develop a right orientation towards change and development. is the lack ofany motivation on their part to do so. Since the offcials' promotion policies aro largely governed by seniority, their performance has tess rclevance to their achieving the desired developmental goals and targets. Similarly tho data also
reveals that the authority-oriented outlook of the ofrcials does come into conflict with the achicvement of developmental goals. Thus. the citizen.clientele relationship would have to be based on diferent value-pattcrn other than the authority and statusconsctousness.
The fourth hypothesis that the value constellation of the bureaucracy reflects the ethos of the social system from which the ofrcials are recruited gets a major support from the findings of the study. Although the majority of officials belonging to Class I and Class II services engaged in devolopment tasks are comparatively young in age, but a majority of these have an urban or a big town and a 'service.class' background. However,. in terms of economic factors such officials cannot be described to havs come from afluent classes, but they tend generally to come from the middle-class families. It is only in the Class III services, that a major shift is noticed in respcct of their socio-economic background, wherc majority of officials tend to come from lower or lower-middle class families in the society. Although thc findings do not attempt to provo that the officials belonging to a particular constellation of socior economic back-ground tend to carry the same attitude in their work-environment and thereby Condition their decisions or
actions in the performance of particular tasks, but these do a correlationship botween the valuc systems of the officials and their socio-economic bactground. Thc tcndency on the part of Class I and Class II officials to attach high values to hierarchy, authority and status-conciousnesg are in a way roflective of their socio.economic status that they onjoy in thc society. . Even the majority of Class III officials, who comc from a rclatively lower socio-economic background do show reflect
Bureaucratlc llalues and Development : An Overview
263
for the bureaucratic values once they dig their tho bureaucratic jungle irrespective ofthe fact whether they are engaged in developmental or non-developmental tasks.
greater regard
feet
in
Further, although the marital status ofthe officials does not bave any significant correlationship with their behaviour on the job but therr having to maintain a larger or loss number of dependents does have some bearing on their attitude towards the bureaucratic characteristics. The kind of hierarcby/ authority system that the majority of ofrcials have in their social set up is also reflected in their official-behaviour. Similarly the tendency of a majority of officials not to indulge in participative decision-making and of status-consciousness is indicative of the kiod of socio-economii ethos in which they had been brought up and continue to live and bring up their families. The fifth hypothesis, whether the possible inbuilt resistance of the svstem still continues to be based upon the old colonial traditions is also supported by the findings of the study. In an
elrlier chapter, it has been demonstrated that a majority of officers sbow a high orientation to the olubbed values of structural characteristics of bureaucr'acy. In thoir orientation
iowards their clubbed perception of. socio-personal and socio. administrative values as also the behavioural charactcristics they show the same high value patterns. In other words, the fact wbother they had been engaged in the development activities or not makes little difference to their orientation towards. beureaucratic values, Their orientation to soiio-personal, socio-adminisrrativc and behavioural values does not show any significant variations from that of their' soore on structural characteristic of the bureaucracy. It can thus be construed that the inbuilt resistanbe of the bureaucracy towards tho developmental programme is largely an extension of their €arlier colonial traditions of a rigid bureaucratic system, whicb has not much diluted despite somo changes noticed in thsir behavioural pattem. The findings also point out that the pace of development cannot be accelerated through a very rigid adherence of the Weberian characteristics of bureaucracy, nor does it scem possible to suggest that a rapid programme of
Bur eaucratie T alue s ln Developm
264
en
t
debureaucratization would bo able to bring about accelerated progress in the field of development, Finally, the hypothesis whether the bureaucraoy in India has no clear concept, perception and cvaluation of its oapacities for developmental tasks is not strongly supported by the findings ofthe study. It appears that by and largo a rnajority of oflicials seem to feel that they possess the necessary skill and capacities to cope up with their developmental responsibilities, and at least half of these officials have a feeling that their education' training and experience was being properly utilized for develop'
A
minor percentage of these officials however, that their educational achievemcnts and training were not being utilized adequately. Thus it appears that the officials in their own perceptions secms to posses the necessary skill and capabilities for developmental work though at least one tbird of the ofrcials expressed grave doubt about their capacity to meet the challenging situations of the changing environment. mental tasks. seems
to believe
On the reciprocal perception of the villagers whether they think that the ofrcials possess the nocessary capacities and
skill to perform developmental tasks, opinions had been divided. About 40.42 percent of the villagers interviewed in both the States had been sceptical of the ofrcials' capacities to achievc developmental goals and targets, and only between 25-30 per cent of the beneficiaries felt that they possessed the right aptitude towards developmcnt. It is also significant to note that about half the rospondents in the villages felt that the officials had to be goaded for developmental work through the exercise of pressuro by the politicians or the party bosses. These facts indicate why many of the officials, although think themselves to be capable to discharge the duties of a developmenta; officer, find themselves unable to cop€ up with actual work onvironment and are unable most often to resist the pressures of the political leaders either for justified or unjustified causes. On the other haod a majority of the beneficiaries carried the impressiou, perhaps erroneously, that the ofrcials tend to be more acoomruodative to the requests of the political leaders.
Bureaucratlc Values and Devetopment
: An
Overview
265
THE THF,ORETICAL IMPLICATIONS
on bur€aucracy tbat of development and scttings in various have been conducted to have firmly establi' seem framework in different ecological brought up in the of officials band the that shed the theory The findingr of a large number of studies
traditional administrative culture, and wedded to the Weberian model of bureaucracy is totally unfit to perform the responsibilities of devetopment administration, It has been argued again and again that the development administrato-rs have to be qiite flexibti in their approach, shed the existing formalism, be amiable in nature, ostgoing, people'oriented and should be wilting to takc risks and on'the'spot decisions without worrying for thi procedures, and the rules and regulations notwithstan-
dirg' While the present study does not attempt to rebut this on thoory, nor do the findings indicate that such an attitude th. jutt of tho officials will not be conducive to attainment of dwelopmont goats, the study does point out certain limitations to a blanket acceptance of the above premises and in the process seeks to answer some questions having theoretical implications that had bcen raised in an earlier chapter'
fhe study clearly dcmonstrates that the values imparted by the colonial bureaucratic system, so far as its structural the organisation is concerned, does not necessarily stand in industrial and wa'y of development process. The agriculture
progr.r* that has taken place in Punjab since Independence has ieei attained through a hierarchical organisation with a system of rules, prescribed individual resp cnsibilities, and-the observation of impersonality on the part of the ofrcials' These are not always impediments to development' On the other of the offi' nnoO, ttttt" providi a framework for the operation goals of developmental cials, without which the accomplishment the However' impossible' bccomo difficult, if not altog€ther when dysfunctional become same very cbaracteristics tend to greater €mphasis is laid on their observance instead of making ise of them 8s a tool towards lhe accomplishment of the tasks-
266
Bureaucratlc llalues in Development
The same very fact that the state of punjab has moved to a position of rapid development and that *ith alt the structural characteristics of bureaucracy, the Government in Madhya Pradesh has embarked on a programme of development, show that the bureaucratic system per se is not inimical to develop. ment.
Similarly
it can also be inferred
from the findings
of
the
study that the pre-Independence burcaucratic traditions which train the officials to resp€ct their political masters, to observe a system of rule and to maintain a high standard of integrity of character are not necessarily a stumbling block in the
way of development, The high values attached by a very bigh proportion of the officials to the observance of rules and integrity of character suggests that notwithstanding the naturc of tasks, these are essential values which make a p-ublic service more dedicated. Our findings have not at all given any indication to the contrary view-poini that tbe non-observance of rule or a compromise with one's integrity will accelerate the process of development. These qualities are as much necessary in the public scrvices of a denrocratic developmental framework as they are supposed to have been tbe traits of rhe bureaucracy in India of the pre-Independenco days, Forone thing adherence to the rules gives the oficials a chance to 'defend themselves against unwaranted criticisms or attacks, fo1 another matter, it enables them to maintaio impartiality ,andin the face of enormous political and other klnds oi pressures us also to apply a modicud of . egalitarian treatment in making ths fruits of development available to people.
the study does not portray that the attributes of-SimilarJy capability and honesty are irreievant- to development. In fact the findings clearly show a gap betwten the ofrcials, own perception and the villagers' perceptions of their capabilities for deveroprnent. Thus it appears that the most desirabre attribute of a development adnninistrator would be to be inherently capable of performing his development tasks. Here thc study certainly rcveals the weakness oi the officials, to faco
dcvelopmental challenges.
""pu.ity
Bureauarattc Values and Development
i
An Overview
267
A lot has been written altl said about the result-orientatiotr does suggest u i"uJopttnt administrator. True, the study officials' as the "f part of tbe need for such an orientation on thc is necesattitu-de an the findings do bring out the fact that such give duo officials ."iyftt ripid pace if development' If the ablo to secure consicleration to this value, they would be more ofthe politioians the ready cooperation of their own colleagues' work' But tlis and of the masses at large for developmental of orientation' -allto achieve tuir typ. does not mean that io orior
and
rules, regu|ations, procedures the officials should ignore mean that the criteria result'orientation florms. Nor does the be sacrifuirorrr, just dirtribution antl allocation of resoutces An official "i fcod on the altar of their being result-oriented' would of a result'orientcd
p"r*tJ"g,ne outlook
.:dmT:lJator to face socio-political uff .nuff.og.t ani opposition from all kinds of sacrifice would who pcrson .nniroo..-otr, tut noi the kind of to get able tobe the prime values of his profession in order along with his colleagues' suporvisors and politicians' be necessarity a person
who would
have the capacity
system that Thus the kind of theorotical framework of a value to some which oac the posscss is th;;;;.hil;t officials must character' bureaucraticextent has to be based on conventional and
istics,
of hierarchy, system of
;;;;"fty.
rules' division of labour
rne'miines of the studv do.og' P^oiot out that is the
of administration goals bf a development for achieving the "oiy-J1tu*itine adminis'ration.However,thestudydoeesuggestsomemodifica. and behaviou' {ions in the socio'personal, socio'administrative On theore' administration' ral value patterns ;f a dovelopment have to be would ofrcials tical ptaoe, the valuc system of the searedinamannefinwhiohthenegativismofthedysfunctionthe minimum' For ;;;;;i;";.;;;;ttutioo are reduied topoint out that a dove' study of-the ,iit porp*t the conclusions (a) is flexible whioh framework a lopmental bureaucracy needs oonsiderainto take i'c', able-to pragmatic, lo'it, opttutioo, (b) is point practical a from circumstaqces ilt tnl "-is""oi"s or ineprocesses based of view, (c) encouragcs open decision-making ooaitttot-uoadisoussionsamongcolleagues'(d)isoentered
"-Jorpr.t"li
debureaucroiized model
268
Bureaucratic Values in Development
around client-oricnted philosophy, and (e) is laden with human for all espeoially for tho weaker.
values of sorvice aad sympathy s€ctions of the community. ___Various
attompts havo been made by many theorists, such
to
as.
evotve a theory ol structure that discar.Js bureaucracy in favour of more feiible forms of orlanization.2 Bennis painted a picture of a non.hierarchical oiganization,. temporary in its arrangements, governed by ability rather than by authority, with democratic methods of supervision. Hir model closely fits the needs of modern organisation with a specific task to perform in a rapidly changing environmcnt. Such.a model was highly successful in t4e USdin putting the. man to the moon. But it is doubtful wlether Bennis's theory will equally worh in an cnvironment of development where an amorphous clientele confronts a fragmented servicc-oriented institution such as an Electricity Board or an Irrigation Department. Clearly what is needed is a new-version of the iostbureaucratic theory appropriate to a client-centred organizatio n. Orior White came very close to discovering oo" ,urh alterna* l1ut,t A buroaucracy, in its purely idoal form, treats clients as. if they were the last layer in the organizational hierarchy. lt Warren Bennis
boxes clients into specialized categories and forces the clients. to adjust to conditions as they exist, Becauso the bureaucracy suffers from tbe soarce resour@s and the clients ask for too much, the bureaucrats treat the clients impersonally. If the client demands special treatmcnt, or does not confbrm to tbe organizatiou definition of propor bobaviour, the clicnt is not treated well at all. White tried to reversc those patterns and suggested that instead of client as subordinate, rhe agency treated clients as peers. But that could not approximate those, ideals any morc than traditional organizations could be perfectly bureaucratic, And such an organization was never able to solve the problcm of scare resourocs, which is the primary cause of bureaucratization in public agencies,
In the samo vein, another attcmpt was made by Friedrick Thayer, a career public oxecutive turned scholar, wio attacked the principlc of bierarchy and suggBsted ..that orgaaization a!
Overvievt
269
to wither away' disappearing
undcr
Bweaucratlc Values and Development
hierarchy can be made
;lslil i"""f".
'
An
the asscoblv line' * a*ornu decisions' redesign that cut in administration''Inand plao systems a "prosees he place' "f"",. bounoat-ies"'n its
across organization
of groups' reprcsenting collectlve will, wnere]college ihe solution to a problem' the various elements invotvtJ in In a way it is like would interloclc ,o *"p ooiil" lototioo' i"tii"e tn. organization pyramid on its side "5 cess of
the post'bure' is thus a lot of confadictions amongst structure that bureaucratic aucratic theorists about th. [i;;i There
couldsolvetheproblemsofdevelopmentoiheterogeoussociety post-blreaucratie tire that of India. All tb*;';;;il about -the. administrative the. of edge organizations are on the i;Ji;; i"oOt extrapolated frolD o"-Jtiu-t? uu can These research. "' studv can-^s1ggest that -wouraroat events. Similarly *tt-^ pttt*t be. more,appropriate the structural organizatio"n tluutwhere (a) notwithsuch for developmental work i""rd ut flows to nti'ut'ntui-puitern' the authoritv, which ;;;J;-;;ctd Problems"(b) the persons withthe auiritv io :;ilil is clientsituations' "-uil"j tn"' to Gr ""oi*-ooication ,(c);; professional "tttc'og and . oriented, (d) encourages opto solviogand problem to mobility, and (e) ."t "[i""J"no" particiPativc decisions' POLICY IMPLICATIONS what systen tho existing bureaucratic steps could be taken to mouid What tlen are policy in plications
of th€ study-- and
tobeabletoservetheneedsofadevelopmcntadministration? to make certain clranIn the frrst instance, it seems necessary of the bureaucracy that mieht ees in the structural compotrents theofficiars to operateand bring behaviour for about.the dcsired changes in the bureaucratic policy strategy developmental tasks' A three-pronged the number of adopted it tnit-tltp"tt ful ttAutiog. "r"t"if.g be needs to especially inlbe orgaoiza' lcvels in tbe decision-maxing pio."$, clearly shown that tion ofthe fietd ofEccs' Oolt- fiodiog* have
;il...i;il;l;;;f
i;
z
Iu
Bureaucratic yalues in Development
delay on the part of the oftcials to take decisions on greater agriculturc production has _promoting Deen a source of constant irritation aiA OiscontJnt between the offcials and rhe beneficiaries, (b) tne omciairlill. field establishment shoufd be vested with reqoirit" and power O: ""ii""ty to take spot-decisions in the execution of dovelop. ImentalibJr targets, and (c) the functional division of the work between the officials should bo such as would .ncourage team work with a determined leadership and direction iD the implo_ mentation of development goals.
-1T-"i0". urgent mattcrs
The structural aspects of the development organization would .have to be further moulded with a oiew 1o ,rruru opro communicatioh and professional mobility amongst the various levels of officiats. Ii is also neeessary to ,., tn? the system
of rules governing the organization should be madc more
flexible so as to adapt itself to the situations at hand, obviating the need of referonciq and cross-references at iigt.iirorl, o, ut tbe Head euarters. Secondly,
it is also necessary to make certain radical anunges ofthe incumbent officiars. If their orientation towards development has to match with the reciprocal perception of the beneficiaries, confiJence in their in.the socialisation process
capabilities, orientation of helpfulness, the oficials at every level of the administrative heirarchy have to be grilied through a regular preggs5 ofl training which would enable them to have a wroer understanding of tbe problems of the difforent groups of people at the grass root level and make them concerned
to find appropriate solutions to the arising problems. Evidently at present the officials at these levels riceive only very scant attentiou in terms of the education and training necessary for the developmental process. Out of the two iofr"qu"ot ,oO insufrcient Refresher Courses thdt ars_ at present tJlO for tn" middle level officials only a few of these are able to attend them.
At the district
and block levele, the burcaucracy wields €trormous power and prestige which in thc development context
Bureaucratlc Values and has to be utilized
t
An
Over.view
211
.Development
for publip goocl instead of misutilization for
self-aggrandizoment.
A
developmcnt administrator-.has nece' lcaclei, a pathologist' a politician' an and aieformcr-all rolled
;;fi1;;;";rganizer. .p"ciaiist, a "u"o!" "!tni the right "-p"iir*,] rp ii titgf. p"rsonality. It-is most important that
an inpJopr." ut. inoren and given proper orientation' Such programmes' iiuiduat has thus to undergo a series of training of the understanding own his in'crease ;;;;*h *ui"n rc could his locality-that orobtJms faoed by his nation, his state and factors in ecological of totalitv the [;;;;;J.nd-ing of he can best how think to made bc rhioh he work.. He sbould whose clients of the needs utifis. fti, speciality to meet the programmes training Suoh with' a*ttp*"ot he is concerned process' have to bc regularly a part of the official's socialisation at progress his to recruitment ;ight l'-; tni a"y or Lit ioitiul undermine tonot is This diflerent levets of the organizatioo' tn'n..afororientationinthenewtechniquesaoddevelopment he himsclf is to in the field of his own speciality' for whicb A constant -.interaction of' some €xtent responsible to develop' aad the specialists. with..public.men' social ilili;b*is groatly improve r.i.oti*tt antl with higher level ofrcials will engaged in officials process of the
il;;;i;ii"s
socialisati'on dcvelopmental tasks.
prograomes' In the context of administration of developmcnt attitude of necessary that the offioials develop an it i, lrfi.oi-otitotutiool "f* Remainiog under the law and subject to ris; controts of accountability, a development administralor of decision' JoofA Uu forwardJooking in his approach in respectgroup' Not clientele his ol problems ;;tt"c and solving the cision'makiug' but only he should encourage participative- de a be in closo touch with the olient groups through rnotfu and ;;fi; "f.. fattern of fiequent consultation' information communitv ,relatiooship has to ;;?;*: ihe administratortrust and confidence' ievelop on a oote of mutual
in Finally, it wsuld further be neccssary to effcct changos theofrcial'ssoci,o'pcrsonal,socio'administrativc'iocio-cultural value systems, in oidor to effect desirod changes in his behaviour
272
Bureaucratic values in Development
towards his own colleagues, towards his subordinates, towards the pcople, and towards the political leaders with whom he. comes into daily contact. A collaborative effort ofthe officials, the common men and the public leaders need to permeate the developmental process. For the moral concern and personat
responsibility
of
coercive powers
those cxercising the great legulating and oftho modern state, it is esseniial that their
value-systems should undergo some transformation. How
could this be achieved is indeed a ticklish problem. If the officials could be made to realise the importance of the ideals of human dignity and social awareness in tb.eir dealings much ofthe problems arising from their ofrcial behaviour could be ri.ritigated. This demands, what a public administrationist has termed, a sort of creative intelligence botb at the administrative and political levels. Administration. is mannod by buman beings and is thc ssrvant of a courplex society. It is tru€ that the qualities of an administrator, which motivate him towards public good and public interests cannot be either tested at the time of their recruitment or imposed through a sct of training progfammes. But such values can certainly be inculcated through a well designed and integratcd programme of motivation matching their performance with a regularieward and puoishment system. This calls for a promotion and inccntive system^linked with their productivity aE also the weeding out of the unfits. The ofrcials would have al$o to be enabl€d to realiso their importaoce in their work, so that they do not feel simply a cog in thc machine. A project-team appioach in the reorganisation of administrative hiirarchy wouii have to be iniroduced. The bureaucrats have to be enabled to shed out their inhumane, technocratic, impersonal and a faceless imaga fulty project their pubtic imagc oi impartlal ln; ,1mcra]s^must ano noncst lunctionares and at the same time be closor to their subordinatcs and othsr segments of the sooiety *itn r*oa they havo to work without laorificing their concern for public interest against the individual,s interest,6
ultimately public bureaucracy 8tatrd8 in oeed of -,Thyson8lttvity eratcat in order to serve publio intereet. public interesf actually is and how this could But what bc served
273
Overview Bureauctatic Values and Devslopment i An
can best This is a never ending search' Public -interest bended lowards any U"-r"rnuO when puUlic policies are not and the various conflicts of ioterests are
best
?
iotut"tts ,oJoi ".iff;"ff;;;airJ sreater measure
of
urr*,
rationality
process' lr a -and embodied in fraternity are
organisation
aid
creativo
of bureaucratic processes' -the ;;;;il;;gutaritv -broad of public ofrcials working i"i.irig.i." *a iliooir, iortitotional
symnathies measure organizations can help achieve a
of public good for the citizens'
NOTES MoatSom$y' "A Royal Invitation Classic rhemes", io john ;:'ft#;#;-*a
1 John
D'
io.k, 2 For
llili
varistiorg-on Three
w,itti"t r'
simo
and Clange (Now'
it'iit'-faii*ti'ation 259' Loader' i:iJx" "Post'Bueoucratic wiit"t seo
Aooroaches to Deielopment t
Mc'craw
i
Book Co , 1966)' p'
d€tails of alisoussion
'll:t#g*?ln',,,1['i;*Yl:i;,',t':,:h"f, P,"lilHilff'll; Cummings putfi.Hng Co', 1977'l' '6tguoi"utioo :, A: Alt-e..r-native to 3 orion white, "Tno piatectrcai' 29 (January'Fobruary Bureau6acy", Public Aitmini-stration Re ew'
oD' 345'
to conpetition rhavor' An Enit to Hiercrchv' An Enit 1973)' Viewpoint" (N€w York, Now ".
. 33il';ft3fu
Ideal anil Practice in Publtc athntntstration i lSio'u.-ot" s. Rodford, Press, 1975)'
(University of Alabama
APPENDICES
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278
Bureaucratic Yalues tn Developmen
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280
Bureauctatic Values in Development 9t?ao
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282
Bureaucratic Valucs
-3
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De\elopment
Appenilix
293
I
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284
Bureaucratlc Yalues in Development
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DELHI CENTRE ['OR POLTCY RESEARCH, NEW DEVELOPMENT AND BUREAUCRACY
.
(Rcplics will be kcpt strictly confidcntial) Please encircle the code number of the reply'
Ofrcer's schedule 3' Revenue' Irrigati'oo' 2' 1' RBc/sEB'
L
PrlneiPle of EierarchY
l.l
Are you guided by seoior
odc"r. for
a1y dccision
os
your l'
tating
Mostly,
2,-!{ten' 3' Some$s[om' 5' Never'
times, 4'
.
increa'
sing agricultural Produc'
tion/rovonue collcction?
1,2 --
"'
at 1' Mostly' 2' Often' 3' Sorne' Never' il'discretioa in the timcs' 4' Seldom' 5' interest of bctter Pcr' Caa you takc action
in agiicultural productioalrovenue ad:
formaoce
ministration?
286
Bureaucratlc Values in Development
If through your eforts 1. Ccrtainly, 2. Considorably, agricultural production/ 3. 4. Not nccessaritn revenue oollection in tho 5. -Usually, Not at all.
1.3
will you be rated high amonl
area increases,
ofrccrs of your status?
1.4 Do you have a chanco l. Mosrly,2. Often, 3. Someto take a decision on times, 4. Seldom, 5. Nevcr. your own with regard
1.5
to day-to.day work without consulting your Buperior omcers? Arc you required to do
l.
certain things which are performe d by your supc.
J.
riors?
Il. 2.1
Divislon of Labour
Is there any clear-cut l. To e great ext€nt, 2. To division of duties betsomo ortcnt, 3. Gencrally, ween you and your 4- Not so rigidly, 5. No
scnior ofrcers? 2.2
difference at
Is therc any clear-cut division of duties betwcen you and your ju. Do the senior ofrcers
somc extent, 3. Generally, No difference at all.
4. Not so rigidly, 5.
l.
A great deal,
2.
Enough,
responsibi- 3. iome, a. V"ry -iiiirrr, lity for work donc by you? 5. Nothing. Does your position re. l. At all times, 2. Maoy things, to do ],ou things 3. Some ilingr, A. p"* 3uire pertormed like ro take
by your
perior ofrcers? 2.5
aI.
l. To a grcat extent, 2. To
nror ofrcers?
2.4
Almost alt, 2. Many things, $ome, 4. Few, 5, practi. cally nonc.
su-
Do you have to do the of. work.dono olncrs at your levels t
ltl:
by
thi4gs, 5. praotically nona
l.
At all timoa, 2. Most of the time, 3. Soi*iiro,-i-li"relV, 5. Never.
Appendix
lll.
287
II
System
of
Rules
Do you feel tbat therc are adequat9 rules and regulations to guide You in your work?
3.1
In your daY'to'daY work, would You go strictlY
3.2
by rules which
l.
To a great 6xtent,
2. To
a
considerable ortent, 3' To some extcnt. 4. Little, 5' None at all.
l.
maY
moan Eore PaPcr work
Definitely, 2. ProbablY, 3' Not sure' 4. Wqul'l not probablY Profer, 5' Dofrni' tcly not Prefcr.
and delaY in tho imPle' mentation of the develo' pment plogf amn€s/r€vo' nue adminisfiation?
Woirld you Pr€for changiog the eristing rules in tba ioterest of achieving
3.9
targets
of
l.
Definitcly, 2. ProbablY, 3'
Not sure, 4. Would not Defrni' ProbablY Prefer, 5' telY
develoPment/
not Prcfcr'
revenue collection?
3.4
SupPosing that somo cul' tivators oome to You for
l.
Quite likelY'
3.
PerhaPs,
PerhaPs
4.
not, 5. CortainlY not'
immediate suPPlY of
'
2.
CertainlY,
water/electricitY/rovision
of tcvenue, cao You cut short tho sYstom of rules
'
and take Personal interost for cxpoditing thc availability of watorfPower
and increasing rcvenuc collcction?
3.5
Do you think that Your supcrior ofrcors will re'
primald You if You bYpass th! rulos and take
initiativo
in
suPPlYing
watcr/cloctrioitY/PostPo' ning rovcnue oollcction?
l.
Cortainlv, 2. Quitc likciy' 3. PcthaPs, 4' PcrhaPs not' 5. C;erteinlY not'
288
Bureaucratic Yalaes in Developnent
IY.
Selection on Merit
4.1 How did you join thc L Through 'present
4,2
pbst?
competitive test
and intcrviow, 2. Through interview only, 3. Through employment exchange, 4. Others.
Therc is a feoling that
is
it l. Fully,2.
difficult to gct a govcrnmcnt job without
Partly,
3. Not
at
all.
using influence. How far do you agrcc with this ?
4.3 What do you consider l. Merit,2.
Seniority in Govt./ to be the main criterion other department, 3. Hard of selection and advance_ and good work,4. Keeping ment in your depart_ your officcr happy, 5. A friend/ ment? rclation to speak at the right Place,
V,
Impersonality
5.1
me one pemon
is l
2. Largely, 3. I" .just morc or less the.somcwbai'ugrr",-i. Largety same as any other disagrce, 5, Entircly disagiei. son. Do you atrec ?-per. 5'2 Whether a pirson is I. Entirely,2. Largoly,3. Entirely,
or is nst satisficd Sqmewhat agree, 4. Largely yjlh pv- handting the {isagree, 5. Entiroly disagree. --.' case, I do not bother as long as I follow thc
prescribed rules, Do vou share the opinion ? 5.3
you com€ to l. Eatircly; 2. Laryely, 3. know cortain porsong Somewhat, 4. Lwgely disagree, wcll, you may find that 5. Disagrec complctcly, Evcn when
you treat thom the sams way as you treat others.
Do you agree
?
Appcrdix
289
Il
You soinetiurcs bccome l. BltirelYogice, 2r LargolY quitcclosc and fticndlY 8gfee, 3. Sooowhat agreo' to the P€oPlc during the 4. Largely disagroq 5. Entlrc' coutse of Your official ly disagree. work. Do You agree ? 5.5 Do you become Personal' l.' Certainly, 2' L*gelY, 3, ly close to the PeoPle for Al times, 4, Seldom 5' NeYer.
J.4 .
.ieasons
other
official work
than
? ..
5.6
YL
l. 2.
No preferential treatment, When You krow that treat PttferablY, 3' May certain known and trus" ted PeoPle will not let May treat eomewhat Preferab' you down, will You not 1y,4. Larg€ly Pt€ferably' 5. like to makc anY dePar' Definitely preferablY alwaYs. ture from trcating all People in the samewaY ?
Socio-personal Talues
6.1
Sdsit Even in difficult circum- l. Fully, 2. MostlY,'3, Never 5. stances the officials must times, 4. Not alwaYs, remain abovo board' Do you agreo?
6.2
No official can be effec' L StronglY agree, 2- Gentive if he constantly trics erally agree, 3. Agree somc' to aocommodate the times, {. Disagree, 5,'Strongly rcquosts and wishes of
.
everybodY. agec
Do
disagrec.
:
You
?
6.3 Administration betng .1. Strongly agraa,2. GonorallY what it is, one has to agree. 3. Agree sometimes 4. comPromise
with Princi- Disagreo, 5. StronglY disagree'
Ples. Do You agree?
2n
Eureaucrotlc Yalues ln Devclopmcw
6.4
Priocif,er of cquality of l. Certainly, 2. Largcly, 3. individual towards tlc Somctinoe, 4. Rarely, 5. Ncver
boac$ciarics should bc observed wbile pushing
through a dovclopmcnt pla_n. Do you agrac
6,5
?
Would you considcr fav_ l. ourably thc proposals of 3.
leadcrs who
cnjoy
Must
do, 2. Optiooal,
Must not do.
somo
public support, even if their proposals ar€ rtrsound ?
6.6 It is said that the rich i. Certainly, farmers get
all possible
production aids white
l.
rally ignored
by
4.
2.
Generalv. Sometimes, 3.
Never.
small farmcrs are gene-
cials, Do yciu
Partly,
ofr.
agreo ?
Yll. Socla-cal tural yalues 7.1 Do you think parochial and
thar castc
consideratioal play an
trnportant role
l.
€crtainly,
?.
Usuailv -
Partly, 4. S"raimer Not at all.
3.
""'f'lt
in
dovelopmcnt adminis-
tratisn in thc bfficials, work-area ?
7.2 Are thc dcvelopmcnt plans and policy modified to suit certain
Iocally castcs,
dominaat
classes/religi_
ous groups ?
Very much, 2. Considcrably, Partly, 4. Sometimcs ---- onlv --'J ' 5.' Not at att 1.
3.
AppeTrtftx
II
291
7.3 It is said that sites of l. Very much 2. Considcrably' ncw prograr.nmcs are 3. Pattly, . Sometimes only, on casto/class considofation.. Do You solectcd
5.
Not at all.
agree ?
?.4 Do your plans give l. Certainly, 2. Usually, preference to small/ Sometimes only, 4. Seldom,
3, 5.
marginal farmers/eco' Never. nomically weaker sections?
?.5 Does yout develop- l. Certainly, 2, Usually, 3. mental work give pre- Sometimes only, 4. Seldom, ference to diferent 5. Never. clarses, espccially the deprcssed ones in the society?
7.6
Are the better-off peo- l. Certainty, 2. Usually, 3. ple willing to sacrifioe Sometimes only, 4' Soldom 5. for the upliftment of, Never. the section of the com'
munity when a parti'
cular
scheme favours
the latter
?
7,7 la case of class cougi&t l.
By mutual disoussion,
theptoblem 2. By taking up et higher ofrcial lovol, reeolved ? ' 3. By tho help of political how is
Vm.
leadors,
4.
By abandoning tho plan
5.
proposal. Others.
Socio.admlnisftotivc valucs
8.1 Do you feel froo to discuss l. Vcry frce, important things
about 2,
Quito froo,
o
.
292
Bureau$alic Values in Developtrwa
wofk 3, Just suffciently free, superior 4. Not sufrcicntly frec, 5. Not freo at all. 8.2 Do the senior officers l. Invariably always, keep distance from you? 2. Mostly, 3. Sometime s, 4, Seldom, 5. Never. 8,3 Are the senior officers l. Invariably atways, of your department 2. Mostly, conscious of their 3. Somtines, status? 4, Seldom, 5. Never. yourself and your
with your oftcers ?
IX. 9.1
Behavioural Values
Would you like appoint. l. Why not, 2. Usually, ing a known person who 3. Sometimos. 4. May nof is readily available
and 5.
Never.
good at work even though it may mean deviation from tho
cxisting rules of rccruitment ?
9.2
go l. Certainty, 2. Usually, 3. take At times 4. Selctom, 5. when you are Never.
Would you like to out of the way and
initiative
convinced of
a right
ca-
use of a case?
9.3
Would you be influenccd
by the activities of thc pressure group in your work area and adjust a particular programmo of actio* against the set rules and precedents
1
l.
Must, 2, May,3. Optional, 4, May not, 5. Never.
Appadtx
9.4
II
293
Would you consider fa. l. Must dq 2. Optional, vourably proposals of Must not do. political leaders who
enjoy publio
3.
support
thc proposals may not stand tbe even though
test of rationality?
9.5
Whcthor a feeling of superiority/inforiority com-
plcx exists
in
govern-
l.
Very much,2. Largely, 3.
To
some extent,
4.
Little'
5. Not at all.
ment hierarchy?.
9,6
What is the attitudo of l. Vcry friendly, 2. Somewbat your sonior ofrcers to- friendly, 3. Indiffcront, 4' wards their suborilina- Somewhat unfriendlY, 5' Quite
unfriendly.
tes?
9|1
liko I . Yes, all the subordinates, 2. As many as possible, 3' subordinato meet thcir some of them, 4. Just OntY tes? a fcw of them, 5. Nonc at
Whether senior officcrs
all.
9.8
Whether enough autho' rity is dclegated by the senior officers to their subordinates?
l. A great
deal, 2. Enough authority given, 3. TheY delcgate. some but not enough authority to their subordinatcs, 4. Little authority dole-
to their subordinates, No delegation of anY
gated
5.
authority.
9,9 IIow would you
say thst
the citizenr who come to rco thc officers for thcir
l.
Exceedingly resPectful, 2.
Quite respectful, 3.
Some
what respeotful, 4, SlightlY work aro rospectfill in rcspeotful, 5. Not at all restheir bahaviour and de- pectful. msnds?
Bureaucrat ic Values
294
9.10 How do the citizens who
l.
Development
Vcry much, 2. QuiteaPPre-
come to Your offico for honsivc,
their work are apPrehcn' sive of the officers' attitude and dealings?
in
3.
Somewhat aP' 5. Not
prehensive, 4. Slightly, at alla pprohensive,
9.1t For achieving a high tar' 1, To a great oxtent' 2. To a get of dcvolopmont' are considerablc cxtent, 3. To you concernod with ohan' some oxtent, 4. Little, 5. Not ging thc attitudes of at all. unwilling but PotentiallY good entreprcneurs?
9.12 Is the success of bringing about change in thc atti tudc ofthe PooPle through your initiative and Persu'
l.
Certainly, alwaYs, 2. Usually, 3. Somctimcs, 4. Sol' dom, 5. Ncvor.
asion for achieving Plan
targets any index of efficicnoy of your worh?
9.13
Is the achiovement of l. targets or results consi' dered important in Your dcpartmetrt, evcn thougb they may mean dcviation
Certainty alwaYs, 2. Very often, 3. Somotimes onlY, 4. Soldom, 5. Not at all.
from existing means of achieving thom?
9.14 Will you be ratod high if you achieve the dcsired targets/results of develoP. ment for whose implcmcntation you arc rcsPonsi-
1. Cortainly, 2. Most Possi' bly, 3. May be, 4. Scldom, 5. Ncver.
blc?
9,15 Do you think that in the
1. Vory much, 2. Quitc e bit, 3. Somewha! 4. Litllc, 5.
oxisting sct-up Government servants gencrally Not take so much intorest in helping citizens to achievo
thc gets?
specified rcsults/tar-
a.t
sll.
Aptnitix
295
II
Ifyou worc in the above
l' Vcry much' 2' Largely'
9.1? How ofton do all officers moet for taking any par'
l' Always, 2' Very often' 3' Sometimes' 4' Seldom'
9.16
5' Not siiuation, would you con' 3' Somewhat' 4' Little' sider your responsibitity at all, it is unnecessaty' to go 8o much out to guide the PcoPle with whom You deal?
arcrp"ii* 9.18 ----
decis'loni
5'
6'
Does your depertment 1' Always, fuuoo, indivialual
dcci' 3'
Does
not arise'
2' Very often' 4' Seldom'
Sometimes,
5'
sion.making?
X,
Never,
Ncvor'
Work Envlronment and lob Satisfactlon
10.1. How often do thc citi zens come to' meet the . officials. for their worh?
1' Veryoften,2' Quite ofton 3. Somctimes, 4' Rarely' 5' Never'
10.2 Do you think that such t. Yes, all of them' maetings are super' 2. Yes, most of thcm' 3' Yes, about halfoftham' fluous? 4. Most of thc meetings arc unn€ce88ary,
5. All
10,3 Do
you
think that you
have becn helpful to
visitors?
the
meetiogs ate trcc68sary'
muoh,- 2' Ofton' 4' Hardly' Somctimes' 3.
l. Very 5'
Nevcr'
10.4 Do you fcol that pressure 1. Always, 2' Mostly' is oiten putihrough poli' 3. Sometimes, tical leaders in the dis' 5. Ncver' charge
ofyour dutios?
4'
Seldom,
296
Bureaucratlc lzqlues tn Development
10.5 Would you say that the L Always vory itrtGrostins. work you are doing is 2. Intcresting trrost ofti; interesting? time, 3. Bqually dull and intcresting, 4. Mostly dull, Dull and unintcresting.
5.
you do
10.6 When
good work, is
ated by your
.
somo
1. Always, 2. Very ofton,
it appreci- 3. Somettmcs, 4. Soldom, superior
officers?
10,7 How good
are your chances of promotion in your department?
5, Never.
l. Vcry good, 2. Good, 3, Fair, 4. Poor, 5. Very poor.
10.8 If
givcn a chance to do l. Definitely,2. euite likely, the same type of worL in 3. Probably, 4, probably not. another ofrce/depart- 5. Certainly not. ment would you like to switch over?
10.9 In your
present post, bow
would you say that your educatiotr, training and cxporionce are utitised ?
10.10 How does tho work you ' do in your prrsent posF
tion suit your
capabili-
l. Fully utilisod 2. Mostly utilised, 3. Only moderately utilised, 4, Little utilised. 5. Not utilised at all. l. Very well, 2. Welt, 3. Fair, 4, Poorly, 5, Very poorly.
ties?
Xl.
Personal Particulars
ll.l
What is your age lete yoars?
ll,2
What
in
com-
l. Below 25, 2. 26-35, 3,36-45,4, 46-58, 5. Abovs 58.
status?
is
your
maritat
l. Unmarried, 2, Married, 3; Others (divorced or widowcd)
Appendix |
II
291
1.3 How many dependents I. Nil, 2. l'2 Persons, havc
you?
3. 3-4Persons,4. 5'6 Persons' 5, More than 6.
11.4 Thc place where you wers l. Village with 5000 people
born?
or
less.
2. A town with a PoPulation between 5.000 and 10'000.
3. A town with a PoPulation between 10,000 and 100,000.
4.
A city with I Population between 100,000 and
,.
ioJS;,0"tf,o,nan more
than
citv witb
10,00,000
PeoPle.
ll.5
Wheredidyou livc maxi- l.Villagewith 5@0 people mum time upto 20 Years or less.
orage?
'' *,,;H;I3."i"?lfJi"; 3.
A town vith
PoPulation
between 10,000 and 100,000'
4.
A city
with PoPulation ana
ffi:;;'too'ooo 5. A MetroPolitan citY with mole than I0'CO,00O poPulation. I
1.6 Upto what tevct are you l.
educated?
Matricutation.
. Baohblor's Dcgrco. 3. Post Graduation or Doc' torate Degree,
29E
Bureau.cratl c Values
in Doclopment
4. Technical/profee$ionel Qualification after high school or higher education, 5. Othors.
11.7 Whtt is/were the main l. Agriculture, profossion in which father was engagged?
2. Iudustry, 3. Business, 4. Profession,
your
5. Service, 6. Others (specify).
11.E What would you
say your l. More than Rg. 1500 p.m. parenents/guardians income 2. Between Rs. 751.1500
was
at the time of
vour
getting the first job?
p.m. 3. Between p, m. 4. Between
Rs.
251-750
Rs. t0l-250 p. m, 5. Less than Rs. 100 p,m. I
1.9
Your present income l pleasa
More than Rs. 1500 p.m.
2. Betweeh Rs.751.1500 p. m. 3. Between Rs.25l-750'
p. nr. 4. Between Rs. 101.250 p. m. 5. Less than Rs. 100 p.m" I
l.l0 How many
promotions
have you got so far? I
I
l.l
I
l.l2
ll.l3
What class your present
l. Nil, 2. One, 3. Two 4. Three, 5. Four and more. l.
Class
I, 2. Class II,
rervice belongs to?
3. Class
Is your present post
l. Permanent, 2. Quaei-permancnt, 3. Temporary?
Have you received any in-
l. Ycs, tervice training after joining 2. No.
the Govoroment eervioc?
IlI.
Appendtx
II
299
ll.l4
In case You receivetl train' 1. Lsss than 3 montbs. ing Please indicate the 2.3 to 6 months. 3. 6 to 12 months. poriod of trainiog. 4. More than a Year.
11.15
Do youfind time to read l.
'l 1.16 Are you a
member
of
Ycs.
2. No.
professional jeurnals?
|.
anY
Yes,
2. No.
professional societY, recrea-
tion or social club?
ll.l?
Your name Please {1.18 The post You are holding please.
Thank you for the time and effort oontributed up this questionnaire.
for filling
Performonco Blocl I
Gootl
l.
2. 3.
I
GV MV PV
Medilnn
r. I
I
GV MV
2. 3. Pv
t. GV 2. 3.
MV PV
Appendix III
CENTRE T'OR POLICY RESEARCH,. NEW DELHI B UREAUCRACY AND DEVELOPMENT (Replies will be kept strictly confideotial) of the reply only
Please encircle the code number
l. I.
Beneficiary/2. Non.beneflciary/3. Knowledgeable person'
General
1.1
Doos the area
you
in
which
work suffer from naturol calamities lite (a) Flood (b) Drougbt
Yes, l. Yes, 1.
2. No 2. No.
1.2 Which would you say is thc most importatrt agricultural devclopmant programmo in the aroa? (State)?
1.3
'
rate the efrective' ncss of the Programme.
Please
I' Much, 2. 3' None.
Some,
302
Bareaucrutic Values
l.4
Poople complain about
administrativo inefficiency in Government.
Would you agree with this observation?
l. 3. 5.
alistic targets, Do you
Development
Strongly, 2. Largely, Sometimes, 4, Rarely, Nover.
1.5 Planners and policy- l. make rs aro not well. 2. informed about tho real problems and set unre.
in
Very true, Generally so,
3. Sometimes so, 4. Only partly true, 5. Not true at all.
agree?
1.6
Is there itradequatc staff for the programmc?
1.7 A,re there
inadequate
funds for thc
pro-
l.
Very
4. l. 3.
so, 3. Sometimcs, Rarely, 5. Never. Very true, 2. Generally so, Sometimes so, 4. Partly trua, 5. Not truo at all,
gramme?
1.8 A genoral complaint of the ofrcials has been that p€oplc are not co-
l. 3.
true, 2. Genorally
Very tr*o, 2. Gcn$ally so, Sometine-s so, 4. Partly true, 5. Not true at all.
operative with thom in the developmcntal
efforts. Do you agree? 1.9 Do you agree whethor thero is delay in the decision-making at
l. 3.
Very truo, 2. Geoorally so'
5.
Sometimes, 4. Partly true, Not true at all.
l.
Very true, 2. GenerallY so,
l.
Vcry often, 2. Often,
higher levels? I
.10 Is
it
true that ofrcialg
are not well-traioed for devclopmental activities?
il. 2.1
3. Somotimes, 4, Partly true' 5. Not .true at all.
Water and Power
Are the people able to
get timely supply of water from the canal?
3.
Generally, 4. Rarely, 5. Never"
APpcndix
303
III
2, Oftcn, 3' 2.2 Do the canals have ade' l. Very often, 4. RarelY, 5' Ncver' cuate suPPlY of water GenerallY,
when irrigation
is
needed?
2,3
How well are the canals naintained?
2.4 Do You have. suPPlY
2.5
of
regular electricitY
3.
petlY, 5.
l.
for
agricultural Production'
it should bc? 2.7 Elos- at! the State tubeas
wclls (if anY)
main'
tsircd? Arc
VerY PoorlY'
2'
Often' 3' 4. RarelY, 5' Ncver'
oftcn,
Often' RarelY 4' 3. GenerallY, 5. Never. 2, VerY often' Power utilised bY l. Certainly, 4' RarelY' increaged 3. GenorallY,
PeoPlo
2.8
Verv
GencrailY,
when You need? Is there anY interruPtion in the suPPlY of electri' oitY whcn You need it?
2.6 Is
Very well, 2. FairlY well' ProPerlY' 4. Not so Pro'
l.
l,
VerY
often,2'
5. Never.
l. VerY well, 2. FairlY well' i. PtoP..fV, 4' Not ProperlY' l: t"tv PoorlY, o' Does not arise.
the sPare Parts of
l.
MostlY, 2. UsuallY, 3. RarelY, 4. Does oot aflse'
privatc pumps/tubewclls availablo locallY? 2. ConsiderablY' 2.9 For adoPtion of anY in' l. MostlY, RarelY, 4. UsuallY, 3. novativc programme of
agricultural
develoP-
5. Never.
You informed beforehand bY Blook
ment, are
Staff/VLWs?
uI. 3.1
Govenment Oficcrs
How would You saY thc
Gdvornmcnt
servatrtg
bohavc witb benefi ciaries and non-benoficiarios?
l. Very
politelY,
2.
oolitclY, 3. GenerallY
i.
Quite
indiffcr'
Somewhat imPolitclY' 5. MostlY imPolitelY.
Lot,
304
Bareaucratic Values
3,2
Are the o6cials helpful?
Very often, 2. Often helDful, 3, Sometimee, 4. Rarely,
5.
for agricultural
3.4
Dev elopment
1.
3.3 Do you have to take the l. help of political leaders ia oneeting ybur demaods
ln
Never.
Certainty always,
2.
Very
often; 3. Sometimes, 4. Rarcly, 5. Never, 6. Does not ariso.
needs?
Do you find the admin. 1. Certainly, 2, Generally, istrators mor€ accom- 3. Sometimes,. 4. R arely, modative to potiticat 5, Never, 6. Does not arise.
leaders?
3.5 Do you feel that the 1. Very often, 2. Often. ofrcials are cut of from 3, Sometimes, 4. Seldom. .the peoplo and as such 5. Not at all, 6. Does not t-h.y ignore popular arisc. demands?
3.6 Do the ofrcials, in your 1. Certainly, 2. Usually, 3. opinion, bave the apti. Somotimcs, 4, Rarely, 5. Not tude for devslepmsal at all, 6, Does not arise. work?
It/.
Personal parriculars
4.t What
is
your age in
completed years? 4,2
What
is your marital
status?
1. Below 25,'2.25-35, 3, 3545 4.46-59,5. Above 59. 1. 3.
2. Married, Othcrs (widowed or divorl
Unmarried,
ced). 4.3
Upto what level are you educated?
l.
Matriculation, 2. Bacbe-
lor's degree, 3. post-graduate, or Doctorate degreq 4. TechnF
cal/Professional
4.4
sohool or higher),
What is
you
income?
L 2, 3.
(after higb j. Others.
More than Rs. 1500 p.m. Botween Re. ?5I.lSOb p.n, Between Rg. 251.250 p.m.
Appendix
III
305
4. Betweoo Rs. l0l'250 P m' 5. Less than Rs. 100 P'm' 4,5
What is your
religion? l.
4.6
What is your
caste? l.
Hindu, 2 ',Muslim' 3' Jaini Buddhist, 4. Sikh, 5' Otbers'
Brahmin, 2" Rajput' 3' KaYastha,4' VaishYa' 5' Jat'
6. 4.7 Your name please. 4.8 What is your prinoipal l.
occuPation?
S'C./S'T.' 7' Others' Agriculture,
-
2' Industry'
1r,""#tl1';hi"?::?H:,
Doctor/Contractor, 7' Professional Politics, 8' Others'
Thank you for the time and effort contributed for
filliog uP the questionnaire'
I I I
Good I I
{--T--1, GV MV PV Signaturc:
Date:
Bibliography
(A) BOOKS .dhmod, Munoer, The Civil Servant ln Pakistan (London, 1964);'.
Albrow, Martin, Bureauuacy (London, 1970). Appleby, Paul ff., Public Administration in ladia: Repo,t ofa ,srrvey (Ncw Delhi, 1953). Awasthi, A. and Ramcsh K. Arora, Bureaucracy qnd Devetoitment: Indlan Perspective (Now Delhi, l9?E). Bansal, Prcm Lata, A&ninistraiive Development in India (Ncw Delhi, 1974). Bcnnis, Warren , Changing Organtsations (New
York,
1966).
Bennis, Warren , Organiiation Development (Reading, 196 )). :
Bennis, Warren an{'Phillip E. Slater, Tftq Temporary Soaiety (New York, 1968).
308
Bureaucratic Values ln Development
tshambhri, C. P., Bu,eaucracy and politics in India (Delhi, 1970).
Bhambhri, C. p., )dminf*rators
ln
Changing Saclery (Delbi,
r972).
Bhattacharya, Mohit, Bureaucracy and Development t,on tNew Delhi, 1979).
A
dminis tra-
' Bhattacharya, Mohit, Public Administration i Structure.
process
and Behaviour (Calcutta, 199 t).
Bjorkman, James W., Politics of Administrative Alienation in' India's Rural Developmen! programme (Delhi, 1979).
'.
Blau, Peter M., The Dynamics of Bureauuaay (Chicago, 1963). 3lau, Petcr M., and Marshal W. Mayer, Bureaucracy in the Modern SocierT (New york, 1956).
-
Braibanti'Ralph
,
ed., Asian Bureaucratic Systemsi Emergent from Imperial Tradttion (Durham, 1966). tsraibanti, Ralph, Political and Administrutive Deeelopment
the British
(Durham, 1969). tsraibanti, Ralph and J,
N. Spcngler; Admlnistration and Economic Development in Indid (Durbam, 1963).
Caiden, Gerald 8., The Dynamics of pubtic Administatton: Guidelines to Cutent Transformation in Theory and Practice (New york, 197 I ), Chanda, Asok, Indian Administration (l,ondon, 1958). €haturvedi,' H. i., Bureaucraca and Local Community i Dytr6. mics oJ Rural Development ( Jelhi, I 977).
€ohen, Hary, The Demonics of Bureaueracy: Problems of Change in a Government Agency (Ames, 1965). Crozier Michael, The Eureauuatic Phenomenon-An Ex amination of Bureaucracy in Modern Organizatian and lts Cultural Seuings in France (Chicago, 1964). Dey, B. K., Bureaucracy, Development and public Monagement in lndia (New Delhi, 1978). Dyer, Federick C. and John M. Dyer, Bureaucracy Ys. Creativityt 'Ihe Dilemma ol Modern Leadetship (Florida, 1965).
Bibltography
309
J., A, P. Barnabas and V. Jagannadham, Tfe Citizen and Administration in Developing Demouacy An Empirlcal Study in Delhi (New Dcthi, 1968).
lBldcrsveld. S.
'.
Francisco, A. Gergio, Background, Cover Pattemt and Attitudes of Filtppino Higher Oficials (Ann Arbor, 1967)' Fry, Geoffrey Kingdom, State*nen in Dlsguise : The Changing Role of the Administrative Class of the British Home Civil Service, 1853-66 (London, 1969). .Gabriel A. Aloond and. Sydney Yatba, Civic Culrure (Boston, 1963).
Ganl, George F., Derteilopnent Administration : Concepts, Goals, Methorls (Mrdison, 1979). Ghosal, !t,
K, Civil
Service
ln India
under
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