Challenges Faced by the Civil Services

• 09 May 2025

For Prelims: East India Company, Government of India Act, 1919,  Union Public Service Commission, Joint State Public Service Commission, Lateral Entry Scheme 

For Mains: Evolution and structure of Indian Civil Services, Challenges to neutrality and efficiency in the bureaucracy, Lateral Entry and Domain Specialization in Civil Services 

Source:TH 

Why in News?  

The vital role of civil services in democracy stresses the need for transparency, lateral entry, and maintaining neutrality amid growing concerns over political interference and administrative inefficiencies.

How did India's Civil Service System Evolve? 

• Colonial Beginnings: Initially, civil servants for the East India Company were nominated by the Company's Directors and trained at Haileybury College in London. They were then sent to India to administer the British Empire. 
  • This early system was deeply rooted in patronage, with few opportunities for Indians to join the administrative ranks. 
• Introduction of the Merit-Based System (1854): The Macaulay Report of 1854, recommended replacing the patronage system (preference to political or familial connections) with a merit-based system (through competitive examinations).  
  • In response, the Civil Service Commission was established in 1854 in London, and the Indian Civil Service (ICS) examination began in 1855.  
    • This system was initially restrictive, as examinations were held only in London, with a limited number of seats for Indians. 
• Indian Participation in ICS: Satyendranath Tagore (brother of Shri Rabindaranath Tagore) became the first Indian to pass the ICS examination in 1864. Over the next few decades, the number of Indian candidates passing the ICS exam increased. 
  • Following the Montagu-Chelmsford Reforms (1919), the ICS exam began in India in 1922, held in Allahabad and later Delhi, alongside its continuation in London. 
• Reforms in Police and Forest Services: Besides the ICS, services like the Imperial Police and Forest Service evolved, with Indian inclusion starting after 1920.  
  • The Indian Police recruited more Indians post-1939, while the Indian Forest Service was created in 1966 under the All India Services Act, 1951. 
  • Under British rule, civil services were initially classified as covenanted and uncovenanted.  
  • The 1887 Aitchison Commission reorganized them into Imperial, Provincial, and Subordinate services. Post-1919, Imperial Services were split into All India and Central Services. 
• Formation of Public Service Commissions: The Government of India Act, 1919 provided for the establishment of a Public Service Commission in India to manage recruitment and control of public services.  
  • On the recommendations of Lee Commission (1924), the Public Service Commission was created in 1926, with Sir Ross Barker as the first Chairman. 
  • Further, the Government of India Act, 1935 established a Public Service Commission for the Federation and a Provincial Public Service Commission for each province or group of provinces.  
    • With the implementation of the Act, the Public Service Commission became the Federal Public Service Commission. 
• Post-Independence Reforms and Consolidation: On 26th January 1950, with the adoption of the Indian Constitution, the Federal Public Service Commission became the Union Public Service Commission.  
  • The Chairman and Members of the former Commission transitioned to the new body under Article 378(1) of the Constitution. 
• Constitutional Provisions: Article 312 of the Indian Constitution allows Parliament to create All India services, with recruitment handled by the UPSC. At the state level, recruitment is managed by State Public Service Commissions (SPSC). 
  • The UPSC and the SPSC are independent constitutional bodies. Articles 315 to 323 (Part XIV) of the Indian Constitution govern their composition, appointment, removal of members, and their powers and functions. 
  • Article 315: Constitution of Public Service Commissions (PSC) for the Union and States. 
    • Two or more states can agree to form a Joint State Public Service Commission (JSPSC), subject to a resolution passed by the legislature of each state. 
  • Article 316: Appointment and term of office of members of UPSC, JSPSC and SPSC. 
  • Article 317: Removal and suspension of members of UPSC, JSPSC and SPSC. 
  • Article 318: Power to make regulations for members and staff of the Commission. 
  • Article 319: Prohibition on members holding office after ceasing to be members. 

What are the Challenges Faced by the Civil Services? 

• Erosion of Neutrality: Increasing political interference has undermined bureaucratic independence and the merit system, promoting a spoils system in transfers and postings. 
  • The spoils system, where ruling parties appoint loyalists to administrative roles, was a common practice in the US until it was curtailed by the Pendleton Act of 1883. This system often resulted in the politicization of administration, undermining governance and institutional stability. 
  • The Supreme Court in Prakash Singh ruling (2006) mandated states to select Director General of Police (DGP) in consultation with the UPSC, which is often bypassed by the states highlighting political interference in civil services. 
• Lack of Technical Expertise: Many bureaucrats are generalists, which limits their ability to address specialized, technical challenges in areas like infrastructure, health, and education. 
  • This can lead to inefficiency in addressing complex governance issues that require subject-specific knowledge. 
  • The Lateral Entry Scheme (LES), introduced to bring private sector expertise into senior bureaucracy, has made 63 appointments since 2019. 
    • However, it faces legal and political challenges due to the absence of a statutory framework and concerns over inadequate representation for marginalized communities. 
• Corruption and Accountability Issues: Corruption remains endemic within the civil services, particularly at lower levels of administration. 
  • The Prevention of Corruption Act (PCA), 1988, lacks a clear definition of collusive corruption, which involves secret collaboration for mutual benefit, often harming the public interest. This legal gap weakens efforts to effectively address such corruption. 
  • Article 311 offers broad protection to civil servants, often delaying action against corruption.  
  • Despite efforts to address corruption, a lack of accountability and punitive action often allows corrupt practices to persist. 
• Resistance to Change and Bureaucratic Rigidity: The civil services often operate in a highly procedural, hierarchical manner, which limits innovation and responsiveness. 
  • The emphasis on following procedures instead of focusing on results has created a barrier to the effective delivery of public services. 
• Inefficient Use of Technology: Civil services were not sufficiently empowered by technology to meet the demands of modern governance. 
  • The absence of such capabilities limits the potential for enhancing citizen engagement and streamlining public services. 

What Measures Can Strengthen the Civil Services in India? 

• Reforming Recruitment and Lateral Entry: While the PSCs ensure merit-based recruitment, it needs reforms to include domain specialists through lateral entry at mid and senior levels. 
  • The NITI Aayog (Three-Year Action Agenda) recommended increasing lateral induction to bring in fresh ideas and expertise from outside the bureaucracy. 
  • The 2nd Administrative Reforms Commission (ARC), 2005 recommended lateral entry into the civil services to infuse specialized knowledge and expertise that traditional generalist officers might lack. 
  • Global Example: The UK and Singapore civil services regularly induct professionals from academia and the private sector. 
• Performance Appraisal and Accountability: Integrate the Annual Confidential Report (ACR) with 360-degree feedback mechanisms to ensure objective performance reviews, as suggested by the 2nd ARC. 
  • Link promotions and postings with measurable outcomes aligned to Sustainable Development Goals (SDGs). 
  • Ensure protection from political interference while holding civil servants accountable through clear service rules and a strong Civil Services Board (CSB). 
• Encouraging Specialization and Role Clarity: The Indian bureaucracy continues to be largely generalist in nature.  
  • Both the Surendranath Committee (2003) and the Baswan Committee (2016) recommended the promotion of domain specialization by identifying and grooming officers for sectoral leadership in areas such as health, infrastructure, and education. 
• Capacity Building and Training:  Mission Karmayogi offers a transformative path for strengthening India's civil services by shifting from rule-based to role-based governance.  
  • Its effective implementation must ensure personalized and continuous learning through the iGOT Karmayogi platform, with a strong emphasis on behavioral, functional, and domain-specific competencies, including ethics and digital readiness, to build a citizen-centric and future-ready civil service. 
• Promoting Ethics and Integrity: Establish Ethics Commissions at central and state levels to guide officers. 
  • Introduce regular modules on public service values through the National Learning Week under the Mission Karmayogi, where civil servants take an annual oath to uphold integrity, ethics, and constitutional values. 
  • Strengthen institutions like the Lokpal, Central Vigilance Commission (CVC) to curb corruption. 
  • The 2nd ARC, 2005 recommended shifting to Article 309 for reasonable safeguards, enabling quicker disciplinary action. 
  • The UK’s Nolan Committee (1994) outlined seven core principles to guide public officials' ethical conduct, which includes selflessness, integrity, objectivity, accountability, openness, honesty, and leadership aimed at upholding ethics in public life.  
    • India must institutionalize such values to strengthen ethical standards in governance. 
• Improving Work Culture and Grievance Redressal: Foster a people-centric and service-oriented work culture. 
  • Digitize grievance redressal through platforms like Centralised Public Grievance Redress and Monitoring System (CPGRAMS), and strengthen feedback loops. 
  • Encourage innovation and risk-taking by rewarding performance and protecting against vindictive action for bona fide decisions. 
• Inclusive and Diverse Civil Services: Ensure representation of women and persons with disabilities not only in entry-level but also in leadership roles. 

Conclusion 

Civil services remain the steel frame of Indian democracy, but they must adapt to contemporary challenges. As India aspires to become a developed economy and inclusive society, civil servants must combine integrity with innovation and neutrality with accountability. The time is ripe for bold reforms to realign the bureaucracy with the demands of a 21st-century governance system. 

Drishti Mains Question: 

Despite being the steel frame of Indian democracy, the civil services face issues of politicization and generalist dominance. Suggest reforms to address these issues.

UPSC Civil Services Examination, Previous Year Questions (PYQs) 

Mains

Q1. Identify ten essential values that are needed to be an effective public servant. Describe the ways and means to prevent non-ethical behavior in the public servants. (2021) 

Q. “Institutional quality is a crucial driver of economic performance”. In this context suggest reforms in the Civil Service for strengthening democracy. (2020)