[PDF] Essay on Delegated Legislation in India | Legislation | Public Administration

Read this essay to learn about:- 1. Introduction to Delegated Legislation 2. Parliamentary Control over Delegated Legislation in India 3. Committee on Subordinate Legislation.

Essay # 1. Introduction to Delegated Legislation:

There is considerable use of delegated legislation in India. However, statistics are not available to explain precisely the volume of such legislation. Statutory rules are not published in India unlike that of U.K. where the Statutory Instruments Act 1946 requires publication of such rules and orders.

Moreover, Indian Parliament unlike that of its counterpart in U.K. is a non-sovereign body. Its powers and privileges are defined in the Constitution. The constitutional provisions take precedence over the parliamentary enactments and set limits to the latter.

As such, the Acts passed by the Indian Parliament are challengeable in the courts of law. They must conform to the Constitution otherwise their provisions are liable to be declared null and void.

The Delegated Legislation may therefore be declared void under the following situations:

(a) The Enabling Act is ultra vires,

(b) The subordinate legislation violates the Constitution, and

(c) The subordinate legislation runs counter to the provision of the Enabling Act.

What are the limits of such delegation?—has been answered in Delhi Laws Case and other subsequent decisions of the Supreme Court. According to the majority decision of the Court, “the essential powers of legislation cannot be delegated” and they defined the essential legislative function as the determination or choice of the legislative policy.

Various other decisions of the courts in certain cases, viz., Ram Jawaya v. State of Punjab; Raj Narain Singh v. Chairman, P.A. Committee; Hari Shankar Bagla v. M.P. State; Hamdard Dawakhana v. Union of India, clearly brought out main principles governing delegation of legislative power in India.

The principles so deduced are:

(i) The legislature cannot delegate its essential legislative function to an outside authority in any case;

(ii) The essential legislative function comprises laying down the policy of the law and making it a binding rule of conduct;

(iii) When the essential legislative function of laying down the policy of law and providing guidance for implementing the policy has been performed by the legislature, there can be no constitutional bar against the delegation of subsidiary and ancillary power to an outside authority;

(iv) An act delegating legislative power to an outside authority without laying down the policy or standards of public policy will ipso facto be unconstitutional and hence invalid;

(v) It is open to the legislature to formulate the policy as broadly and with as little or as much details as it thinks proper. The law court could take into account not only the text of the sections of the Act but also the statements in the Preamble of the Act;

(vi) Delegated legislation may assume any of the three forms, namely subordinate legislation, supplementary legislation and conditional legislation. Each one of these forms is subject to the same conditions, viz., and essentiality.

Essay # 2. Parliamentary Control over Delegated Legislation in India:

According to Rule 215 the Rules of Business of the Lok Sabha made a provision for the constitution of a committee on Subordinate Legislation “to scrutinize and report to the House whether the powers delegated by Parliament have been properly exercised within the framework of the statute delegating such power.”

It also necessitated the publication of all rules, regulations and bye-laws in the Gazette of India. Rule 71 further states that, “a Bill involving proposals for the delegation of legislative power shall further be accompanied by a memorandum explaining such proposals and drawing attention to their scope and stating also whether they are of normal or exceptional character.”

Rule 233 prescribes the powers of the Committee. It provides after each such order referred to in Rule 222 is laid before Parliament, the Committee shall in particular consider:

(a) Whether it is in accord with the general objects of the Act pursuant to which it is made.

(b) Whether it contains matters which in the opinion of the Committee should properly be dealt with in an Act of Parliament.

(c) Whether it contains imposition of taxation.

(d) Whether it directly or indirectly excludes the jurisdiction of the court.

(e) Whether it gives retrospective effect to any of the provisions in respect of which the Act does not expressly give any such power.

(f) Whether it involves expenditure from the Consolidated Fund or the Public Revenues.

(g) Whether it appears to make some unusual or unexpected use of the powers by the Act pursuant to which it is made.

(h) Whether it appears to have made unjustifiable delay in the publication or laying it before parliament.

(i) Whether for any reason its form or purport calls for any elucidation.

Rule 224 states, “If the committee is of the opinion that any order should be annulled wholly or in part or should be amended in any respect it shall report that opinion and the grounds thereof to the House within one month of the commencement of a session of Parliament after the promulgation of such orders or within such earlier or later period which a statute of a parliament may have fixed for any specified case.” Further, “if the committee is of the opinion that any other matter relating to any order should be brought to the notice of the House it may report that opinion and matter to the House.”

As per decision of the Supreme Court, the essential functions of the legislature cannot be delegated. For instance, the Indian Legislatures have not been authorized to delegate the following functions:

(i) The power to declare what the laws shall be in relation to any particular territory or locality.

(ii) The power to extend the duration or operation of an Act beyond the period mentioned in the Act.

(iii) The power to repeal or amend a law.

Essay # 3. Committee on Subordinate Legislation:

The Committee on Subordinate Legislation which was appointed in December, 1953 consisted of 15 members including the Chairman who are appointed by the Speaker annually. The Chairman happens to be an important member of the Opposition Party.

The Committee is responsible for evolving a uniform pattern of the terms of delegation incorporated in the Enabling Acts and improving the methods of publicity to the Rules.

The Committee has recommended to Parliament the observance of the following principles:

(a) All the Acts delegating legislative power should uniformly require the rules made under them to be laid before the Houses as soon as possible but not later than a week after publication in the Gazette.

(b) The laying of the rules before the Houses should in all cases be for a period of 30 days.

(c) The Enabling Acts should always provide expressly that the rules made under them shall be subjected to modification by Parliament.

(d) In exceptional cases, provision may be made for laying of the rules and regulations on the floor of the Houses, 30 days before the rules become operative.

There is no denying the fact that the Parliament has not uniformly followed all these principles. However, the committee has in its subsequent meetings acted on the principle that whether any rule is expressly required to be laid before the Houses or not, the committee possesses the right to scrutinize the whole range of subordinate legislation.

Moreover the Parliament possesses the in
herent right to modify any rules whether the Enabling Act made an express provision to that effect or not.

The Committee also recommended giving of sufficient publicity to the rules. It suggested that:

(i) The Government should examine every set of rules to assess whether or not it is of concern or importance to the general public.

(ii) Advance copies of the rules of importance to the general public should be sent to the State Governments, which should publish them in their own Gazettes and also get them translated in the languages of the States. Rules both at the Centre and in the States should be got published simultaneously.

(iii) Government should issue press communiqués to publicize the general purport and effect of the rules and orders.

The Committee suggested to the Government that rules should be written in easily tangible languages. The explanatory notes should be attached to them to explain their general purport. It demanded modification in some specific Rules, viz., the Development Councils Rules 1952, Central Excise Rules 1944, Estate Duty Rules 1953, Tea Rules, 1953, etc.

The Committee showed an unvarying tendency to condemn several features of delegated legislation, viz., curtailment of the jurisdiction of the courts, violation of the provisions of parent Act, indefinite, complex and ambiguous wording, undue delay between publication of an order and its being laid on the floor of the Houses.

In its eleventh report presented in May, 1961, the Committee suggested that assuming fresh powers by the Union Government, to regulate the conditions of service of the personnel of the All-India Service regarding residuary matters, by issuing regulations instead of rule is unjustified.

The Committee’s recommendations have been given due consideration by the Government. Many of them have been accepted. Its work in the initial stages has been fairly impressive.

In the words of Morris Jones, “It has made an able and workman like start to its important task.” Its members are, in the words of G.V. Mavalankar (The Late Speaker of the Lok Sabha) “the only protectors of the people against the new despotism getting aggressive.”

In fact, the committee has so far been functioning dispassionately with a judicial mind and moderation on non-party lines. If it continues functioning on these lines and goes on denouncing certain features of delegated legislation, it is apt to set norms to which delegated legislation would scrupulously adhere.

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[PDF] Recruitment and Public Service | Essay | Public Administration

Here is an essay on the nine major problems faced in the recruitment of personnel for public service. The problems are: 1. Location of the Appointing Power 2. Methods of Recruitment 3. Qualification of Employees 4. Methods of Determining Qualifications 5. Administrative Machinery for Determining Qualifications 6. Certification 7. Appointment and Probation 8. Placement 9. Orientation.

Essay # 1. Location of the Appointing Power:

The first question to be decided in respect to the selection of personnel is to which author­ity the selection of public officials shall be vested, i.e., whether the people will directly elect the public officers or they will be appointed by some officer or organ of the government proper.

The first method called the democratic method is supported on the basis that democracy can have full effect and meaning only when all public officers are directly elected by the people.

To provide for effective public control over the public employees this method is necessary. Such method is made use of when the service to which appointment is to be made, is purely of a policy-making nature, e.g., Chief Executive or when the service is of a local or restricted nature, e.g., Village Panchayats in India.

If we study this method critically, we would find that it can be made use of only when the service, to which appointment is made, is purely of a policy-making nature or when the service is purely of a local and restricted nature. It is quite proper that the officers whose functions are of a political character, that is having to do with the formation of policies, should be selected by the people by ballot.

But they should not be given the right to select the officers whose duties are purely of an administrative, technical or special character, calling for experience and previous training.

The reason is that sentiments and catchwords play an important part in elec­tions. Technical competence can be secured only by appointment and not by election. The demo­cratic principle, therefore, under which voters elect directly by ballot their officers, is far more applicable to directing than to administrative personnel.

The second method of locating the appointing authority is vesting the power of appoint­ment formally in the Chief Executive but actually in a semi-judicial autonomous body—termed Civil Service Commission. The latter functions as a general personnel agency of the govern­ment.

In the United States, however, the appointment of the more important executive or admin­istrative officers by the chief executive does not become effective until approved by the Senate. It would be out of place to attempt any consideration here of the way in which the Senate has used or misused this power.

As a matter of fact, the Senate has so stretched its powers as practically it has usurped the appointment of officers. Such a system does not prevail in India.

Essay # 2. Methods of Recruitment:

The next problem no less important than the preceding one is that of Recruitment from within and Recruitment from without.

As Lewis Mayers has said, “Methods of selection are basically two in number-selection from without the service, or recruitment, and selection from within the service, embracing reassignment and promotion. The problem goes, however, much deeper than the mere technical choice between detailed methods. It goes to the nature of the whole personnel system. Upon its answer, as much as upon any other factor, and perhaps more depends the attractiveness of the service, ultimate calibre of the personnel recruited and trained and its moral. If compensation standards be regarded as the foundation of the personnel system, the lines of promotion and the levels of recruitment constitute its framework.”

Before we pro­ceed further to examine the relative merits and demerits of the two systems, it may be pointed out that the problem really arises in case of the higher middle positions only.

It is obvious that the lowest posts must be recruited from without for there is no lower class of personnel from which to promote, and it is also equally obvious that recruitment of fresh and inexperienced men from outside to the highest positions like those of heads of departments will not do.

Merits of Recruitment from Within (Promotions):

(a) It provides ample opportunities for advancement to the employees. As such, it serves as a great incentive to the hard-working and conscientious employees. This indirectly helps in effecting efficiency.

(b) The very expectation of promotion as a reward for honest and intelligent workers heightens their morale.

(c) The experience gained by the employees in the lower jobs helps them in undertaking jobs entailing higher responsibilities. The Government can safely entrust to them jobs of higher responsibilities.

(d) The Examination system is not a real test of one’s abilities. As such, the defect of the examination system is removed through recruitment from within or promotion. The employee’s work is the best criterion to judge his worth.

(e) Procuring of efficient employees through this system is easier than that of direct re­cruitment.

(f) It is economical as cost of training is saved. The employees get practical training while serving in an office.

(g) The burden of Public Service Commissions is lessened a great deal, as promotion to higher posts avoids the undergoing of process of advertisement, examination and interviews through it.

(h) It is essential element of career service. According to a “Report, “…a career cannot be said to exist if top positions are generally recruited from outside, from men who do not under­stand the work in such a way as to create an effective bar to advancement from the bottom to the top of the service itself.”

(i) It re-establishes the human factor in public administration which is lost if recruitment is made through external agencies like Civil Service Commissions. Personal contacts between the officers and the subordinates are apt to be established if on the report of the officers the promotion of the subordinates is to be effected.

Lewis Mayers has well summed up advantages of recruitment from within in these words:

“The obvious reason why the restriction of selection to those in the service may be urged as a matter of principle is that it increases the opportunity for advancement within service, and Still more, that it gives those in the service a definite assurance that under given conditions advancement will come. The anticipated results in terms of a better class of personnel recruited and retained in the lower rank, and a better morale, are obvious. Great as is the desirability, in any personnel system, of multiplying and widening the avenues for advancement to the greatest extent possible, it is especially necessary in the personnel system of governments where at best the opportunities for advancement are not apt to be as great as in private undertakings.”

Defects:

The obvious objection to consistent restriction of selection to those already in the service is firstly that it so severely narrows the area of selection. Unquestionably where the restriction of selection for the highest posts to those already in the service is in force, it not infrequently results in the selection of a less capable or less brilliant officer than could have been found outside the service.

But against the resulting loss of individual efficiency is to be set the in­creased efficiency due to better morale and greater incentive, displayed by the rank and file of the service, and the intermediate officers.

The knowledge that the highest posts may be the reward of faithful an
d zealous service is a force, making for a day-to-day productiveness, often far more valuable than any results that may be achieved by the chief executives, however able, with a force but mildly interested in its work.

Secondly, it is arguable that, regardless of the relative efficiency of the personnel which may be recruited from without the service as against that which may be promoted from within, adherence to selection solely from within the service leads to stagnation and conservation; that frequent or at any rate, occasional, injection of new blood into a system, particularly at or near the top, is highly desirable.

Thirdly, it undermines the principle of equality of opportunity as recruitment is confined to those who are already in service. It puts premium on experience and as such ignores brilliant, university trained youth. The mediocrities may go on getting higher position simply because of seniority i.e. of being in service. As such, this is condemned as an undemocratic system.

Without depreciating the force of the above contention, it should always be borne in mind that the occasional injection of directing personnel from without represents a merely sporadic attempt to cure a condition which is capable of prevention.

Where a proper incentive to efficiency and to progress, exists throughout a service, and central control and supervision as will expose, by periodic survey and appraisal, as well as by current contact, un-progressiveness or incapacity of the directing personnel as soon as it appears, it is perfectly possible to prevent stagnation at the top from developing; and only occasionally will conditions get to a point where there is imperative need of regeneration by one unfettered by any previous familiarity with the organization.

In this view, to the extent that stagnation exists at the top in the federal service it is chargeable to an improper system of administration in the large, and should be corrected by a revision of that system rather than by attempting, at irregular and accidental intervals, to galvanize the sluggish organism into action.

Nor should the fact be lost sight of that stagnation of the subordinate personnel, which results from the lack of opportunity for advancement, is no less hurtful to efficiency than is stagnation in higher quarters.

Merits of Direct Recruitment:

Direct recruitment system which India has adopted from the British has some striking advantages as follows:

First, it is claimed that it is in consonance with the principle of democracy in as much as all qualified persons get an equal opportunity for public office.

Second, it widens the area of selection, and, therefore, the best talent in the country may be found.

Third, it brings in new blood into the service. By giving the young men and women an opportunity to enter the services, it keeps them continuously adapted to new ideas and outlook of society and prevents services from becoming the exclusive preserve of the experienced and conservative people.

Fourth, in the absence of direct recruitment the persons who are promoted to higher posi­tions are promoted at an age when they have lost all initiative, quickness and vigour. After serving for a number of years in one of the lower positions, a person comes to develop a somewhat cramped outlook which vitiates his thinking when he holds a higher position.

Hence it is argued that experience of a lower position may, far from being an asset in the higher position, prove to be actually a liability.

Fifth, in technical and professional fields, development of new techniques requires new entrants to provide leadership in the adoption of those techniques.

Last, recruitment from without impels the employees already in service to keep abreast of new developments in their several fields lest they might prove inferior in competition for higher posts when pitched against the young men abreast of new techniques and new methodology.

Demerits of Direct Recruitment:

Direct Recruitment has also been denounced by the critics on the grounds stated below:

First, the system entails huge expenditure as lot of money is to be spent on the training of the raw young men joining service for the first time.

Second, it reduces incentive to good work as chances of promotion to higher services are bleak when posts of higher rank are filled through direct recruitment.

Third, the system is apt to cause lot of heart-burning and jealousy. The old, experienced people already in service will not tolerate young men, fresh from the colleges or universities to boss over them.

Fourth, even if the people within service are given an opportunity to compete with the young collegians they are likely to lag far behind, as they are not acquainted with the latest knowledge of the university subjects. Otherwise too with the advanced age, their memory is not as sharp and power of comprehension is not as good as that of the young collegians.

Fifth, under this system, recourse is generally taken to examinations or tests or interviews, which are not the sure test of judging individuals’ abilities. They cannot be considered as fool­-proof methods for assessing the personal traits of the applicants.

Last, Public Service Commissions or other agencies of recruitment will be over-burdened if for all services; recruitment is to be made from without.

Essay # 3. Qualification of Employees:

The next problem in the recruitment of personnel is that of determining the qualifications of the employees. In every country, some qualifications are laid down for entry into public service. These qualifications are of two types- (i) General, and (ii) Special. In the former are included citizenship, sex, domicile and age, and in the latter personal qualities like education, experience and technical knowledge.

We shall consider each qualification separately:

General Qualifications:

(i) Citizenship:

In every country, only citizens are appointed to public services. Aliens, who do not owe allegiance to the state, are appointed only for a brief period on ad hoc basis. It is but reasonable that all employees of a government should owe allegiance to it. Loyalty and faithfulness to the government are necessary for keeping the secrets of office which has become so vital these days.

(ii) Domicile:

Along with citizenship sometimes domicile qualifications are required for entering into public services. It is specially so for State services. This qualification began in the U.S.A. and has entered in the Indian State services also.

In the U.S.A. domicile qualification plays an important part in the personnel system of the national government too. Though the law may not require, the convention or practice is firmly established that the offices of postmasters, collectors of revenue, etc., shall be filled from persons residing in the state. This is, however, an undesirable practice. It does violence to the merit principle.

The candidates having high qualifications may be passed over in favour of persons having inferior qualifications simply because the former do not live in the state. Besides affecting efficiency and talent adversely, it also creates provincialism and develops narrow outlook in public administration.

According to a Report, “We were greatly concerned to observe that in one State, for instance, domicile rules were applied not only to determine eligibility for appointment to the public services but also to regulate the awards of contracts….such stipulations in our opinion are not only inconsistent with Articles 15, 16 and 19 of the Constitution but go against the very conception of Indian citizenship.”

Presently for IAS and IPS services
a candidate must be either:

(a) A citizen of India

(b) A subject of Nepal

(c) A subject of Bhutan

(d) A Tibetan refugee who came to India before 1st January 1962 and having within time of setting in India

(e) A person of Indian origin who has migrated from Pakistan, Burma Sri Lanka, East African countries having intention to settle in India.

(iii) Age:

The age qualifications of entrants is a matter of great importance, since the policy adopted in respect to it affects vitally the whole character of the personnel system.

The British and the Indian systems preferred to recruit candidates who are between the ages of 20 and 24. In case of India the maximum age limit was 24 till 1972 and was raised to 28 years in 1979. Again in 1986, it was reduced to 26 years. For the year 1992 only, the maximum age for IAS and allied services was raised to 33 years.

An ‘add’ in the Employment News issued on 29th December, 2007 states age limit as under (A) a candidate must have attained the age of 21 years and not have attained the age of 30 years on 1st August, 2008 i.e. he must have been born not earlier than 2nd August, 1978 and not later than 1st anguish 1987 (i) The upper age is relax able up to a maximum of 5 years if a candidate belongs to a scheduled caste or a scheduled tribe (ii) up to maximum of 3 years in case of candidates belonging to other backward classes who are eligible to avail of reservation; (iii) up to a maximum of 5 years if a candidate had ordinarily been domiciled in the state of Jammu and Kashmir during the period – 1st January 1980 to December 3, 1989; (iv) up to a minimum of 3 years in case of Defence services personnel disabled in operation during hostilities with any foreign country or in a disturbed area and released as a consequence; (v) up to a maximum of 5 years in case of Ex-servicemen who have rendered at least 5 years service in Military as on August 1st, 2008 and have been released of; (vi) up to in a maximum of 5 years in case of ECOS/SSCOS who have completed 5 years of service as on 1st August 2008 and whose assignment has been extended beyond 5 years; (vii) up to a maximum of 10 years in case of blind, deaf and orthopedically handicapped person.

However, in general category four attempts are allowed to appear but in case of scheduled castes and scheduled tribes no restriction at all; in case of OBC seven attempts are allowed.

The physically handicapped will get as many attempts as are available to other non-physically handicapped candidates. However, physically handicapped person of general category will be eligible for 7 attempts for taking the examination.

An ‘add’ on December 6, 2008 in a daily clearly confirms age limit 21 to 30 years for general category as on August 1, 2009 and is relax able for scheduled castes and tribes and OBCs and other categories as specified above.

The candidates at this age have received only liberal education and general knowledge and are not experienced and trained. The examinations are of a character to determine general edu­cational attainments. America does not follow the British practice.

There is no attempt to turn the government services into a career. The examinations determine technical qualifications. Hence the age scale in USA ranges from 18 years to 45 years.

The advantages of the American prac­tice are larger freedom of selection, hence better talent, and less expenditure to be incurred in training the new entrants. Riper Paul point out “in American recruitment system, one may enter the American public service at almost any level and at almost any age.” 

(iv) Sex:

It is not many years ago when public service was the sole monopoly of man. No women were employed in the government departments especially in the higher services. It is within the memory of the authors when no woman in India for instance was allowed to appear in the competitive examination held for IAS and other Central services.

Women, as a rule, were considered unfit for administrative jobs. But due to the spread of the doctrine of equality and the aspiration of women to economic independence, the sex qualification has been removed from recruitment to public services in most countries.

A sizable number of women are at present employed in the Central Government, most of them holding lower positions. In previous few years, in the IAS and IPS exams, they have been topping.

W.F. Willoughby is of the opinion that “As a general rule, women do not have the experience or other qualifications fitting them for the most responsible positions and particularly those coming within the class of directing personnel.” Every man must be suited to his work.

There are certain offices, e.g., in the armed forces for which women may not be suited at all and reversely there are certain offices for which women alone are better suited, e.g., for nurses, kindergarten teachers, telephone opera­tors, etc.

Thus it implies that natural capacities of men make men better suited to certain posts for which women are not well suited. Under the over-enthusiasm and sentiment for equality all the posts are being thrown open equally for men and women.

Recently for ground jobs (class I) both in the Air Force and Navy women have been recruited (1992). Their performance in the written tests and interview has been much better than the men folk. Besides their merit career wise has also been very high.

The nature of the work required however for the post should be the practical consideration. It is felt women are not well suited for certain arduous jobs. Hence they should be kept out of such services.

Special Qualifications:

(i) Educational Qualifications:

By educational qualifications is meant both the ordinary education that is acquired by the students in general educational institutions and the special education imparted in professional colleges.

The British and the Indian system lay down definite educational qualifications for entrants—Higher Secondary School certificate for clerical jobs; graduate degree for executive jobs. In India there is no discrimination between liberal and sci­entific education.

According to the latest publication on the educational qualification required for IAS and Allied Service the candidate must hold a degree of any of the universities incor­porated by an Act of the Central or State Legislature in India or other educational institutions established by an Act of Parliament or declared to be a deemed university under section 3 of the UGC Act 1956 or possess an equivalent qualification.

The subjects of the competitive examination are so broad based as to include every subject. Engineering graduate or Medical graduates were previously handicapped as they had to prepare two optional subjects they had not read at all. Now both from Engineering and Medical (MBBS) optional subjects have been included.

This wide coverage of subjects has enabled brilliant doctors and engineers also to take the IAS and Allied examination. In America, the requirement of formal education for entry into government jobs of a non-technical character is opposed. In 1944 the American Congress for­bade any educational requirement except for scientific, technical and professional positions.

The advantage of the system of formal educational qualifications is that only those who have a chance to compete with success may take the examination. If no formal educational qualifica­tions are required of the candidates, everyone can compete, and it will result in great waste of public funds and the task of Public Service Commission also shall become stupendous to the degree of unmanageableness.

(ii) Experience:

By experience is meant the training that a person receives in the actual performance of the work, for example, a person who after obtaining a degree serves as a teacher in some educational institution for four years, has the teac
hing experience of four years. In U.S.A. experience is usually required for technical services. In other countries for all public services experience is regarded an additional qualification.

(iii) Technical Knowledge:

It means the possession of technical skill required for the proper performance of duties of that particular position, for example, to become a Civil Engineer it is necessary to have a Degree in Civil Engineering. This qualification is essential to fill up techni­cal posts such as those of legal experts, doctors, mechanics, etc.

(iv) Personal Qualifications:

They are at once the most important and most difficult to determine. They range from good moral character to energy, resourcefulness, tact, reliability, punctuality, executive ability, and even personal appearance and manner.

It hardly needs an emphasis that the value of officers is in many cases, at least, as dependent upon the possession of these personal qualities as those of an educational or technical character. The tasks of modern administration require of its employees highly administrative skills.

These skills have been summarized by Pfiffner as follows:

(a) A flexible, but essentially scientific, mode of thought, characterised by a recognition of the need for coordination.

(b) Familiarity with the subject-matter of organisation and management.

(c) Facility at problem solving.

(d) A highly developed reading and writing ability.

(e) Ability to settle vexing situations through impersonal contact.

It is very difficult to judge these personal skills accurately at the time of recruitment be­cause no accurate method has been so far devised for the purpose. The use of methods like sample survey through questionnaires, psychological tests or aptitude tests does not enable us to make any accurate judgment of the candidate’s personal skills.

Essay # 4. Methods of Determining Qualifications:

Above we have specified various qualifications required of the entrants for public services. The purpose of laying down these qualifications is to get the best qualified and most competent men for government service. The question now arises—how to determine these qualifications?

Upon the proper solution of the question will depend the efficiency of the whole administrative system.

Examination of this problem reveals that generally the following methods have been adopted to determine the qualifications:

(i) Personal judgment of the appointing officer,

(ii) Certificates of ability, character and education,

(iii) Record of previous experience—educational and professional,

(iv) Examinations—competitive and non-competitive.

We shall examine each method separately.

(i) Personal Judgment of the Appointing Officer:

This is the simplest and the oldest method of recruitment. Under it the appointing officer himself determines the qualifications of the candidates. He makes his own personal judgment in making selections. This system can procure good results under certain conditions, for example, when the number of appointments to be made is small and it is possible for the officer to give to the matter the time and attention that are required, and he is not under political pressure and is free from personal considerations. This system is followed in the appointment of topmost positions in the official hierarchy in India as well as in other countries.

But in actual practice these conditions are rarely met. Many services are of such vast size that the head of the department making appointments cannot give that much time and attention which is required for the purpose. Moreover, the task of ascertaining the qualifications of the candidates is so technical and hard that it cannot be performed single-handedly and, therefore, requires the assistance of a body of experts.

Finally, the officer making appointment is subject to political and personal pressure very often which is exceedingly difficult for him sometimes to resist. In view of these considerations it is imperative that other devices for determining quali­fications should be employed.

The factor of personal judgment may have controlling weight in the appointment of private secretaries and other officers having a especially confidential charac­ter. In respect to other positions this factor may be given weight by asking the appointing officer to make a selection from among three or four candidates recommended for appointment by the Public Service Commission, thus giving him an opportunity to determine, through the use of his own judgment, the suitability of the candidates for his department.

(ii) Certificate of Character, Ability and Previous Experience:

The value of certificates of character and ability from responsible persons and of experience from the previous employer is evident. These certificates are usually secured in all cases. They help to make a preliminary estimate of the candidates’ capacities and qualities on the basis of which they may be called for interview.

It may be pointed out that these certificates cannot be made the sole criterion for judging the qualifications of the candidates. But it may, however, be emphasised that the certifi­cates, if they are to give useful results, should be issued uninfluenced by any extraneous consid­erations and should describe the candidate’s achievements truly.

(iii) Examinations:

The above devices, valuable as they are in determining the fitness of the candidates, have their definite limitations. The method of personal judgment, as shown above, is open to arbitrary judgment and personal considerations. The method of securing certificates of ability and experience can help only to make a preliminary selection and cannot be made the sole criterion of judging the suitability of the candidates. Therefore provision is made to subject the candidates to examination of various types.

Examinations are mainly of two types—competitive and non-competitive. The purpose of a competitive test is to determine which of the candidates satisfy the minimum standards required and then to determine their relative positions in order of merit, i.e., which of them is the best, the next best, the third best and so on. The non-competitive test confines itself to determine merely which of the candidates satisfy the minimum standard required. It is obvious that a true examination system must select those who not only fulfil the maximum requirements, but also the best among them in order of excellence.

Generally speaking, there are four basic types of examinations, namely:

(i) Written Exami­nations,

(ii) Oral Examinations,

(iii) Performance Demonstration, and

(iv) Evaluation of Educa­tion and Experience.

These may be used singly or in combinations according to the nature and grade of the post.

Essay # 5. Administrative Machinery for Determining Qualifications:

What administrative machinery shall be employed to hold the various tests described above? It has been generally recognised that these tests should be held by an independent and impartial body of persons who might not fall a prey to political manoeuvrings.

This body is generally called the Public Civil Service Commission which is made in charge not only of the recruitment and examination of public personnel but is also entrusted with other duties having to do with personnel, viz., exercising a supervision and control over the operating services in respect to the observance by them of laws and regulations governing the promotion, transfer, leave, pay, etc.

Essay # 6. Certification of Employees:

Certification follows recruitment and examination. It means the submission of the eligible names for the consideration of the appointing authority—the head of the operating service.

There are two methods of certification:

(a) The supply agency certifies a list of eligibles in order of merit and the employing authority is required to appoint the requisite number in the same order. In I.A.S. this system is followed,

(b) The supply agency supplies a list: of three names for each appointment and the appointing authority selects any one name from the list. This is followed in I.F.S.

Essay # 7. Appointment and Probation of Employees:

After the appointment is notified to the Civil Service Commission by the appointing au­thority in response to the former’s recommendation, the employee so appointed is put on proba­tion for a specified period. Despite following a proper recruitment process, there is no certainty whether a proper person has been selected or not.

The real test of the fitness of a man is actual performance of work. Hence appointment is made on the basis of probation or provisional basis. The period of probation varies from six months to a year. During the probationary period, the officer keeps a close watch on the conduct and work of the employee.

If he is satisfied with his work, the employee is confirmed in his position! at the end of the probationary period. A Con­ference Committee rightly pointed out, “The probation period should be considered as an op­portunity for the appointing authority to complete the selection process.

No formal test, however well devised and however carefully conducted, will prove infallible. The final test is actual performance. For this reason, the new appointee should be carefully supervised and critical observation should be made of his work during the period of probation.”

Prof. Willoughby rightly pointed out, “Did it do nothing more, it tends to meet the objection often raised by administrative officers that under a system of recruitment of personnel through a central agency, they have forced upon them employees who do not meet their particular requirements.”

The system has proved better than demotion or dismissal of an employee at a later stage. An employee is given a clear understanding at the time of appointment that his selection is not yet complete. His actual work will secure his appointment. He will not face mental agonies if during probation or after it he is thrown out of the job.

The system is desirable also from tax-payer’s point of view. Why should not the govern­ment devise foolproof methods of selecting the employees who are to be paid out of the tax­payer’s money ?

Otherwise too, demotion and dismissals cause bad feelings among the people in general and the employees in particular. Frequent dismissals show that proper choice was not made and people’s money has been wasted. The interest of the tax-payers also demand that the govern­ment should employ capable persons and after appointing them accord them proper treatment.

However, it is advisable that the officer at the helm of affairs should maintain service records of employees on the probation and submit report regarding their work to the Public Service Commission. The opinion of the Civil Service Commission must also be given due weight while confirming or removing the probationers.

Essay # 8. Placement of Employees:

However sound may be our system of recruitment and examination and however capable personnel we might have secured, much of their value is lost due to poor assignments. A wrong assignment results in wastage of talent. Placement should therefore be made after properly dis­cerning the aptitudes, and capacities of the employees.

The Public Service Commissions recom­mend the names of the eligibles in order of merit in general abilities. The operating services may give weight to the general abilities but should give more consideration to other factors, viz., interests, experience, training and personality. This is the only way to utilize the talents and capacities of their employees.

Essay # 9. Orientation of Employees:

Through orientation, the entrants are acquainted with the objectives of the agency in which they have been placed, and also the methods and details of work. According to Mandell, the orientation programme “relieves the employee of the stage fright associated with entering a new job and is a sign to him that the organisation is interested in both his welfare and in helping him adjust to his new surroundings.”

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Here is a compilation of essays on ‘Leadership’ for class 11 and 12. Find paragraphs, long and short essay on ‘Leadership’ especially written for school and college students.

Essay on Leadership


Essay Contents:

  1. Essay on the Introduction to Leadership
  2. Essay on the Meaning of Leadership
  3. Essay on the Functions of Leadership
  4. Essay on the Qualities of Leadership
  5. Essay on the Leadership Styles
  6. Essay on the Theories of Leadership
  7. Essay on the Leadership Styles in Indian Organisation

Essay # 1. Introduction to Leadership:

The present-day crisis in India is the crisis of finding administrative leaders who can give new dimensions to administration in line with our concepts of democracy, secularism, planning and socialism. With the functions of the government constantly increasing for the realization of a ‘welfare state’, the need for administrative leadership has acquired a special urgency.

Our Government is setting up large and complex organizations for the management of public sector undertakings—a field hitherto left to the private sector—which require managerial talent of a high caliber and effective leadership.

With the development of Panchayati Raj institutions, we have thrown open the channels through which leadership can grow in the local areas. In the social field, more hospitals, more schools, more institutions for social welfare and social secu­rity throw a challenge to administration.

This challenge can be accepted if we are able to in­crease administrative talent and cultivate the qualities of administrative leadership in our person­nel.

So long, we had been under the shackles of a foreign government which was not committed to the welfare of the people. Leadership, if any, had therefore, grown on authoritarian pattern. With the coming in of independence, leadership has to grow on democratic pattern, on the pattern of service rather than command.

In the words of Seckler-Hudson, “the overwhelming significance of the problems of leadership has mounted with the revolutionary growth of such factors of size, complexity, specialization, organizational entities, technical developments and social demands.” Thus the first and foremost task of management is to provide leadership, to guide and direct the work of the group as a whole toward desired objectives.


Essay # 2. Meaning of Leadership:

It is really very difficult to attempt a definition of leadership or in other words, it is difficult to define what makes certain persons ‘leaders’. Barnard has rightly put it “Indeed, I have never observed any leader who was able to state adequately or intelligently why he was able to be a leader, nor any statement of followers that acceptably expressed why they fol­lowed.”

Leadership is often regarded as the important modifier of organization behaviour.

It is said “Get the right man in the leadership job and all your problems will be solved.”

In the words of Millett, “Leadership is often thought of as being primarily personal in character, as being founded upon individual pre-eminence or accomplishment in a particular field of endeavour. Superior strength, superior cunning, superior intelligence, superior knowledge, superior determination—any or all of these may be means to the attainment of leadership.”

No one can deny that these personal qualities do pay dividends but leadership is not all personal pre-eminence. It is something more and that “something more” is the essence of leadership.

It is the capacity to set new goals, to hold forth new and loftier expectations for the group, to embody moral and spiritual aspirations and to show the group its nobler potentialities that make a man a leader. Leadership has, therefore, double meaning.

The dictionary meaning of the verb ‘to lead’ shows that the term is used in two different senses:

(a) “To excel, to be in advance, to be prominent”, and

(b) “To guide others, to be head of an organization, to hold command”.

In the former sense, leadership is identified with individual pre-eminence and in the latter sense, it is identified with managerial talent or leadership. Allen has, therefore, rightly distinguished per­sonal leadership from management leadership when he says “A person is born with the talent for personal leadership; he must learn management leadership.”


Essay # 3. Functions of Leadership:

According to Barnard, a leader performs four main functions:

(a) The determination of objectives.

(b) The manipulation of means.

(c) The control of the instrumentality of action.

(d) The stimulation of coordinated action.

The most exhaustive effort to attempt at the functions of leadership has been made by the studies at Ohio State University. The Ohio State work was largely concerned with leadership in formal organisations, most particularly the U.S. Navy and lasted for seven years from 1946 to 1953.

It established nine dimensions, three of which are unique and mentioned below, to the leadership role:

(i) Maintenance of Membership:

This involves the closeness of the leader to the group, the frequency of his interactions, and his acceptability to the group.

(ii) Objective Attainment:

The leader has a basic responsibility for seeing that work pat­terns are stable and understandable. He must also see that the group achieves its goals.

(iii) Group Interaction Facilitation:

The leader works to facilitate effective interaction among organization members. Communication is a particularly important feature of this dimension.

Dimensions of the Leadership Role:

It is very important to mention here that leadership is not the activity of an individual. alone. In a large-scale organisation, leadership becomes a collective activity for no single indi­vidual can meet the tremendous demands of working out the whole organisation.

Individual leadership is important and many a time we associate individual with the whole of an organisa­tion, put blame on him or applaud him for the failure or success of the organisation.

Perhaps the most extreme example of this is the tendency among many people to see the Prime Minister as the Indian Government, despite the fact that there are millions of civilian and military persons who are direct participants in the running of the Government.

Based on this concept are the biographies written about the attributes of personality of the “great man” or “father” which highlight that management is perhaps a ‘single man’s show’. This line of thinking has resulted in many attempts to ascertain what qualities make leadership.

Generalizations have been made about the personal qualities of leaders. Millett, for example, enlists eight such qualities which are usually characteristic of successful leaders.

Ralph M. Stogdill refers to these qualities as:

(1) Physical and constitutional factors (height, weight, physique, energy, health, appearance);

(2) Intelligence;

(3) Self-confidence;

(4) Sociability;

(5) Will (initiative, persistence, ambition);

(6) Dominance; and

(7) Urgency (i.e., talkativeness, cheerfulness, geniality, enthusiasm, expressive­ness, alertness, and originality).

Pfiffner and Sherwood emphasize the counter-view of individual leadership and feel that there is essentially a leadership structure predicated on the idea that no one person has all the leadership functions.

The functions of an organisa
tion are divided and each individual in his respective position provides leadership, in so far as he provides the cohesiveness, the atmo­sphere and the progress towards organisational goals. Since power is dispersed throughout the organisation, leadership too is dispersed.

There is no denying the fact that leadership is provided at several levels in the hierarchy but at the same time, the top leader’s role cannot be dismissed. “He is the symbolic spokesman, the coordinator supreme, the important participant in decisions as to goals, the primary change agent, and the example to the organisation. Even cut down this much, the man at the top still has a monstrous responsibility.”

We know what a great difference did it make to the British Government in substituting Churchill as against Chamberlain during the World War II. Of course, we have to guard ourselves against treating the whole management as the product of ‘personal­ity cult’ and we must give due importance to the role which leadership plays at other levels in the administration.

Thus, leadership is a collective activity in which all key persons participate under the overall control of the top leader.


Essay # 4. Qualities of Leadership:

It is very difficult to lay down as to what the qualities of a leader should be. Almost every writer on the subject has a long list of the qualities which leadership must possess.

We give below the qualities enumerated by some of the writers:

(i) Millett:

1. Good health, personal energy, and physical endurance.

2. A sense of mission, a sense of personal commitment to a cause or purpose, enthusi­asm, self-confidence.

3. Interest in other people, a sense of friendliness, a concern for others.

4. Intelligence (not necessarily profound knowledge about detailed or highly specialized matters but good common-sense), a ready or quick facility to comprehend the essential elements of necessary information, and the capacity to use knowledge.

5. Integrity, a sense of moral duty and of fairness, willingness to share achievement, the capacity to set standards of personal and official conduct which will command the respect of others.

6. Persuasiveness, the capacity to win others, to acceptance of the point of view embod­ied in decisions.

7. Judgment, the capacity to know the strength and the weaknesses of the people one works with and how to obtain their maximum usefulness to an organization.

8. Loyalty, devotion to a cause and also to the persons with whom one works, a willing­ness to defend the group against external attack.

(ii) Barnard:

1. Vitality and Endurance;

2. Decisiveness;

3. Persuasiveness; and

4. Responsibility and Intellectual Capacity.

The above list is in order of importance:

It is interesting to note that Barnard does not emphasize the intellectual attainments. His objection against intellectualism is that it prevents responsibility and decisiveness in the leader. “We all know persons in and out of practical affairs of superior intellects and intellectual ac­complishments who do not work as well, as leaders. In matters of leadership, for example, they prove to be irresponsible—non-decisive—, non-persuasive. Moreover, we can observe that intel­lectual capacity rises above physiological disabilities in active life, that the utmost perspicacity is useless for leadership if it does not decide issues, that persuasive processes must take full account of the irrational by which all are largely governed, that responsibility is a moral or emotional condition.”

(iii) Cleveland:

In his own words: “our political executive must be imbued with the public interest, he must be a leader of men, he must do his own thinking and be his own public relations man, and he should preferably have had some private experience.”

(iv) Hoover Commission:

The Hoover Commission’s Task Force Report on Personnel and Civil Service (1955) noted: “His foresight must equal the hind-sight of a host of critics….The rules of the game of national politics allow no margin for error….To lead the life of a political executive of a high rank amidst the asperities of American politics is a test of toughness, of intelligence, and the devo­tion to the public interest.”

(v) Terry:

Energy, emotional stability, knowledge of human relations, personal motivation, communi­cative skill, teaching ability, social skill, and technical competence.

(vi) Appleby:

A good administrator has willingness to assume responsibilities; demonstrates continuing personal growth; is disposed towards action; is a good listener who asks pointed questions; works well with all sorts of people; seeks ablest obtainable subordinates; uses institutional re­sources—does not try to do it all and know it all himself; cares for power only as it contributes to effectiveness, chiefly as a reserve asset; has self-confidence, and so is ready to admit his limitations and errors; is hospitable to bad news as well as good; respects subordinates as much as superiors; constantly seeks to improve institutional performance; and in democratic govern­ment he respects political processes and responsibilities.

The above list is quite exhaustive. To sum up, it is sufficient to say that a leader should be decisive, unerring, improvement conscious and good public relation man. He should have fore­sight and far sight, capacity to carry his subordinates with him and the ability to look to the organisation as a whole.

Millett has aptly described the essential circumstances of leadership as – (a) political and (b) institutional conditions. By political conditions of administrative leadership we mean, says Millett, the need to be responsive to external political direction and control.

In a democratic society, leadership must be skilfully “attuned to the popular aspirations and desires of the time…Of course, management does not necessarily have to behave like an isolated tree which bows in whatever direction the wind may come at the moment. But management must endeavour to understand currents of popular ideas, and while endeavouring to inform or modify those ideas, it must acknowledge their existence and endeavour to accommodate their demands within some degree.”

The vital ingredients of political responsiveness have been eloquently summarized by Chester Barnard:

“The democratic process either in government or in innumerable other organizations in which it may be used, depends upon leaders strong enough to maintain their ambition under its perplexities, patient to endure its restraints, proud to be foremost among the free, humbly loyal to the humble, wise enough to seek service above the illusions of power and the futilities of fame, willing to be briefly spent in the long span of marching events.”

The institutional conditions of leadership as mentioned by Millett are four:

(a) The ability to see an enterprise as a whole.

(b) The ability to make decisions.

(c) The ability to delegate authority.

(d) The ability to command loyalty.

Management says Millett, “must exercise its leadership in terms which evoke response to these particular needs of administrative effort. In turn, management leadership evidences its effectiveness to the degree that it displays an awareness of these necessities of internal operation and response to them by the kind of direction it affords.”

Thus administrative leadership has to be responsive both internally and externally. Exter­nally, it has to be popular with the public and internally, it has to keep the agency running.

Conclusion:

We may therefore come to the conclusion that a successful head of a big organisation should be equipped with following qualities:

(a) Foresight:

A leader shoul
d be foresighted and far seeing. He should have the capacity of seeing beyond the situation.

(b) Clarity of Vision:

A leader should have clear vision. He should not be a confused man. He must know what he wants and what he does not want.

(c) Decisiveness:

A vacillating and un-decisive chief is a potential danger to the morale of an organisation. Hence decisiveness is an important trait of leader’s character.

(d) Correct Judgment:

A leader’s sense of judgment should be unerring type.

(e) Progressive:

A leader should be progressive and be enthusiastic enough to improve the performance of an organisation.

(f) A Source of Inspiration:

A good leader is to be a source of inspiration for the subor­dinates around him. He must win their confidence and make them feel an inch taller due to his inspiring leadership.

(g) A Good Organizer:

A leader should be a good organizer. He should develop in them a feeling of owning the organization where they are working. He should be a believer in partici­pative management.

(h) Good Public Relation Man:

He should be a good public relation officer. He should be skillful enough as to explain his point of view to the public and know their reactions.

Development of Leadership:

It is now widely accepted that “high talent manpower does not grow wild; it requires careful seeding and meticulous cultivation.” With the growth of modern industrialization, we will have to accept the basic assumption that leaders are not born; rather they are made. Genera­tion and accumulation of managerial resources is increasingly a matter of careful planning, judi­cious investment, and conscious effort.

In the words of Barnard: “I suppose no one doubts that without education the supply of leaders of organization competent for conditions of the modern world would be wholly inadequate and many of us suspect that if we knew better how to train men, we should be much better able than we are to cope with the social dilemmas we confront.”

Hence there is a need for proper education, both in theory and practice of organization, to our leaders.

Selection of Leaders:

This is rather a vexing question. Are the leaders manufactured or simply identified? In other words, are the persons of qualities of leaders to be discovered and accorded a prominent position. Administrative leaders are procured by selection and not by formal preparation.

Intellectual caliber of these leaders is discovered through selection on the basis of written tests. However, organizational, coordinative and leadership qualities are discovered through a prolonged psychological-cum-intelligence-cum-observation tests. This is generally done when army officers are to be chosen.

According to Barnard, “Balances perspective and proportion in the senses relevant to leadership are to be acquired almost exclusively from responsible experience in leading.” In other words, experience also is to play a vital role in the selection of administrative leaders. Barnard even suggests that the administrators should be encouraged to acquire experience in leadership outside the organization they work in.

Thus we may conclude that proper method of selection, formal education and training and informal as well as formal experience are necessitated for creating the requisite qualities of leadership in modern society. However, it remains a reality beyond any doubt that leadership is not given, it is assumed.


Essay # 5. Leadership Styles:

There are mainly two types of leadership:

(1) Authoritarian

(2) Democratic

The authori­tarian leader has been variously described as directive, production-centered, nomothetic. The democratic leader has been called participatory, employee-centered, and idiographic.

The former approach is the product of Taylor’s Scientific Management Movement whereas the latter is the outcome of the researches and experiments conducted by Elton Mayo at Hawthorne and sup­ported by Iowa and Michigan studies.

The authoritarian leadership prefers higher productivity to the welfare of the employees. The leader structures the complete work situation for his employ­ees and they do what they are told. The leadership is negative because followers are afraid of leader’s authority.

Opposite is the case with democratic leadership. The Michigan studies have proved that the best pattern of supervisory leadership is employee-centered and general in na­ture.

The leader is concerned with employee welfare first and production second. He engages in a general rather than a close surveillance of his subordinates. Instead of taking unilateral deci­sion, he emphasizes consultation and participation by his subordinates. A democratic leader decentralizes decision-making process.

The above types are diametrically opposite to each other though neither of them can work well. There is no denying the fact that democratic leadership is a “human relation” approach which is in keeping with democratic values but it cannot be applied wholesale.

As Pfiffner and Sherwood have said, “Democratic leadership seems to make a great deal of sense where ulti­mate power rests with the participants, as is the case in our political jurisdiction, in labour unions, and in many smaller voluntary groups. The possibilities of its application are consider­ably lessened as we move into situations where power is not so neatly lodged in the participant group, as is the case with employees of a business or of a government agency. It also seems apparent that traditional elements of hierarchy, such as unity of command, collide rather mark­edly with the group-centered philosophy.”

Thus there is a need to find a middle ground.

The new ground has been termed as “reality- oriented” leadership. The emphasis on power is one aspect and human relations the other of this new direction. It is found that “if a leader abdicates his interest in and responsibility for produc­tion it has an adverse effect on both productivity and morale.

‘Soft’ leadership, over-emphasis upon consideration, is not conducive to high morale. A moderate amount of emphasis on production is required to avoid both low production and low morale.”


Essay # 6. Theories of Leadership:

The following theories of leadership have been advanced by different writers:

(i) The Great Man Theory:

It is one of the earliest theories of leadership which is based on the premise that leaders are born and not made. Some persons by birth inherit certain qualities or traits like intelligence, memory, emotional stability, fearlessness, and mental strength.

Such qualities add to their personality when they grow up, single them out from the common man of people and provide them the opportunity to become a leader.

Napoleon, Abraham Lincoln, Churchill, Mao-Tse Tung, Nelson Mandela, Mahatma Gandhi and several others are natural leaders with qualities of leadership. The advocates of this theory do not believe in the policy of ‘Executive Development, i.e. a person can be taught and trained leadership qualities.

The above theory has been criticized on the ground that it has no scientific basis and empirical validity. Administration is both science and art which needs to be taught and learnt. The various Institutes of Management are engaged in teaching the management techniques and leadership qualities. The sociological thinkers do not subscribe to the theory that heredity alone determines man’s personality.

(ii) Trait Theory of Leadership:

The Trait Theory argues that leadership qualities can be acquired. Its advocates hold that certain traits or qualities are required to become a leader. They adopted an inductive procedu
re, observing those recognized as leaders and enumerating traits possessed by them Qualities com­mon to them were assumed to be essential which were measured to find out the leadership potential of a person.

Generally speaking, those traits were classified as into innate and acquir­able traits. The major innate qualities are physical features like height, weight, physique, health and appearance and intelligence.

The acquirable qualities are emotional stability knowledge of human relations, empathy, and objectivity, motivating skills, technical skills, a communicative skills and social skills, Tead, Bemord and Schell are the prime advocates of this theory.

The main criticism against this theory is that there is not universally acceptable list of traits considered essential for leadership role. Further, it is also not necessary that a leader must process all the qualities included in the list.

Jennings has concluded, ‘Fifty years of study have failed to produce one personality traits in set of qualities that can be used to discriminate leaders from non-leaders.” It is a speculative theory which fails when subjected to empirical tests.

(iii) The Situational Theory of Leadership:

The theory was developed by Blanchard, zig or mi and Kelson and Kersey and has been used extensively in organisational leadership training and development. The starting point of this theory is that there are certain elements such as speech intelligence, stability and persistence which are essential in leaders.

A candidate is put in a group and observed how he acts under trial situations that are constructed as realistically as possible. After being placed in several situations his skills, intelligence and other traits get ascertained as to whether he is capable for a practical jobs. It is assumed that the traits and skills which characterize a good leader will vary from situation to situation.

A leader in one situation may not necessarily be a leader in a different situation even in the same group. The same leader may display different personality traits to deal with diverse situations. Thus, a leader showing bravery and fighting spirit in war situation may fail to show patience perseverance, calmness and coolness in a peaceful situa­tion. Various situations call for different leadership responses.

Ohio State University research has given four situational variables that affect behaviour;

(i) The cultural environment

(ii) Differences between individuals

(iv) Differences between jobs

(v) Differences between organisations.

Thus, according to the proponents of situational theory leadership differs with situational variables and a person who is a successful leader in a particular situation may be unsuccessful in a different situation. As different situation require different leadership qualities, so the leader must change his style of leadership and possess, the qualities of addictiveness and flexibility.

The main criticism against this theory is that it puts restraint over leadership development pro­cess. A person can be trained to become a leader through systematic and properly planned training programme. In both civil and army organizations executives are sent to attend short- term courses, seminars, conferences and workshops.

They are also sent to foreign institutes to brush up their knowledge and learn the latest complex technologies and intricate techniques. In a democratic set up, understanding of human relations is of great importance to the executive. The administrators have to deal with the people and therefore an understanding of the nature of general social system is a primary requirement for leader to be successful.

(iv) Contingency Theory of Leadership:

Fiedler is the most widely recognized thinker to develop contingency theory. It is also called Leader-match theory. According to this theory, effective leadership is contingent on match­ing a leader’s style to the right setting.

Under this theory, styles of many different leaders who worked in different contexts are studied and after analyzing their styles generalizations are made about which styles of leadership are best and which are worst for a given organizational context. In short, this theory is concerned with styles and situation.

The contingency theory classifies leadership styles into task-motivated and relationship motivated. Task motivated leaders are concerned with realizing a goal whereas relationship motivated leaders are concerned with developing interpersonal relationship.

The task motivated leaders are effective in both very favourable and very un-favourable situations. The relationship motivated leaders are effective in moderately favourable situations, i.e. in situations where things are neither completely under their control, nor out of control.

This theory suggests that leaders are not effective in all situations. If one’s style is a good match for the situation in which he works, he will be a good leader, but if his style does not match the situation, he may not be called a good leader.

Mr. P.S. Gill was hailed as a good leader when he successfully matched the situation created by militants in Punjab, whereas Mr. Deshmukh failed to meet the situation created by terrorists in Maharashtra and had conse­quently to quit the Chief Minister ship.

(v) Path-Goal Leadership Theory:

Path-Goal Leadership theory is about how leaders motivate subordinates to accomplish the goals of the organization. It focuses on employee’s motivation so that their performance may be enhanced. This theory was advocated in the early 1970s. House and Mitchell are its notable advocates.

The motivation of employees finds in important place in the literature on Public Admin­istration. It enhances their morale and leads to all-around efficiency in administration. The Path-Goal theory attempts to explain the impact that leader behaviour has on his subordinates motivation, satisfaction and performance. There are several ways to generate motivation.

Ac­cording to Path-Goal Theory leadership motivates when it:

(i) Makes the path to the goal clear and easy to travel through coaching and direction,

(ii) Removes the obstacles and road blocks to reach the goal, and

(iii) Makes the work more satisfying.

For this purpose the leader is to adopt an appropriate style of behaviour. The behaviour style will depend on the characteristics of the subordinates, nature of the task, organisational environment and personal qualities of the leader.

It need not be emphasized that each type of leader behaviour will have a different kind of impact on subordinates motivation. House and Mitchell have suggested four types of leadership behaviour. These are directive Leadership, supportive leadership, achievement-oriented leader­ship and participative leadership.

Directive leadership:

Directive leadership gives instructions about the task, sets clear standards of performance, makes the rules and regulations clear to the subordinates and also fixes the time-frame within which the task is to be completed.

Supportive leadership:

Supportive leadership consists of being friendly and approachable, treating subordinates as equals, giving them due respect and caring for their personal problems and needs. Achievement-oriented leadership lays emphasis on work-performance and sets high stan­dards of excellence for subordinates and seeks continuous improvement.

Participative leadership:

Participative leadership invites subordinates to share in decision making. The leader con­sults with the subordinates, obtaining their views and opinions and integrates their suggestions into the decisions about how the task will be performed.

(vi) Leadership Behaviour Continuum Theory:

Robert Tannen Baum and Warren H. Schmidt are the developers of leadership continuum theory. According to them, leadership involve
s a number of behaviour styles ranging from a highly boss-centered to highly subordinate centered.

What type of leadership style is appropriate depends on the leader or the followers and the situation. Thus no particular leadership – au­thoritarian democratic is suitable in all situations. The authors of this theory hold that leaders should not choose a strict ‘autocratic’ or ‘undemocratic’ style. He should be flexible enough to meet the different situations.

To conclude, leadership is an important aspect of administration. Effective leadership is the key to successful administration. The choice of a particular leadership style will depend upon three elements – leaders, followers and situation.


Essay # 7. Leadership Styles in Indian Organisation:

Indian management is generally believed to be autocratic with subordinates closely super­vised and with limited participation by the employees.

Myers from his interview with industri­alists, government officers, labour leaders and managers in both Indian and foreign-owned or­ganisations, concludes that barring few, most Indian top managers are relatively authoritarian in their relationship with lower management and labour.

Similar result has also been highlighted by other studies of leadership behaviour in private and public sectors. In the public sector bu­reaucratic style is the rule. The process of democratization of the work culture, group function­ing and team management is not pronounced. In private sector, benevolent autocracy is the most pronounced style.

What is the right leadership style for Indian managers is a difficult question to be an­swered?

There are numerous variables which affect the leadership style. Thus what may appear to be an effective leadership style for a manager, may not be equally appropriate to others in different organisations. The army style of leadership may not be suitable for civilian organisation requiring people’s participation.

Likewise, the leaders in a democratic political set-up will have to adopt styles different from those found in a dictation political regime. The important vari­ables in this context are superiors, subordinates and the situation under which a particular style is followed. The Indian society marked by traditionalism and authoritarianism is gradually giv­ing place to modernism and democratize.

As such the old authoritarian style of leadership may not be the right leadership style in the changing situation. Further, the attitudes and perceptions of Indian managers are also being transformed through education and training to meet the challenges of a developing society. The concept of participative management is gaining ground in the organisational set-up.

Already, there is a move for participative style of leadership in enlightened enterprises. Considering these factors, the appropriate style may be near-participative leadership. However, it should not be assumed that this style will be suitable in all circumstances. A participative style requires work culture. The work culture in India being poor will have to be changed to suit participative style.


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[PDF] Essay on Public Corporations | Forms | Public Enterprises

Here is an essay on the ‘Types of Public Corporations‘ for class 9, 10, 11 and 12. Find paragraphs, long and short essays on the ‘Types of Public Corporations’ especially written for school and college students.

Essay on Public Corporations


Essay Contents:

  1. Essay on the Tennessee Valley Authority
  2. Essay on the British Broadcasting Corporation (B.B.C.)
  3. Essay on the Damodar Valley Corporation (D.V.C.)
  4. Essay on the Life Insurance Corporation (L.I.C.)

Essay # 1. Tennessee Valley Authority:

The first important type of public corporation is the Tennessee Valley Authority which was created in America by the Norris Act of 1933 for utilizing the water of Tennessee River for the purpose of planned development of water-shed regions. Regarding composition the Act provided that “there is hereby created a body corporate by the name of the Tennessee Valley Authority…. The Board of Direc­tors first appointed shall be deemed the incorporators, and the incorporation shall be held to have been effected from the date of the first meeting of the Board.”

The Board consists of three members who are nominated by the President and confirmed by the Senate for a period of nine years, one retiring after ever three years.

They can be removed from office only by a concurrent resolution of the two Houses of Congress. In the appointment of officials and the selection of employees for the corporation and in the promotion of such employees, or officials no political test or qualification shall be permitted or given consideration but all such appointments and promotions shall be given and made on the basis of merit and efficiency.

Working:

The TVA has successfully carried out its programme of development of Tennessee Valley. It has built up a very high reputation for itself in matters of efficient management, sound per­sonnel policy and long-term planning.

The Labour Management Committees associated with TVA have not only given the workers a hand in comprehending and solving the problems of the project but also built up a steady process of citizen self-education.


Essay

# 2. The British Broadcasting Corporation (B.B.C.):

In October, 1922, a company called “The British Broadcasting Company” was formed in England to carry out regular wireless trans­missions, under license and agreement with the Postmaster-General. Sometimes later it was thought desirable to convert the company into a government corporation with a view to providing the service to the people on more efficient and economical lines.

Consequently a Royal Charter was passed on 20th December, 1926 creating thereby the British Broadcasting Corporation which took over the wireless broadcasting service from the company.

Composition and Working:

The B.B.C. is under a board of seven governors appointed by an Order-in-Council, in other words, by the Government of the day. There is a Director-General of the Board who is the Chief Executive of the Corporation and thus responsible for its good administration.

“The B.B.C. has a dual nature; on the one hand it is a highly technical organization, in which it is closely associated with the engineering experts of the post office, and on the other it is an educational and cultural service over which it has a very wide autonomy. It is subject to general ministerial control, the Postmaster-General being responsible in the House of Commons for finance and broad policy; he has also the power to veto programme but in practice the B.B.C. is given effective independence in operation.”

It derives its main revenues from an assigned percentage of moneys obtained from licenses issued by the Post Office.


Essay

# 3. The Damodar Valley Corporation (D.V.C.):

The Damodar Valley Corporation was created by the Government of India in 1948 for the development of the Damodar Valley in the states provinces of Bihar and West Bengal.

According to the preamble of the D.V.C. Act the functions of the Corporation are “the promotion of the schemes for irrigation, water supply and drainage, generation, transmission and distribution of electric energy, flood control, navigation, afforestation and control of soil erosion and finally the promotion of public health, and the agricultural, industrial, economic and general well-being of the Damodar Valley and its area of operation.”

Thus it is a multipurpose project.

Composition:

The Corporation consists of a Board including one chairman and two members appointed by the Central Government in consultation with the State Governments of West Bengal and Bihar. The Central Government can remove them at any time. The Corporation also has a Fi­nancial Adviser, a Secretary, a Deputy Secretary and two Under Secretaries all appointed by the Central Government.

The Corporation has its own funds and finances. All receipts of the Corpo­ration are carried thereto and all payments are made therefrom. The Government of India, and the Governments of Bihar and West Bengal provide the necessary capital.

In case any partici­pating Government fails to provide its share on the prescribed date, the Corporation may raise a loan to make up the deficit at that Government’s cost. The Corporation maintains its own audit system but submits an annual report of its work to the Government which is placed on the table of both the Houses of Parliament.

Working:

The Corporation has the powers to do anything which may be necessary or expedient for the purpose of carrying out its functions under the Act. The Central Government maintains its control only on ‘questions of policy’, otherwise it has full autonomy regarding administrative matters.

On the working of corporation divergent views have been expressed. Some critics have observed that corporations could not work properly because they did not enjoy their autonomy due to too much interference from the Government.

Mr. Gorewala in his report on the Efficient Conduct of State Enterprises, points out, “Recently it has been decided that plans prepared by its chief engineer and approved by its consultant engineers—three specially qualified technical men—are, thereafter, to be further examined by the engineering sections of those participating Governments.”

Besides, the Technical Committee of the participating Governments by scruti­nizing the project estimates of the corporation delays the execution of the project. Moreover, in the appointment of officials for the D.V.C., politics has entered in.

In the words of Gorewala, “In a country in which it has long been recognized to be a man’s clear duty to provide for his relatives, near and distant, as well as for his Biradari or brotherhood, very special measures are needed to deal with the many evils and injustices that come from patronage.”

On the other hand, some people hold the view that for satisfactory working of the corpo­ration there should be more of government control.

The Estimates Committee in its Report of 1954 says, “The autonomous character of the DVC has been taken to extreme limits. The DVC has developed strange conceptions of its autonomy and tried to bypass the authority or the advance of the government.” A great deficiency in the DVC set-up is the absence of the labour’s association in the management of the enterprise.

The Act states that “the corporation shall co­operate with the participating governments, railway authorities and local authorities and bodies with a view to m
inimizing inconvenience likely to be caused by the subversion of roads and communications” but it does not lay down that the corporation should give the workers a hand in comprehending and solving the problems of the project.

No effort has so far been made to seek the cooperation of the workers in the working of corporation.

In conclusion, it may be remarked that though DVC has succeeded in achieving some of its targets, e.g., completion of Tilaiya, Konar and Maithan dams, yet it has not come up to the standards set by Tennessee Valley Authority in matters of long-term planning, development programmes and a sound personnel policy.


Essay

# 4. Life Insurance Corporation (L.I.C.):

Before January 19, 1956, the business of life insurance was undertaken by Indian and foreign insurance companies, provident fund societies and the Posts and Telegraphs Department of the Government of India. In addition, certain State Governments also transacted insurance business, both life and general.

On the said date the management of life insurance business was vested in the Central Government through an ordi­nance.

The Life Insurance Corporation Act, which came into force on July 1, 1956 transferred all the assets and liabilities pertaining to life insurance business of existing insurance companies to a statutory corporation which got the exclusive right to carry on life insurance business.

Composition:

The Corporation was established on September 1, 1956. It is managed by a Board consist­ing of not more than fifteen members, including the chairman, appointed by Central Govern­ment. The members are not to engage themselves in such financial or other dealings as are likely to prejudicially affect the exercise of their functions.

Members are not to take part in deliberations or discussions of the corporation in respect of contracts in which they are directly or indirectly interested.

The general superintendence and direction of the Corporation is en­trusted to an Executive Committee, consisting of not more than five members. The Corporation also has an Investment Committee consisting of not more than seven members of whom at least three are the members of the Corporation.

In addition, the Corporation has managing directors and zonal managers. The zonal offices have been divided into divisional and branch offices.

Working:

Since the Corporation took over the life insurance business, it is showing progressive trends. During 1969-70 as many as 16, 22,000 new policies were assured for the sum of 1,303 crores of rupees. Justice Chagla who enquired into the ‘Mundhra Deal’ came to the conclusion that the Government interfered too much in the working of the Corporation.

After reproducing Section 21 of the Life Insurance Corporation, under which the Central Government could give written directions in matters of policy, involving public interest, Mr. Chagla observed, “Section 21 embodies the ideal compromise between the autonomy of a statutory corporation and the control which must be exercised by a welfare State over such a corporation while leaving to the corpo­ration complete autonomy to manage its own day-to-day administration.

While leaving it free to invest its funds in the interest of the policy-holders. Government could only control its discre­tion when a question of policy involving public interest arose.

Government could not tell the Corporation that it should or should not invest in any particular share, it could not tell the Corporation that it should help a particular industry, much less a particular individual; but it could tell the Corporation that it should invest its funds in certain industries which were essen­tial for the successful working of the Second Five-Year Plan or to give effect to a particular economic or financial policy laid down by Government.

It is most unfortunate that the wise and sound principle laid down in Section 21 has not been followed in the working of the Life Insurance Corporation.

The evidence clearly shows that there was a tendency on the part of the Finance Ministry to look upon the Corporation as a wing or branch of that ministry and to issue orders to it in the belief that the Corporation was bound to carry out those orders….The transaction was not really a transaction effected by the Corporation in the exercise of its statutory duty and discretion.

The evidence is clear beyond doubt that the transaction was brought about as a result of interference by Government and the transaction may be character­ised as a dictated transaction.

Defects and Remedies:

The reports of the P. A.C. and the various inquiry committees appointed from time-to-time have shown that public corporations in India have not fared well.

The main defects are the following:

(i) The Board of Directors has a preponderance of official members which reduces the corporation to the position of a department of the government. The Board can hardly be called an autonomous body. These official members have neither the time nor the entrepreneurial skill.

Sometimes, the same person is appointed on a number of Boards. All this retards the work of the Board and causes uncertainty and drift in the policies of the corporation.

(ii) The Public Corporations are autonomous only in name; actually they are regarded as Government departments.

The Estimates Committee of the first Lok Sabha in its sixteenth report observed. “The Committee have noticed that in the relations between these undertakings and the Ministry, the former are treated in the same manner as departments and offices of Government controlled and supervised by the Secretariat. The State undertakings have thus become adjuncts to ministries and are treated more or less on the same lines as any subordinate organisation or office. The Committee deplore this tendency which has had a harmful effect on the productive policy of the undertakings as these have been subjected to all the usual red-tap and procedural delays common to a Government department with serious consequential effect on production.”

What is still worse is that the minister does not issue any directive in writing but tries to influ­ence the Board from the back-door method. In order to save himself from the responsibility, he influences the members of the Board by informal consultations and advice.

That it so happens very usually, was revealed in Chagla’s Inquiry. The Minister may dictate to the Corporation although masquerading it as a mere advice. The Managing Director of LIC stated before the Commission that “when the Finance Secretary asked them to do something, they looked upon it as a directive from Government.”

(iii) In certain respects the Parliamentary criticism is not well informed.

(iv) Personnel policy of most of the public corporations is not good. They have not evolved effective and energetic policy to recruit and train suitable persons for the managerial and other skilled jobs.

(v) Lack of efficiency and self-sufficiency are the other defects. Most of the corporations are running in loss. There is much waste and inefficiency. Their progress has been slow.

Mr. Chagla made the following recommendations for the efficient administration of public corporations:

(i) The Government should not interfere with the working of autonomous statutory corpo­rations; that if they wish to interfere they should not shirk the responsibility of giving directions in writing.

(ii) The chairmen of corporations, like that of the L.I.C., which have to deal with invest­ments in a large way, should be appointed from persons who have business and financial expe­rience and who are familiar with the ways of the stock exchange.

(iii) If the executive officers of the Corporations are to be appointed from the Civil Ser­vices, it should be impressed upon them that they owe a duty and lo
yalty to the corporation and that they should not permit themselves to be influenced by senior officials of Government or surrender their judgment to them.

If they feel that they are bound to obey the orders of these officials, they must insist on these orders being in writing.

(iv) In a parliamentary form of government. Parliament must be taken into confidence by the ministers at the earliest stage, and all relevant facts and materials must be placed before it. This would avoid difficulties and embarrassments being caused at a later stage when Parliament gets the necessary information from other sources.”

Recommendations of ARC:

The Administrative Reforms Commissions has made a large number of recommendations for the better management and the increased profitability of the corporations.

Some of these recommendations are as follows:

(i) The Management Board of Corporations should comprise of a full-time Chairman- cum-Managing Director; full-time functional directors; not more than two part-time government representatives; and two or three part-time members from outside the government.

The govern­ment representatives should be selected on the basis of their qualifications and experience and not by virtue of the office which they hold in a particular Ministry.

(ii) The Bureau of Public Enterprises should work out a model form for the Annual Re­port of public undertakings. It should be strengthened and invested with authority appropriate to its responsibilities.

(iii) A small technical cell should be set up in each Ministry concerned with public under­takings to assist in the scrutiny and evolution of feasibility studies and detailed project reports and for the analysis and utilisation of progress reports and returns received from public under­takings.

(iv) No officer of the Ministry should be made chairman of public undertaking nor should a Secretary of Ministry be included in its Board of Management. Top management posts should be filled in by officers on deputation only when there is no suitable alternative available.

(v) Each undertaking should prepare a comprehensive budget to embrace the entire organisation. Internal audit should be made more effective.

(vi) A Material Management Manual should be drawn up.

(vii) Four or five Audit Boards should be constituted, each Board dealing with specified sectors of public enterprise.

(viii) There should be systematic appraisal of the performance of all public undertakings.

Government corporations are destined to play a significant role in the changing world of the future. Due to lack of experience and also due to non-availability of technical staff mistakes might have been made in the past by the Indian corporations but that need not make us despair of the corporations. With lapse of time, the necessary experience will be acquired and the work­ing of the corporations will also improve.

However, all this is possible if top management including political elite mend their ways and desist from interfering in day to day administra­tion. Besides, full measure of accountability should not remain as a theoretical proposition. It must be operationalized with full sincerity so that Indian corporations could contribute their bit towards the attainment of national goals.


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[PDF] Essay on Administration: Meaning and Approaches | Hindi | Political Science

Read this essay in Hindi to learn about the meaning and approaches of administration in a state.

Essay # 1. प्रशासन का अर्थ (Meaning of Administration):

‘लोक प्रशासन’ दो शब्दों ‘लोक’ एवं ‘प्रशासन’ से निर्मित है जिसमें ‘लोक’ विशेषण (Adjective) का कार्य करता है तथा ‘प्रशासन’ संज्ञा (Noun) है । लोक प्रशासन के अर्थ को समझने से पूर्व इन दोनों शब्दों का पृथक्‌ पृथक् अर्थ समझ लेना आवश्यक है ।

सर्वप्रथम संज्ञा के रूप में प्रयुक्त ‘प्रशासन’ शब्द का अर्थ समझ लेना अधिक उपयुक्त होगा । ‘प्रशासन’ शब्द मूल रूप से संस्कृत भाषा का शब्द है जो कि ‘प्र’ उपसर्ग + ‘शास’ धातु से निर्मित है तथा इसका तात्पर्य है उत्कृष्ट (Excellent) रीति से शासन संचालित करना । प्रशासन के लिये अंग्रेजी में ‘एडमिनिस्ट्रेशन’ शब्द का प्रयोग किया जाता है ।’

‘एडमिनिस्ट्रेशन’ शब्द की व्युत्पत्ति लैटिन भाषा के दो शब्दों ‘एड’ (Ad) तथा ‘मिनिस्ट्रेट’ (Ministrate) से हुई है जिसका अर्थ सेवा सम्बन्धी कार्यों को करने से है । वस्तुत: ‘प्रशासन’ में शासन व सेवा दोनों का ही भाव निहित है ।

सामान्यतया प्रशासन को विभिन्न सन्दर्भों के आधार पर निम्नलिखित चार अर्थों में प्रयुक्त किया जाता है:

(1) मंत्रिमण्डल शब्द के पर्यायवाची के रूप में अर्थात् नेहरू-प्रशासन, इन्दिरा-प्रशासन, बुश-प्रशासन आदि ।

(2) सामाजिक विज्ञान की एक शाखा के रूप में ।

(3) सार्वजनिक नीतियों की क्रियान्विति हेतु प्रयुक्त की जाने वाली क्रियाओं के योग के रूप में ।

(4) प्रबन्ध की कला के रूप में ।

इन चारों अर्थों में साम्यता स्थापित न हो पाने के कारण प्रशासन की एक सर्वमान्य परिभाषा दे पाना एक कठिन कार्य रहा है ।

यही कारण है कि विभिन्न विद्वानों द्वारा प्रशासन की भिन्न-भिन्न परिभाषाएँ प्रस्तुत की जाती रहीं हैं:

लूथर गुलिक के मतानुसार- ”प्रशासन का सम्बन्ध उद्देश्य की प्राप्ति हेतु कार्यों को संपादित कराने से है ।”

नीग्रो के अनुसार- ”प्रशासन लक्ष्य की प्राप्ति के लिये मनुष्य तथा सामग्री का संगठन एवं प्रयोग है ।”

हार्वे वॉकर के शब्दों में- ”सरकार कानून को लागू करने के लिये जो कार्य करती है वह प्रशासन कहलाता है ।”

डॉ. ह्वाइट के अनुसार- ”प्रशासन किसी निश्चित लक्ष्य या उद्देश्य की प्राप्ति हेतु अनेक व्यक्तियों के निर्देशन नियन्त्रण तथा समन्त्रीकरण की कला है ।”

एनसाइक्लोपीडिया ब्रिटेनिका के अनुसार- ”प्रशासन का अर्थ किसी भी कार्य को करने अथवा कार्यों का प्रबन्ध करने से लिया जाता है । कानून में यह शब्द विशेषकर किसी मृतक व्यक्ति की सम्पत्ति के सम्बन्ध में आता है । अधिकतर इसका अर्थ सरकार और विशेषकर कार्यपालिका एवं उससे सम्बन्धित शासन से होता है ।”

प्रो. विलोबी ने प्रशासन के अर्थ को व्यापक रूप से समझाते हुए लिखा है कि- ”राजनीतिशास्त्र में प्रशासन शब्द को दो अर्थों में प्रयुक्त किया जाता है । अपने विस्तृत रूप में यह किसी सरकार के विशेष विभाग से सम्बन्धित हुए बिना सरकार के वास्तविक कार्यों का बोध कराता है । यह कथन उपयुक्त होगा कि सरकार के कार्यकारिणी विभाग के प्रशासन, न्याय व न्यायिक कार्यों के प्रशासन अथवा कार्यकारिणी शक्ति के प्रशासन का यहाँ तक कि सरकार के प्रशासकीय कार्यों के विभागों का अथवा साधारणतया सरकार के सभी कार्यों का अध्ययन करता है । अपने संकुचित अर्थों में यह केवल सरकार के प्रशासकीय विभाग से ही सम्बन्धित रहता है ।”

मार्शल डिमॉक के शब्दों में- ”प्रशासन का सम्बन्ध सरकार के ‘क्या’ और ‘कैसे’ से है । ‘क्या’ का अर्थ विषयवस्तु से है अर्थात् एक क्षेत्र का तकनीकी ज्ञान जो कि प्रशासकों को उनका कार्य करने की सामर्थ्य प्रदान करता है । ‘कैसे’ प्रबन्ध की तकनीक है अर्थात् वे सिद्धान्त जिनके अनुसार सरकारी योजनाएँ सफल बनाई जाती हैं । दोनों ही अप
रिहार्य हैं और दोनों मिलकर प्रशासन की स्थापना करते हैं ।”

उपर्युक्त परिभाषाओं के विश्लेषण से स्पष्ट होता है कि प्रशासन किसी विशिष्ट उद्देश्य की पूर्ति हेतु संगठित होकर सहयोग की भावना से किया जाने वाला कार्य है । प्रशासन करने वाले व्यक्ति के पास प्राधिकार (Authority) का होना भी आवश्यक है । प्रशासन का प्रयोग विशाल एवं औपचारिक संगठनों के लिये ही किया जाता है ।

Essay # 2. प्रशासन सम्बन्धी दृष्टिकोण : एकीकृत एवं प्रबन्धकीय (Approaches Regarding Administration: Integral and Managerial):

प्रशासन के अन्तर्गत किन क्रियाओं को सम्मिलित किया जाये इस सम्बन्ध में विद्वानों में पर्याप्त मतभेद है । सर्वप्रमुख विवाद यह है कि प्रशासन के अन्तर्गत केवल प्रबन्ध सम्बन्धी क्रियाओं को ही महत्व दिया जाना चाहिये अथवा विभिन्न स्तरों पर कर्मचारियों द्वारा सम्पादित किये जाने वाले कार्य भी समाविष्ट किये जाएँ ।

इस सम्बन्ध में मुख्यतया दो दृष्टिकोण प्रचलित हैं:

(1) समग्र अथवा एकीकृत दृष्टिकोण:

इस दृष्टिकोण के अनुसार प्रशासनिक क्रियाओं में न केवल प्रबन्धकीय और तकनीकी वरन् शारीरिक एवं लिपिकीय कार्य भी सम्मिलित किये जाते हैं । उदाहरणार्थ- चौकीदार, फोरमैन, संदेशवाहक आदि से लेकर प्रबन्धकों तक सभी प्रशासनिक क्रियाकलापों को सम्पादित करने का दायित्व निभाते हैं । इसका तात्पर्य यह है कि किसी भी उद्यम में कार्यरत उच्च अधिकारियों से लेकर निम्न अधिकारियों तक के कार्यों को प्रशासन का ही भाग माना जाता है । प्रो. ह्वाइट, टीड एवं ओलिवर शेल्डन, मार्शलडिमॉक, ने इसी दृष्टिकोण का समर्थन किया है ।

(2) प्रबन्धकीय दृष्टिकोण:

इस दृष्टिकोण के प्रमुख समर्थक स्मिथबर्ग, साइमन एवं थॉमसन हैं । इनके अनुसार केवल प्रबन्धकीय कियाओं को ही प्रशासनका भागमानाजासकताहै । एक निश्चितएवं विशिष्ट उद्देश्य की पूर्ति हेतु नियोजन, संगठन, नियन्त्रण एवं कर्मचारियों के मध्य समन्वय आदि क्रियाकलाप इसके अन्तर्गत आते हैं तथा इन कार्यों को सम्पादित करने वाले ‘प्रबन्धक’ या ‘प्रशासक’ कहलाते हैं ।

वस्तुत: प्रशासन के सम्बन्ध में उपर्युक्त दोनों ही दृष्टिकोण अपूर्ण एवं एकांगी हैं । सत्य यह है कि दोनों दृष्टिकोण एक-दूसरे के पूरक (Complementary) बनकर ही सार्थक हो सकते हैं ।

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[PDF] Relationship between Liberty and Equality

Liberty and Equality are closely related to each other. There is no value of liberty in the absence of equality. They are the same conditions viewed from different angles. They are the two sides of the same coin. Though there is a close relationship between liberty and equality, yet there are some political thinkers who do not find any relationship between liberty and equality. For example, Lord Acton and De Tocqueville who were the ardent advocates of liberty, found no relationship between the two conditions.

To them liberty and equality were antagonistic and antithetical to each other. Lord Acton maintains that “The passion for equality made vain the hope for liberty”. Such political thinkers maintain that where there is liberty, there is no equality and vice versa. These political thinkers are of the opinion that people were conferred inequality by nature. We find inequality in nature also.

In some parts there are rivers while in others there are mountains and in still other parts there are plains and fields. No two persons are similar in their ability and capacity. And so there cannot be equality in society.

The views of Lord Acton and De Tocqueville are not accepted by modern political thinkers. Professor H.J. Laski has very aptly remarked in this connection: “To persons so ardent for liberty as Tocqueville and Lord Acton, liberty and equality, are antithetic things. It is a drastic conclusion. But it turns, in the case of both men, upon a misunderstanding of what equality implies”.

These days, it is generally believed that liberty and equality should go together. If an individual is given unrestrained liberty to do whatever he likes, he will cause harm to others. There will be chaos in society if individuals are given unrestrained liberty.

In the nineteenth century, the Individualists wrongly interpreted the term ‘Liberty’. They did not attach any importance to economic equality and laid stress on Laissez Faire to be adopted by the government. Adam Smith was the ardent advocate of this view.

The Individualists maintained that there should be a free competition between the capitalists and labour leaders. They did not want the government to interfere in the economic matters. Formula of Demand and Supply should be adopted.

All the economic difficulties will be removed by this formula. If there will be excess of commodities and easy availability of labour, prices will come down. If there is scarcity, prices will rise higher and higher. This formula was implemented in England and in many other countries of Europe and it resulted in dangerous consequences.

The government lost its control over the capitalists. The capitalists exploited the opportunity to the full. They exploited the labour to the full. As a result of it, the rich grew richer and poor became poorer. The labour class suffered tragically.

As a result of it, an intense reaction took place against Individualism. This reaction led to the dawn of Socialism. Socialism condemned and refuted the principles of Individualism. Liberty has no significance in the absence of economic equality. Professor Laski has very aptly remarked, “Where here are rich and poor, educated and uneducated, we always find a relation of master and servant”.

C.E.M. Joad has also asserted, “The doctrine of liberty, of “which the importance cannot be over-estimated in politics, worked disastrously when applied in the field of economics”. Hobbes has also asserted, “What good is freedom to a starving man? He cannot eat freedom or drink it”.

Thus, it is quite clear that economic equality is essential for the existence of political freedom. Otherwise it will be capitalist Democracy in which the labourers will have the right to vote but they will not be able to get their purposes served. Therefore, Liberty in the real sense of word is possible only in Socialistic democracy in which equality and liberty go together.

Similarly, it is also true that in the absence of political liberty, equality cannot be established. Mr. Elton True-blood has very aptly remarked in this connection. “The paradox is that equality and freedom, which began by being ideas in conflict and tension, turn out open analysis to be necessary to each other. The truth is that it is impossible to make a reasonable statement of the meaning of equality except in terms of freedom. Men are equal only because all men are intrinsically free, as nothing else in all creation is free”.

“Equality, in all its forms, must always be,” says Barker, “subject and instrumental to the free development of capacity, but if it be pressed to the length of uniformity and if uniformity be made to thwart the free development of capacity, the subject becomes the master and the world is turned topsy-turvy”.

R.H. Tawney has rightly remarked, “A large measure of equality, so far from being inimical to liberty, is essential to it”. Pollard also writes, “There is only one solution of the problem of liberty. It lies in equality”. Thus, Liberty and Equality are complementary to each other. They are not opposed to each other. They go together.

Liberty and Equality “are to be reconciled by remembering that both (liberty and equality) are subordinate means to the end of realising the potentialities of individual personality on the widest possible scale. The development of a rich variety of potentialities requires a large measure of liberty and forbids all attempts to impose a dead level of social and economic equality”.

“There is an intimate connection between the two “because all individual liberties are related to the basic equality of all men and because historically the aspiration for liberty became in practice and destruction of privilege or inequality”.

Both are complementary to each other. “Liberty thus implies equality,” says Herbert A. Dean, “liberty and equality are not in conflict nor even separate but are different facts of the same ideal … indeed since they are identical, there can be no problem how or to what extent they are or can be related; this surely the nearest, if not the most satisfactory solution ever devised for a perennial problem in political philosophy”.

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