Name of the Book:Public Service Ethics–A Quest for Naitik Bharat

Author:Prabhat Kumar, President, I C Centre for Governance (former Cabinet Secretary and Governor, Jharkhand state).

Publisher:I C Centre for Governance (October, 2021).

Pages: 225, Hardbound

Price:  Rs.   599

Governance, Administration, PublicService, WelfareState …  are simple words and phrases with complicated meanings and subtle connotations. A major problem with them is that perceptions about their real intent keep on changing.From ‘Mai – Baap’ Sircar, to Law-and-Order State and ultimately, to the conscientious,responsive and caring, government at the citizen’s door, it is a far cry. Little wonder, Public Service scenario in the country has been in a constant flux. It is, therefore, not surprising that most of the persons concerned with the business of governance have not very clear as to what all is expected of them. On their part, they, too, do not appear to have given any serious thought to the basic issues like Ethics in Public Service oreven toEthics ofGovernance (the difference between the two has been clearly brought out).Their vision of the administrators has largely been  limited to Competence and Integrity, which, generally speaking,  are regarded as the two legs of governance through which the Civil  Services march on to achieve their goals.

Prabhat Kumar, witha deep insight and a disarmingcandour, analysesthe present state /scenario of public services in the country. He begins with an assessment of the prevailing  situation  in the backdrop  of the past, carefully examining  the  well- established structure of public serviceswith its  built in constraints  and the camouflaged  fault lines. After identifying the basic flaw, he underlines the need for a fresh approach - a new strategy, to remedy the situation.  The new strategy seeks to pay special attention to the ethical aspect in governance, hence the title of the book - ‘Public Service Ethics’.

It is only after a proper  analysis of the situation and better  appreciation of  ground realities that one is able to realize as to what has been missing all along from the system of administration – namely  the ethical content.  The ethical concern  comes as a breath of fresh air,   giving a new perspective to the age old concepts of administering the services. A clear perspective in this regard can be gained only by lookingat the larger picture, through the filters of right and wrong, in keeping theconscience of the public servant.

With his long and varied experience of administering the services at various levels – from a Sub Divisional Officer to the Cabinet Secretary and thenthe Governor of a State, theauthor has had the maximum possibleexposure (in this field), providinghim withrich and an exceptionally wide variety of experiences in Public Service.  He has presented an insider’s view, tempered with an empathetic understanding of the recipient’s  needs and responses at the other end of the spectrum.  Basically, though, it is an approach from the administration’s` side – by and for the administration, to guide the practitioners of this art in realizing the significance of empathy, transparency and,more than all that, the ethical justifications for  acts of governance.

Popular discontent of large sections of society with administration of Public Services, howsoever competent and efficient they may be, is a universal phenomenon.The changing milieu gives rise to   ever-expanding expectations leading to increasing demands.  From simply ensuring Law and Order in his jurisdiction to managing a Bread Factory and looking after the textile mills in the State, the civil servant is always on the tenterhooks. At times, he is not even aware of the alterations in the expandingworld of duties he may be called upon to performwith thesame administrative machinery that he controls. The overall change in the social milieu, especially the liberal trends, the increased interaction at various levels and the resultant openness, place him/ at a discount. In a largely uncharted world, where he is supposed to deliver, at any cost. Yet, despite the pressures, tensions and strains, a conscientious administrator will continue to take new initiatives and strive to provide the benefits of unasked for facilities for the betterment of their life and the country at large.

It is the   conscience of the civil servant, the ability to differentiates the right from the wrong, which is the best guide. And the ethical considerations are never far from a person with a conscience. It is the need to realize this fact which constitutes the key-stone of the basic structure of the author’s thesis.

The book is full of insights yet the style is not ponderous.  Despite being a part of the babudom for long  - ‘almost four decades in government’, the author has successfully avoided the cultivated officialese –the hallmark of the  seasoned  bureaucrat,  overflowing  with ambiguous,  passive, constructions riddled with circumlocution. Prabhat Kumar’s is a direct approach, more in the style of a frank conversation with his readers, occasionally providing  enlightening nuggets of his experiences in the field.But more than the words and the language, it is the thrilling and inspiring content of the text, the personal experiences that he shares with the audience, which have the readers’ attention riveted to the text. The anecdotes that he mentions, once in a while, suggest the right way toapproach a difficult problem with a view to find the solution and lend credibility to his pronouncements.     [    AA  ]They also make the narration interesting – adding to the human interest element. But more about them, later.

As a realist, the author points out that good government is a quest, a dream. It naturally follows that popular discontent with public services is a universal phenomenon. As an idealist and a practical, hands-onadministrator, he stresses the need for ethical administration and recommends a course of action – training in ethics which should be the cornerstone of all trainings in Union and State administrations. He regards it as the single critical determinant of corruption-free administration. While defining the role of ethics in public service, he clarifies that it is not restricted to the call of duty - goeswell beyond it. The concept alsogoes beyond what is normally understood by integrity. It hasnothing to do with religion. It is different from morality (which is a little more esoteric and mysterious than ethics) and it is certainly different from legality – it is more than the mere enforcement of the law. After clearing the cobwebs of likely confusion with terms with similar connotations, with a cogent analysis, the author pronounces his perception of ethics –

‘in the present context…. ethics basically incorporates systematizing, defending and recommending concepts of right and wrong conduct.  To do what is right is ethical.’

This may be regarded as the keynote statementof the work.

AA [ That he does not merely preach but has, indeed, acted according to these precepts is proved  (proven ?) by his actions - refusing to carry out theimproper and unconstitutional instructions ofministers and even the highest constitutional authority, when he deemed them to be wrong. Similarly, he preferred to not to follow   the advice of all the advisors and technocrats and chose  to explore, ascertain and find a way to do something which he felt needed to be done to  make available  the benefits  of technological progress to the common man and the fruits of progress and prosperity to the country.]   AA

Of the many instances of going against the grain, to do what he felt was right (and therefore, ethical) ,  two  deserve more than just a passing mention- a brief recapitulation.

!. When and how to say NO to authority, be it the CM or the President, and insist on doing what is right–

In 1999, the government was defeated by one, controversial, vote and fresh elections were to be held. During the interregnum, the President wanted to take all important policy decisions and run the government with the helpof the Cabinet Secretary. Prabhat Kumar, the then Cabinet Secretary, politely refused to issue orders for  the suggested course of action, clarifying that a government was a government till replaced by another government and that there was no provision for President’s rule at the centre.

He was not forgiven by the President ‘for the insubordination’ but   is happy to state that ‘I did what I thought was right’.

2. When to swim against the current -disregard all the sage counsel  of  advisors  and experts, to find a way to do what is  felt to be right   - 

The case relates to the early years of internet in the country. Even though all the powers that be were opposed to his idea of opening the internet to the private service providers, Prabhat Kumar persisted in the venture as he was sure of its immense benefits.  He wanted to make available the benefits of computer technology to the common man, thereby making the fruits of technological progress and prosperity available to him and to the country.  As the then Cabinet Secretary, he constituted a committee to find a solution to the likely (imagined ) problems and persuaded  Dr APJ Abdul Kalam, the then Chief of the DRDO and Scientific Advisor to the Defence Ministry  who, incidentally,  was  most vehemently opposed to the idea, to head the committee.  Dr Kalam did find a solution, and internet was opened to private service providers, in November, 1998.  Fourteen years later, in 2012, as President of India, Dr Kalam graciously acknowledged the fact and the impact of the visionary initiative of   Prabhat Kumar. He publicly stated, “Shri Prabhat Kumar would be remembered for this unique action by not onlythe millions of internet users, but also the 100-billion-dollar IT industry which is growing at around 12 % per annum.[1]”

The question naturally arises -Why did Prabhat Kumar persist with the idea when it was not a felt need and there was virulent opposition from all thequarters?

“I did it because I thought it was the right thing to do in the service of the people,” he answers.

This – doing the right thing in the service of people, evenagainst heavy odds, is, perhaps, the most important aspectof Ethics in Public Service.  One has to follow the voice of one’s conscience and stick to one’s beliefs to follow what appears to be the right course of action. 

The author’s pronouncements carry weight, and more than that credibility - not because of his status, not even on account of his sincerity and conviction but because of his deep commitment to the cause of Public Service and his capacity/ boldness to call a spade a spade, unconcerned by the impact or the repercussions.At times, it is with a sense of deep hurt and agony that he  makes  a frank, honest and rather disturbing pronouncement, not in keeping with  his normal  polite demeanour -  ‘I call the past 50 years  a period of shame for our governance’[2] . 

It is a rare bureaucrat, as the author, indeed, is, whowould pass such a judgmentalremark about a system of which he, too, hasbeen a part.  It must have  been  on account of his concern, the  strong  sense of public welfare and the anguish  experienced  at the inadequacies of the  services, that he did  not mince his words.He does feel strongly about the non-realization of the right to live with dignity – envisaged in the constitution, 25% of the population still living below the poverty line – the corruption and the malpractices having noticeably increased during the period.Though the predicament is not a simple one, observation of ethics in governance would certainly go a long way to remedy thesituation.It is the noble thoughtof the people’s wellbeing thatis at the back of all his stress on ethics – doing the right thing by the people.

This, indeed, is the essence of ethics in public service. Such a work is rarely to be seen in our system. Rightly has it been said that  ‘This book is not what one reads and puts away but its message is something that should become an inseparable part of what one lives by,’[3]  and that  ‘ It is a must read for all public servants who have the interests of the people in mind’[4].  

It is the first, and so far the only  work of its type, based on personal experiences, long and deep ponderings over issues of public service,  encapsulating nuggets of practical wisdom, rare  in a world dominated by self-interest and personal aggrandizement. Prabhat Kumar has brought forth a whiff of fresh air in the staid world of writing on Public Administration. Besides the public servants, all those who are intellectually alive, are interested in good governance and the general functioning of the body politic, will find the book a valuable addition to their reading list.

‘Public Service Ethics’ is sureto enrich the sparse, readable literature on the subject.

IC Centre deserves kudos for bringing out this book which happens to be their second publication.

[1]. Speech of the President of India, on ‘Civil Services Leadership’, delivered on the occasion of the Civil Services Day, 2012.

[2]As told to Anil Tyagi, ‘Memory Clouds – reminiscences  by senior Civil Servants’,  gfiles  (2018), Page 31.

[3]R. Balasubramanian, Member-HR, Capacity Building Commission, Government of India. [ Dust Jacket, back page.}

[4]Yogendra Narain, Former Secretary General, Rajya Sabha. [ Ibid}

Prabhat Kumar, Public Service Ethics – A Quest for Nitik Bharat, New Delhi: IC Centre for Governance, 2021, 225 pp.

The Pursuit for a ‘Collectively Created Future’: The Naitik Bharat

Ethics, which has no universally agreed definition when linked with public service and public life in India, brings out the entire multidimensional gamut of an indisputable element of Indian ethos since ancient times. ‘Ethics in Public Service’, and ‘Ethics of Public Service’ - one that refers to public servants discharging their duties to the best of ability; the other that invokes doing what is right with an intrinsic sense of service to the people –is what encompasses the most relevant aspectsof Prabhat Kumar’s monograph, “PUBLIC SERVICE ETHICS, A Quest for Naitik Bharat.”While brilliantly and deftly bringing these issues of right and wrong when public servants frame policies aimed to benefit the common man, the book delves into the practical aspects of ethics of public service in India. Highlighting the multiple dimensions of a very crucial element of human character, the practice of ethical principles as a way of life, the author eloquently argues how public servants need to be innovative, imaginative, and empathetic to the needs of people.

As a retired civil servant,Prabhat Kumar brought his personal enormous experience and background in public service over a lifetime, shouldering a variety of responsibilities, in this monograph. Prabhat Kumar joined the Indian Administrative Service in 1963 and reached the highest bureaucratic position of Cabinet Secretary to the Government of India. He also served the State of Jharkhand as the first Governor. As the president of the IC  Centre for Governance, he takes up the responsibility of spreading awareness about people-oriented governance. With a keen eye, he has witnessed the action of public governance for more than fifty years. The book remains the author’s significant ramifications and reflections on the quality and trustworthiness of the public governance system. The meticulous analysis and anecdotes from real-life experiences create an authenticity that immediately rings a cord in the mind of the reader.

The prologue begins with Plato’s quote, rightly setting the tone of an honest narrative voice that underlines the higher calling of the public servants. While narrating his experiences and research at the IC Centre for Governance, and putting the experiences of decades in perspective, Prabhat Kumar elaborates the genesis of his idea that was systematically brought out in 12 well-planned chapters. Through these chapters, the author effectively weaves the related aspects of ethics in governance, including issues that encompass corruption, the perception about civil service, the role of democratic institutions, and elements of understanding the global principles of ethics to drive his point.

The introduction in the first chapter establishes the context by mentioning the IC Centre for Governance, the training programmes, and the values of good governance.IC Centre for Governance, New Delhi, is a not-for-profit Public Charitable Trust that serves society with extensive research and training programmes on governance practices and policy capacity. In the context of the training at the IC Centre, this chapter initiates the author’s quest for Naitik Bharat, taking a wide sweep and covering a very large canvas as it puts forward the hypothesis that “ethics of public service should be the cornerstone of all training in the Union Government and State Governments.”

In the next three chapters, the author describes the perception of ethics and the issues of corruption and ethics in democracy.It is interesting to note that the author’s stance is never that of preaching as he narrates his own life experiences to put forward his points. His use of simple, lucid language and candid experiences easily touch the readers’ minds.While discussing the attitude towards ethics, the author proclaims that ethics in the context of public service is different from ethics of other professions, as the citizens are the creators of norms and standards of behaviours of public servants. In his pursuit for Naitik Bharat, Prabhat Kumar does not deny the grim menace of corruption and fragility of ethics that are quite widespread in the country. His mention of ‘ethics and corruption being genetically related,’‘corruption being a subset of ethics,’and ‘democracy and corruption being a heady mixture’ jolts the reader’s mind. And then,Kumar treads slowly but steadily towards a path that shows a changing future.

His real-life anecdotes, examples viz. “mission karmayogi,” “vigilance and ethics,” “childhood on crutches,” “the policeman and the pregnant lady” “the constable and the bleeding man” et al. at the end of the chapters, not only sums up the chapters but also reminds the readers that his messages come from a professional space that demands highest understanding transparency, accountability, and reliability.

Chapter 5 stands in between the progression of thoughts touching upon numerous definitions and concepts of Ethics. The chapter proceeds to explain how Spirituality, Morality, and Ethics have different locus and different relationships with our being.Prabhat Kumar beautifully describes how Ethics of Public Service is a ‘linguistic abstraction,’ and its meaning can evolve differently as per the concern. The sections of this chapter concerning justice and compassion and actual examples of conscious ethics prove to bea unique masterly exposition on the subject.

The following chapters mention different attributes of the Ethics of Public Service and move ahead to mention authenticity, humility, compassion, commitment, self-assessment, the art of listening, and communication as a few essential pillars. When Prabhat Kumar talks about ‘the courage to say I am sorry’ and ‘the principle of reciprocity that is embedded in our DNA,’ he delves deep into a momentous subject that is crucial for our democracy. Yet, at the same time, he has the ability to explain everything through simple storytelling to which every common man would be able to relate. Chapter 8 mentions the Principle of Reciprocity while explaining the choices and dilemmas of Ethics. While narrating the philosophical development since 200 BC, the author traveled through various religious and philosophical movements across the world to find a relation between Ethics and Reciprocity. The chapter proclaims that the principle of Reciprocity is submergedwithin us, and it has continued from antiquity. When the author says that people experience a sense of fairness and compassion for others and do good, but unconsciously expect returns, his critical reflective approach to the subject becomes prominent. The chapter leaves scope for debate and deliberations.Chapter 9, while portraying ethical alignment, indicates, “It is now high time to set up a council of ethical training … to deal with the questions of spirit, content, and spread of training in addition to creating centres of ethical training in training institutions of Central and State Governments, PSEs and municipal corporations,” and this indeed shows a clear future direction for change.

Interestingly, these chapters come up with several real-life incidents and sample course content of training programmes, formulated by IC Centre that provided unique opportunities to the officers to learn aligning Ethics for Service. These examples rendered reliability and authentic understanding to the entire discussion. The author asserts the need for setting up a council of ethical training in the Department of Personnel Training (DoPT) to deal with the questions of spirit, content, and spread of training in addition to creating ethical training in training institutions of Central and State Governments, PSEs and municipal corporations.

The entire discussion of the monograph reaches its finale when the last three chapters concentrate upon ethical leadership, ethical decision-making, and the scope and periphery of institutional ethics. The tenth chapter begins by reinstating that ethical decision is personal choice. Kumar’s viewpoint on ‘how an ethical decision is a personal choice,’ and his analysis that ‘one who wants to be on the ethical side might have to pay the price,’ upholds that ethical conduct, though difficult at times,  is always profitable. He asserts that for an official, it is his or her ethical decision that gives peace and feel-good factors, making one love oneself and the surroundings.

Embedded skillfully in the middle of the chapter on ‘Ethics in Decision Making’ is the list of leading causes of lack of ethics in decision making. Here, Kumar hits the real target, quickly yet strongly, while mentioning personal greed, conflict of interest, competition, envy, source of power, and sadistic pleasure as some important causes why certain decisions may lack ethics. The author makes the reader introspect and reflect when he says that it is easy to find faults in others, but most often how we are blind to the same flaws in ourselves, and in these discussions, he uplifts the book to a universal level where these points are applicable not just for public servants but for humanity in general. In the same breath, the chapter discusses the definition of ‘truth’ and says professionals need to think of truth in context. Talking about universality of truth and ethics, the chapter juxtaposes the topic of corruption and unethical deed and mentions how that is not specific to any country or region but rampant among civil servants across the globe. This is where the book crosses boundaries and appeals to humanity in general. The reference of Immanuel Kant, Jamshed Irani of Tata Sons, Lord Cadbury, the Chairman of Cadbury, Queen Victoria’s soldiers, Ram Jethmalani, et al. depicts the varied and large canvas of the chapter’s dealings. The last lines of the chapter, “We need to remember that how we decide is just as important as what we decide. An ethical decision is one which is able and willing to defend,” brings it to a fitting and justified end.

The chapter on ‘Ethical Leadership in Public Service’ begins with a quote that establishes integrity as the supreme quality of leadership. Here, Prabhat Kumar endorses the need for a value centre – a School of Ethical Leadership. Following his initial idea, much later, the Asia Plateau launched the Disom Leadership Institute. The chapter raises a pertinent question about what good leadership is. When the author talks about whether leadership is synonymous with moral leadership, he appears to be on an emotional and personal journey. The author is sure about his stance when he discusses ‘leadership with inspiration’and ‘ethical leadership, and with a deft stroke, he parcels information along with his own experiences, satisfying the readers’ expectations.

The discussion of ethical leadership smoothly culminates into the next chapter on Institutional Ethics. While narrating his experiences in the capacity of the offices he held, Kumar easily touches upon the most solemn issue of Institutional Ethics. He wraps up the discussion with aspects of integrity, ethical individuals, code of ethics, organizational culture, guiding principles, ethical duties, governance, conflict of interest, compliance with the law, and implementation procedure – aspects that are integral to any Institution.

The lucid language, the simplicity of a storytelling approach, the easy choice of words, the real-life experiences, and personal anecdotes make Prabhat Kumar’s book,dealing with a serious, thought-provoking, and substantial topic such as Ethics for Public Service, easily relatable. That is how the book remains to be a comfortable read, and the lessons the book intends to convey are easy to understand and apply in life.

The epilogue remains a clarion call for a Naitik Bharat, a concept that was developed by the IC Centre. Despite the mention of the grim time that the country is going through, the book ends with optimism and exemplary cases that show the possible path of a bright ethical nation. The end-notes on the Ethical Training of IAS officers and the participants’ feedback endorse the need to understand Ethics, its dilemmas, and choices, especially for public servants who are required to take far-reaching decisions on matters concerning the common man. One of the feedback of the training programme talks about ‘Life’s Balance Sheet,’ confirming the crux of the book that combines  Ethical Principles seamlessly with happiness, peace of mind, satisfaction, and contentment.

The book strives to make the nation competitive and grow global. While making it competitive in a multiplicity of global endeavours, the book will give a substantial leap to India’s prestige to the comity of nations. And in the end,Prabhat Kumar rightly asserts: “Naitik Bharat is a created future, which is not going to happen if we do not make it happen collectively.” Prabhat Kumar’s monograph, “PUBLIC SERVICE ETHICS, A Quest for Naitik Bharat” proves to be an easy, simple handbook that successfully takes a wide sweep and covers an immense canvas dealing with multiple aspects of ethics in public policy and governance. The author’s logical analyses of concepts, ability to blend diverse viewpoints, realistic narratives, and storytelling style make the book a must-read for not only the public servants but for every common man who desires to be part of the mission of crafting a New India. The book opens up a space that nudges the readers to think twice before making a decision, be it in personal life or professional life. While the book proves to be a valuable read, it would have been better if the author had maintained a more impersonal, objective tone in his writing to make the approach more scientific.

Dr. Baishali Mitra
Faculty Member
Entrepreneurship Development Institute of India
Gandhinagar, Gujarat, India 

References:

Gilman, S. C., & Lewis, C. W. (1996). Public Service Ethics: A Global Dialogue. Public Administration Review, 56(6), 517–524. https://doi.org/10.2307/977250

Warner L.M. (2017) Ethics in Public Service. In: Farazmand A. (eds) Global Encyclopedia of Public Administration, Public Policy, and Governance. Springer, Cham. https://doi.org/10.1007/978-3-319-31816-5_3201-1

Public Service Ethics – A Quest for Naitik Bharat Shri Prabhat Kumar IAS (retd) IC Centre for Governance 2021 pages 225
 

Shri Prabhat Kumar, a distinguished civil servant, former Cabinet Secretary and former Governor of Jharkhand, a legendary figure in the Civil Service with over 50 years of experience in Government has written a monograph to highlight the crucial element of human character, the practice of ethical principles as a way of life. He believes that India needs a movement of Ethical India to tide over the crisis of ethics in every profession. The important elements of this crisis are inefficient delivery of public service, rampant corruption at all levels, and lack of civil society participation at all levels. These have significant ramifications to the quality and trustworthiness of public governance system.

Ethics in public service is an essential component of Parliamentary democracy, encompassing serving the people and helping the weak, the poor, the downtrodden, and public servants should be imbued with the ethical spirit of compassion, empathy, and understanding of issues which face community in which the public servant works. India’s citizens expect a Government that looks after their needs, a Government that is responsive and acts fairly and impartially. This in essence is the DNA of ethics in public service. A corruption free Nation, with dedicated public servants imbibed with an ethical spirit is what our country need. The motto “I am Ethical, I am Accountable, I am the IAS” imbibed in the words “SheelamParamam Bhushanam” holds very much true for modern day Public Servants.

Through the Twelve chapter book the author has discussed the related aspects covering the perceptions of civil service, role of democratic institutions, and elements of understanding modern principles to drive home his point. Shri Prabat Kumar eloquently argues the virtues of honesty, abiding by rules, or obeying orders of seniors are not enough for public servants. They need to be innovative, imaginative and sympathetic to the needs of the book.  Adoption of the practices enunciated in the book will give a quantum leap to India’s prestige in the comity of Nations and also make the Nation more competitive in a multiplicity of global endeavors. It is important to recognize Shri Prabhat Kumar ji’s signal contribution and salute him for his services to the Nation.

Shri Prabhat Kumar’s hypothesis is that Ethics of Public Service should be the cornerstone of all trainings of Union Government and State Governments. Civil Servants should be told that they should endeavor to go beyond their normal duty to serve public better, that ethics makes their duty bigger, it makes their duty more meaningful, it makes their duty more uplifting. Ethics of Public Service urges us to do more than what is expected of us.  Popular discontent with the conduct of civil services has a universal dimension when the citizen is asked to wait for legitimate rights from Government, and there is dilution of integrity of institutions. This happens when civil servants begin to consider themselves bigger than the institution to which they belong, showing a contempt for the service in which they spend their life.

It is recognized that India has an incorruptible system of recruiting higher civil services based entirely on merit. They undergo rigorous training in their disciplines and are given enormous responsibilities from the first day of their postings. While the Civil Servants have done reasonably well in maintaining the stability of the Nation and the system of governance, they have suffered from a bias to status quo, inability to learn from future, working in compartments rather than trying cross-cutting initiatives and failing to be seen as people friendly. One of the major mistakes of senior bureaucrats is to act alone. Most of the officers who could have set the standards of service were loners. The individual alone, however competent and charismatic does not possess the endowments to overcome the inertia of the system. Team building is essentially based on shared perspectives and shared goals. A forceful boss can start an initiative but cannot bring behavioral change in his subordinates. After her departure, the initiative is forgotten or replaced by the initiative of her successor. 

Shri Prabhat Kumar says that civil servants need to build an identity of their own, fix benchmarks for conduct and processes and create safeguards against failing to deliver services to the people. Tool long we have toyed with the conservative approaches to reform the civil service and have had limited success in infusing vigor in its functioning. The reforms suggested and implemented have often lacked depth and generally been one-dimensional. Benjamin Franklin’s statement “he that is secure is not safe”, applies to the Indian bureaucrat. Shri Prabhat Kumar says that the Indian bureaucracy today needs a new narrative. It has to come out of its latent conservatism to discover a fresh idiom. Mission Karmayogi is a welcome initiative, expected to provide precious capacity building in the behavioral attributes of civil servants. Ethics of Public Service can help lay the strong foundation of governance in the third decade of the 21^st century.

The OECD identifies 8 key components of an ethical infrastructure in governance – political commitment, effective legal framework, efficient accountability mechanisms, workable codes of conduct, professional socialization mechanisms (through training), supportive public service conditions, existence of central ethics coordinating body and an active civil society able to act as a watchdog over the actions of officials. Shri Prabhat Kumar has identified several sterling examples of unflinching adherence to standards of public service, I have had the opportunity to serve with a number of officials whom he has citied – Gajendra Haldea, Balvinder Kumar, Anil Swarup, Amarjit Singh, Jayesh Ranjan, Prabhakar Deshmukh, Rajendra Barud, UmakantUmrao, Jitendra Kumar Soni, Durga Shakti Nagpal, ShrikarPardeshi – each one of them has stood out as a high performing civil servant critical to good governance and to the effective delivery of public services while finding an identity in public perception. There are several young officers whom I wish to cite – Keerthi Jalli, Varnali Deka, Krishna Bhaskar, Ghanshyam Thori, Dr. Ashish Srivastav, Bhagwati Prasad, D.Sajith Babu, Adra Vamsi, Shubham Saxena, Adeela Abdulla, HarichandanaDasari – officers who have stood in the frontlines of duty, putting service above self, representing the foundational and non-negotiable values of ethics of public service. The Civil Servant of the 21^st century will have to be more accountable for his services to the common man, develop an understanding that whatever decision he makes needs to balance the different parts of the whole system.

Functioning of Countries are measured in terms of quality of governance. Some of the common fallacies identified include class arrogance, personal ego, stressed attitude, conflict of interest and in-betweenity. Ethics is very fragile. It is built with a lot of effort over time, but can be demolished by a single act of selfishness or greed. There is tremendous gratification that can be drawn from doing good for society, in becoming role models for others, particularly the younger generation, the satisfaction that one’s life has touched other people’s lives. The fragility of ethics is particularly visible in some organizations which over time become unproductive and toxic, where employees are fragmented, the purpose of serving the people is lost to the goal of serving themselves. Corruption in our system has 2 fronts – transactional corruption and collusive corruption – as the author says, “most get on the bus, others run alongside it, yet very few stand in-front of it”. It is important to change the mindset of officials who run government institutions, by introducing institutional corrections and strengthen the ethical movement in government. Civil Servants need to consciously examine the ethical content in decision making and most of the time get it right. The IC Centre of Governance needs to be commended for commencing the “Alliance of Change Makers” webinars.

To conclude a rough definition of EPS is “Ethics of Public Service in its widest connotation, includes the legitimate selfless exercise of the position, and the authority, power and influence that go with it, in the service of the people and beyond the boundaries of one’s job. Its doing more than what the law requires and less than what the law permits. The 3 layered test of ethics of public service in day to day decisions and actions of conscious civil servants is doing what is right, doing what is not only legal but just, not only defensible but compassionate, not only part of an ethical/ moral code, doing more than what is expected of you. The last aspect is one’s unique personal contribution to ethical public service. Always respect the art of listening, communication is an essential ingredient of ethics of public service. 

 

Public Service Ethics; A Quest for Naitik Bharat

Author: Prabhat Kumar
IC Centre for Governance
Printed at Rakmo Press Pvt Ltd.
Pages: 225; Price: Rs 599                                           ………………………………………….

A complex theme, yet a commonplace term, ethics is often touted in varying contexts. Delving deep into the meaning and content of the term, the author traces inter-relationship of morality, ethics and spirituality. Delineating subtle difference between ethics of public service and ethics in public service, he explains how corruption is a broader issue than bribery, how ethics in public service goes beyond the normal meaning of integrity. 

Prabhat Kumar has enriched the text with cogent examples and anecdotes, keeping it simple and empirical. Narratives of how India’s governance structure germane to ethics in public service has evolved, and glaring deficiencies staring in the face, are deftly interspersed with observations and inferences based on extensive knowledge and intensive involvement in affairs of the government he was privileged to steer, including as country's topmost civil servant.

Known not just for his analytical diligence and scholarly grasp of any subject, he demonstrated during his illustrious career an essential attribute of a leader, a strong spine, capacity to say No to high and mighty, doing what’s right. Chief Minister of the state couldn’t bend him to let sale of the Cement Corporation go through with questionable processes. As Cabinet Secretary he declined  to issue a wrongful notification that the head of the Republic desired, preferring to accept President KR Narayanan’s wrath. Hurt by allegations of some wrongdoing made by certain disgruntled elements, he chose to quit governorship of Jharkhand, even though none in Governmenteven called for any clarification. Prabhat earned his credentials to write on ethics in public governance. Appropriately the book was released by Vice President M. Venkaiah Naidu, who hailed the author as one “known for his integrity…also who followed ethics in public life”. 

While recognising general perception of  IAS as the premier government service (Note 10), writer  bemoans fast weakening of institutional structure and increasing tremors in the structure of civil services (Chapter 2). The “steel frame", the sobriquet that ICS/IAS acquired, has belied Sardar Patel's expectations. He introspects like in a soliloquy (Chapter 3) that the tribe to which he belonged - superior bureaucracy –can’t escape responsibility for the culture of corruption in governance. Albeit he candidly acknowledges public viewing the rusted steel frame as a well operated gang of corrupt and incompetent members, he seems to resent senior bureaucracy being given ‘despicable moniker’ of  'Babu'. 

Often it has been asked why IAS alone gets the stick. Well, if lion’s share of power and perks is mulcted by the cadre, how it can escape rampant fault-lines in the structure. Undoubtedly many in the tribe with exemplary dedication and diligence kept the nation ticking amidst awesome challenges, collectively they gather opprobrium of becoming avaricious, clannish, and hegemonic.Inexorably becoming quintessential courtiers, many in the hallowed group indulge the politicians’ whims and fancies, not unoften in order to have their own peccadilloes condoned or eke favours. 

Besides close to total dominance over Constitutional institutions -  Election Commission and Information Commission, so also CAG and CVC, besides umpteen commissions and committees, most of the chiefs of regulatory authorities owe their roots to the privileged coterie. IAS arrogates, as Chairman, Pay Commission-VII said, “all power of governance”, relegating "all other services to secondary position". Today the adage goes, IAS never retires.No surprise that too many babus spend their career's sun-set years kowtowing for post-retirement sinecures. 

Discussing ethics of public service, Chapter 5 extols some of the young and idealistic among the officers -   a Durga Shakti Nagpal, a Balvinder Kumar, et al. They raise the bar and do the fraternity proud. But, then comes the rub: author adds,  after ten years or so in service they just want pay cheques! How does that spirit, energy and idealism evaporate so abruptly? Answer appears to lie in acute leadership-deficit plaguing the civil services. The higher the seniority level, the more the vulnerability and timidity. Believing how leaders need to be not men of success, but of values (Chapter 11), author  rues that many  unworthy people in bureaucracy often occupy top leadership positions.

Whereas the author queries, can ethics be taught (Chapter 9), a strong case is made by him for public servants at all levels to be repeatedly exposed to training in ethics of public service. Necessity and utility of appropriate training can’t be denied, but claims made for several schemes appear highly exaggerated, including from those acclaimed as transformative initiatives such as Mission Karmayogi, Satyanishtha, emotional intelligence,etc.

Since 2005 IC Centre of Governance is claimed to have evolved and sustained a training module towards changing the mind-set of government functionaries. “We try to marry ethics with the realities of public service”.  It will really be helpful to determine the efficacy of the programme if a real-life assessment and appraisal is carried out by an analytical agency how, to what extent, the training by IC CfG helped the beneficiaries in facing real-life situations.

Finally, the crux of the issueauthor raises: what we can do to embark on an ethical renaissance. A very complex issue, it admits of no silver bullet. Epilogue warns us of society’s deepening ethical degenerationand increasing loss of fundamental moral values. Body social is cramped with crisis of character. Money and muscle, dadagiri and saudagiri rule the roost. Don’t we discern symptoms of country losing direction, being adrift?  Don’tnetaas of all hues,with inexhaustible appetite for illegitimate funds in politics, live with magnificent obsession of grabbing and retaining power, clamouring, "what's in it for me"! Nations aren’t built on quicksand of opportunism and realpolitik. Books like this help grasp gravity of ailment, to stir nation’s conscience. Need for India today is of creative destruction.When rot runs deep, as French President Macron believes, "Makeshift repairs would not do; if you keep the same structures, habits are just too strong".