PUBLIC ADMINISTRATION

(Summary of Class Notes)

Administrative Law
PAPER-I (Unit-VI)

Development Dynamics
PAPER-I (Unit-VIII)

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.~ Ad-.,
Dr. O.P. Minocha
Professor of Public Administration

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OLD RAJENDRA NAGAR

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DR. MUKHERJEE NAGAR

From Director's Desk Dear students These are the Summary of Class Lectures of Paper-I (Unit-VI and VIII) They comprise of description and analysis of the dealt topics. To get the essence of the topics at least two readings of the entire material is required. You are also required to remember the context of the lecture so as to get the broader view. These notes will be further supplemented by printed booklets to explain the details ofthe topic.

Regards, HRISHIKESH B. KULKARNI

Director. KAIZER EDUCATION GROUP

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INDEXAdministrative Law
Paper-I (Unit-VI) 1. 2. 3. 4. Administrative Law Delegated Legislation. Administrative Tribunals
CAT

Questions

Development Dynamics
Paper-I (Unit-VIII) l. 2. Development Administration Riggs's Concept of Development Thesis

3.

Anti-development

4. State V s. Market Debate

5. Liberalization and its Impact

6.
7. 8.

Women and Development Self Help Group Questions

KAIZER EDUCATION GROUP

PRE.'E~R OROUP FOR ELlTE CIVIL SERVICES

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Public Administration (Paper-l : Unit-VI)

Administrative

Law

Administrative law
Growing complexity and nature of administration ecessitate the need of "administrative law". Public ministration started with limited role. But over a period , time the work increased and the activity of state also increased. Because of growing complexity and administration started acquiring those powers which were not originally their. Today administration is doing quasiI judicial and quasi-legislative functions. Some examples are: they confiscate property of the people, traffic control, search, detention, and imposing penalty. Today administration performs all those functions related to protection as a protector, guardian, saviour of human rights. It acts as a controller and as a arbitrator to settle disputes. II aCI as an entrepreneur for commercial en actions. ~
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of those who is in power .large number of people believe that the overall governance should be done by Law and not by "man". A "Rule of Law" is the supremacy of Law. Upnishads indicate that law is king of kings. Holder of power while .exercising the power can misuse power. A.V. Dicey in one ofthe h' s lecture at Ox ford in 1885 on "Liberty, Laissez-faire & individualism" advocated that everything houid be carried according to Rule of Law. Administrative action should be done in fair manner. ~e process should be leaitirnized ...eP,wer holders sho~d e~ercise power with a reasonable re'sfriction.

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In general Laws are classified as Commercial Law Labour Law

Delegated legislation
It is known as sub r i lezislation in India. Legislature is compelled to delegate its powers to the executive: this is called delegated legislation. Since it is subordinate to oriainal leaislarion therefore it is called subordinate legislation. Large number of legislations (Approx. 70%) are mad!l>y executive under the acquired power .

21 Public Administration

The reason for need of delegated legislation are: I. Growing com lexit)' of administration. 2. Legislature are arnarure and cannot understand the technicalities ofcorpplex i~ 3. Increasing volume of activities. 4. Paucity of time with the legislature. 5. Large volume of legislature is unable to discuss on administrative issues. 6. Legislature is not meant for dealing administration they are only to deal the philosophy of governance. On this account of this executive's power is increasing this is called as Henry eighth class. To deal certain contingency delegated legislation is needed. It is also needed for experimenting new ideas & innovations. Do ctr in e of excessive delegation (., f.8.f If the executive acquires the power of ame'irdlng'& modifying the basic law. This is tantamount to excessive delegation. When executive has right to levy tax, duties which is the prerogative of legislature this will be tantamount t called as excessive delegation. The quantitative factor is that if the act is detailed there is no scope for delegation. So if there is quantitative variation it will be tantamount to call it as excessive legislation. I. Original law is in practice is made by the executive .. 2. Executive is answerable for day to day administration. Over a period of time government avoids to face the legislature. It goes for making skeleton legislations and leaves much scope for subordinate legislations so the executive frames rulers, regulations. by laws, by using the acquired powers under delegated legislations. This de legated powers can be m isused by the adm in istrators. The executive can go for arbitrary exercise of power. Thus violation of the doctrine of separation of powers" is dangerous and needs checks and balance. One cannot make laws for ownself. It can curtail the powers of c~izens. So there is need tQ. have' check on delegated legislations. Metho 0 control over e eaate legislatiol1~: I. Through III which curtai ultravires. 2. The legislature has the power to examine all the rules and regulations framed by the executives under delegated legislation. These rules are examined by Committee on Subordinate the Parliament. 3. Legislations on behalf of

Administrative Tribunals
As the volume of activities is increasing administrative tribunals are needed to perform quasi-judicial & quasilezislative functions. Out of 70% of cases in our country state is a party. Administrative tribunals are needed because: I. It will reduce the workload of judicia . 2. It provides alternative dispute settlement mechanism. 3. It gives ajustice hav ng technical input. 4. Ordinary courts are very costly therefore administrative tribunals provide simple alternative to get justice. Different Model In America these tribunals are part of judiciary. It is headed by -aj udge , In Russian system one of the senior administrator gives judgement he is a part of ~ administration. In India neither all tribunals are headed by .~ judge nor by the administrators. The administrative ~ tribunal are set up by constitutional statute or by > government by itself. The tribunal perform multi-functions u and we are moving toward unifunctional tribunals. ~ Article-323 B ernpow ers the Pari iament to create w tribunals in defined areas. The area where tribunals are t2 needed are: Taxation: Sales tax, income tax. excise. customs are there so we have Income tax tribunals, Sale tax tribunals. We are unifying all taxation under one dJ . separate tax tribunal headed by a judge to deal with ~ taxation. ~ 2. Employer-employee relations are matter of concern. ~ To deal these grievances a mechanism of Labour ::> Tribunals. Labour Courts are there c ivi Iservants head ~ ii. For gov'ernment employees CAT is there. For state ~ employees SAT is established. For defence matters a ~ separate tribunals is there. ~ 3. Road Transport: Planning route without permit, ... oct overloading all such problems need to be handled for this road tribunal authority is established. ~ 4. Telecom dispute Settlement and Tribunal Authority. ~ 5. Foods and beverages, hotel industry: to deal such W issues tribunals are provided within the department. N ~ Allrnost in every area where there is service provider oct ~ and there is change for disputes tribunals are provided. Under Consumer Protect Act one can go to the consumer forum. So presently the tendency is to setup more and more tribunals. The increase in executive power and judicial power to the tribunals may again lead to combination of ~\Vers. This may create problem so checks are needed. Tribunals are not a court but their functioning should be like a court. They should follow the principles of natural justice. Princip.les of natural justice means every litigant has the rizht to be heard; the trial should be done in fair manner without prejudice and bias; the punishment should not be disproportionate to the crime. Dotibr arises that the aggrieved persons will get fair justice since tribunals are part of the government & members are also appointed by the government. In such case citizens are not satisfied they can go to the High Court and Supreme Court.

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Under delegated legislations whatever rules regulations -are formed. it is required to take expert

view in respective fields. Although the expert's views are advisory; but is usua lIy accepted. (In UK consultation is mandatory advice given is not mandatory: In India both are not mandatory.) 4. All these rules. regulations bylaws will be widely ublish~d.lt will be a part ofgazette and notification. Publications help to expand public domain by sharing informations. This helps people to know the rules and rights on the basic of which citizen can demand.

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CAT
Civil servants having problems relating tQ service matters can go to the CAT. Only the civil servants are covered under the CAT i.e. Union Government employees a~d the service matters are dealt. CAT was created in 1985 established by Statute. The central bench is located at New Delhi, regional benches are provided throughout the c~ CAT is mobile, the members can go to th~ civil s~rvants who are aggrieved. Single member cannot hear a case, it should be heard by atleast two members one should be judge and the other administrator.

Effectiveness

of CAT

Governments are not happy but the aggrieved are happy to have some protection. Government is not happy because
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It has increased the work load It has increased cost, so termed as White Elephant. The purpose of simple justice is defeated as CAT has started function like courts. CAT has become a retiring berth for retired people. Originally it was to deal with matters of importance but now minor issues are coming before CAT adding to th~ir burden. If there is any benefit of doubt it will go to the aggrieved employee so government remains unhappy.

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Emplo~ees are exploited to large exten so CAT provides prntection. We need to streamline the system .. Labour~ are-protected under labour courts, civil servants are protected under CAT but public sector's senior officers are not to provided any protection .' The questions is not abolishingor of creating neither we are thinking to create or abolish tribunals. It disturbs the employer-employee relation. Imbalance of authori is created. A CAT is essential requirement to provide protection articu larly in day to day functioning. Under the Act 1985 of eAT, CAT was given the status of High Court and High Court was denied to deal cases on service--r;;tters, this amounts to taking away the judicial review power of High Court. The judgement today standS that the first appellate authority is the High Court and then one can move to the Supreme Court. When the Supreme Court was the only appellate authority than judges of Supreme Court were unable to deal with service matters as they lacked experience. So presently High Court are made the first appellate authority to deal cases against CAT In this way the High Court judges get a chance to deal service related matters and gain experience. Presently CAT is an important arrangement to handle arbitra exercjge of power and protect the interests of civil servants.

Questions
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5. 6.
7.

8.

DroitAdministratifmay give excessive and arbitrary power to the administrator which can go against the right of citizens. Administrative law the .French version (Droit Administratif) needs to be. extended from army to civil police and enforcement authorities. Dicey's concept of Rule of Law has proved not viable both conceptually and operationally. Unless there is social and economic equality before law is meaningless. Delegated legislation isa com ulsion in modern and complex administration. Delegated Legislation can lead to tyranny unless there is effective checks and control mechanism. Doctrines of excessive delegation is becoming a practical necessity under parliamentary form of government. . The Committee on Subordinate Legislation is an effective mechan ism to protect the spirit and intentio~ of original law.

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13. 14.

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Administrative tribunal is an important mechanism for providing alternative dispute settlement mechanism. Administrative Tribunal not only provide speedy justice to the effective litigants but provides professionalism to the judgement. Administrative Tribunals have become essential. to offload the work of court. Adrnin is tr at ive Tribunals are suppose to function like Courts and follow principles of natural justice. Administrative Tribunals are subjected to overall control by the judiciary. CAT protects the interest of civil servants against arbitrary exercise of power by controlling disciplinary authority, Administrative Tribunals have become additional machinery adding to the volume of work and increased the expenditure of government.

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4/ Public Administration

Development Dynamics
Public Administration Development Administration - Paper-I: Unit-VIII
agriculture and the rest one fourth of population contributes to three fourth of GDP. This shows that large population depends on agricu Itural occupation but there is no modernization of agricultural activity. Whereas in developed countries use high technology, go for corporate farming in this way, small of population brings about large sea Ie agricultural , production which is even exported. 3. In developing countries there is ineffective utilization of natural resources. Large mineral resources, wind energy and solar energy is not utilized effectively. 4. In developing countries there is lack of physical assets, human resource is in abundance but they are (/) cu liability. The need is to utilize human resource this .~ > can be done through skill development and t educational development. Today we don't need IITs (/)

Gant - himself is generally credited with having coined the term 'development administration' in the mid 1950's. Development administration is referred to the focusing of administration on the support and management of development and is distinguished from the administration ofJaw and order. Development administration is the administration of policies programs, and projects to serve development purpose. It is characterized by its purposes, which are to stimulate and facilitate defined programs of social and economics progress by its loyalties which are to the public rather than to vested interests and by its attitudes which are positive rather than negative, persuasive rather than restrictive. Ameron and Jain said that development administration refer to an aspect of public administration but ITls. in which the focus of attention is on organizing and (3 managing public agencies and government departments ~ Factors for Development at both the national and sub-national levels in such a way w I. Population: How effective is population policy, as to stimulate and facilitate well defined programs ofsocial <2 cultural & social issues are to be taken care of while economic and political progress. a.. implementing population policy. Poverty itself leads It is crucial to recognize that development ~. to increase in population. . administration viewed this way, is not synonymous, with .~ Per capita income: Increase national income & either public administration or comparative public E 2 reduce the population, then per capita income will administration. As Gant explains, development increase and ensure deve lopment. adm in istrat ion is "d istingu ished from, although not -;: " Life expectancy: Over a period of time life expectancy independent of. other aspects and concerns of public a. J. has increased but scope for improvement is there. administration. Certainly the maintenance of law and order We need proper sanitation facilities, health missions is a prime function of government and is basic to a:: are needed. development, although it precedes and is not usually l' encompassed within the definition of development 4. Literacy Rate: Increase in literacy rate is a yardstick to measure the penetration of knowledge in society. administration. Similarly the provision of essential ~ To some extent it eliminates ignorance and facilitates communications and educational facilities and the u , people's participation in developmental programs. But maintenance of judicial and diplomatic system would have ::> there is need to relook at the definition of'Jiterate'. an impact on but not to be an integral part of development

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administration. Traditional public administration confined itself to maintain stability, .it was non-participative, rule orien~ed neutral, and secretive. These features were not conducive to development. On the other, hand development administration is change oriented which goes for planned, directed and qualitative change. This is the bicultural approach to administration. Development administration aims to facilitate people's participation, make administration responsive, transparent, proactive, purpose oriented and accountable. Development administration is an offshoot of formation of United Nation which stands for "Eradication of Poverty Disease and Ignorance." It is a process of dispersal of power to bring pluralism. It is a process of nation building by people's participation.

a:: ~ Riggs's Concept of Development :;: Technical }' Differentiation ~ Non Technical People '5 Authority} People Willingness Administrative Administrative Participation )
Integration

Structure }penetration behaviour

Explanation for the Riggs's concept of Development

Existence of professional technical bodies is important so all those institution taking care of capacity building, technical competence is needed. Then the non-technical bodies like powerful civil societies are needed. When technical & non technical bodies are legitimised, trained and power is dispersed from state, th is is called as differentiation. It is pre-requisite for development. Further people's ability & willingness leads to people's

Reasons for lack of Development

1. 2. Reason for poverty is poverty itself. In developing country like India three fourth of population contributes to one fourth ofGDP through

Public Administration participation. Further administration structure based on Rule of La;', followed by administrati~e behaviour including responsiveness, proactive approach is needed this is called administrative penetration. People's participation coupled with administrative penetration lands to integration. Integration & differentiation leads to building a diffracted society which is nothing but development. Reverse process is that development requires integration of people's participation and administrative penetration.

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Lucan Pye and Joseph La Pa larnbora gave the following fa~tors which are the contemporary focus of development: . I. Mass education 2. Rapid communication 3. Bureaucratization based on legal rational authority 4. Process of industrialization, ur~anization 5. Even Secularism brings development ,

Anti-development Thesis
It can be analysed by understanding the impact of development. Large number of countries do not want western type of development model as it has created more problem this is anti-thesis of development. An anthropologist Dev Burman made study of Bokaro Steel Plant. The negative aspects of establishing the steel plant were: til I. The ethnicity of tribe got destroyed 8 2. Small percentage of tribal population who were not .~ skilled got employment as unskilled labour but this ~ employed group of tribe got alienated from their > U society. .~ 3. Land prices increased, land mafia emerged and the ~ tribal population were exploited by the land mafia <8 4. Due to increase in wealth social tensions have go increased and anti-social activities also increased. o (5 Liquor consumption in these area increased. Western 'model of development wanted to talk about 'f capitalism, making thereby a trickling down theory. But ~ ironically rich are becoming rich and poor are becoming CL ~ poorer. Percentage of people below poverty line is a. increasing. In terms of development we have a slogan "Development without destruction" this is the real a:: 'developrnent. The negative impact of development is ~ ~isible today. The need. i~ of sustainable development. It o IS the duty of the administrative system to take care of ~ this. Government strategy for balanced development: ::;) I. Safeguard of resources for future ~ 2. Renewable energy should be maintain and improved a:: 3. Protecting our heritage ~ 4. Rationale planning for human development 5. Protection of Human Rights ~ 6. Involving community foi; resource mobilization 7. Utilization of science and technology for human welfare: 8. Transformation of knowledge 9. Cooperation among countries 10. Avoiding use of chemicals and nuclear II. Celebrate environment day and create mass awareness.
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Figurative representation of ADB Model

Good Governance

Economic aspect

Social aspect

ADB is more concerned with enhancing the capability of administrative system, whereas the World Bank and IMF favour development through funding, selecting people to transfer knowledge and technology, they are concerned with the dispersal of power and allowing market forces to determine to operate and facilitate development. Three forces are interacting and all three together leads to development. The three forces are discussed below: Econom ic aspects: Land reforms leading to agricultural development. Then, comes infrastructural development and scale of public investment including easy accessibility of loans and funds. Apart from this basic services like telecommunication, power, energy, railways etc. Largely environment protection, increase of forest over, finding renewal sources of energy are to be developed. Social aspects: Population control by effective implementation of population policy needed. Health, social justice, gender equality, all these social dimension are to be taken care of. Good Governance: Legal framework based on legal rational authority, empowerment, information sharing, combating corruption, amicably handling public grievances. Enhancing administration capacity by increasing transparency is needed.

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Various
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requirements

Human asset building includes enhancing human capital. health, education skCII development, training 2. Utilization.of natural resources forests, sea as a resource 3. Physical asset which means physical infrastructure including social forestry 4. Financial assets which means banking, access to credit, and easy loans to the people 5. Social assets which means bringing gender equality. Inculcating moral ethical dimension in administration is essential for development. These assets need to be harnessed by the government to bring development. Development administration is called as system transformation.

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Role of bureaucracy
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in development

the context of growing nature of public admin istration the -basic role of state is' to maintain law and order. Bureaucracy in the role of CISF and .other. security agen.~ies provides security. It i.~ universal that no de~~oiirrent can take place withbut peace; '. To qtas' afacilitator, bureaucracy becornesan 'agent of cbange they act as catalyst. Itprovided technical help;' to industries and facilitates change.

6/ Public Administration 3. When there is imbalance between demand and supply in various sectors like health, education, welfare then bureaucracy provides the required services to fulfil the imbalance. At different level bureaucracy plays different role

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At Top Level
They are the policy shaper. In this regard they act as policy advisor to the policy executive. For this they analyse the impact and then provide policy input. Based on comparative analysis, public opinion, people's aspiration, they give input for the formation of new policies..

State alone cannot Upper middle class to provide facilities government cannot of private players charge accordingly.

cope up with the rising demand. exerts pressure on the govemment at subsidised rate. due to this the collect revenue. So there i; need who can provide facilities and

In Indian Context
In India we opted for market economy which was dogmatic approach. We went for equidistant approach. In terms of collaboration between the market and the State, their role need to be clearly defined. No doubt state has to playa deterministic role in policy formulation. State is required to plan how to use the financial resources human resources. State has to provide extension services, help is resource mobilization to SSls and SHGs. Another important dimension is the infrastructure: all those activities which facilitate economic development must be provided by the state to ensure equity and justice in society. State should takeover core activities as well as those activities which .. . are sovereign III nature (like slum development). Apart from this creating legal framework, making administration market friendly should be the prerogative of state. The market can be given secondary and service sector activities. Market can be used to invest and fulfil the inadequacies of finances, as state cannot fulfi I the risins demands. Today with the end of ideology. in 21" centur~ we need to be more practica I and go for a pragmatic approach of collaboration between the state and the market.

At Middle Level
At middle level directorate are meant for implementation of policies. In the process of pol icy implementation, large number of problems like; value of services, money grievance redressal, corruption. Here bureaucracy plays the role of providing services on time to given satisfaction to the people. In general bureaucracy has to bring transparency and accountability in the system. It is found that bureaucracy has fai led miserably to act as a change agent. In such circumstances we move towards state and market collaboration.

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State Vs. Market Debate

Right from the nineteenth century there has been very dominant debate between the role of State vs. Market or between Communism vs. Capitalism. The earlier theory was based on laissez-faire. It believed that individual know what is best for them hence state intervention was least desired. It believed that entrepreneurship can be developed only when the state intervenes least as state intervention kills innovation. But widespread capitalism and lack of state intervention resulted in the pitiable condition of labour, rise of monopolistic tendencies, empire bui Iding tendencies and exploitation of the consumers. The capitalists became insensitive and went for further exploitation by forming cartels. Therefore the twentieth century brought state intervention particularly afterthe Great Depression of 1930. Keynes also gave importance to welfare role of the State. Thus communist ideology emerged and state intervention became vital to provide protection to the labour class and consumers. State intervention was also needed to check the monopolistic tendencies of capitalistic class. With the crackdown of communist ideology the state intervention proved to be a failure which was visible in the ineffective and inefficient working of the public sectors. In 80s an9 90s with the emergence of Liberal ization Privatization Globalization, market oriented thinking was revived particularly in the times of Thatcher and Ronald Reagan. Both declared that the size and role of government should be substantially reduced and opportunities should be created for free market in the economy. Since in the beginning of 20'1. century we have witnessed global meltdown so the need is to move towards a balanced approach where market and state can work in collaboration.

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5 Libera Iizat ion is a process

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governmental

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liberalization
of freeing economy from various and withdrawal of all direct

regulations

~ controls "" the ~conom~ so that the operations of o economy IS increasingly guided by freely operat ing market ~ forces. The emergence of liberalization in 1990's was due to the collapse of Soviet Union. end of Cold War; ::J ascendance of neo-liberalism as manifested in the ~ Reagonomics in USA and Thatcherism in UK: as well as t:t because of the focus on creating a New World Order. ~ In India with the emergence of liberalization many ~ changes such as deregulations, delicensing, declining role :x: of bureaucracy, contracting out, allowing subsides, government going for MoUs with private players etc. has taken place.

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Impact of liberalization
I. The role of public administration has been broadened, state has to act more like a promoter & facilitator. Initially the state was only the regulator but there is need felt to create large number of Regulatory Authorities. Because of market forces operating, debureaucratization and flat organizations are needed. This is also due to the emergence ofNPM. Gradual withdrawal of state has taken place, this has encouraged privatisation. Governmental functions are downsizing, today government is expected to work at macro-level not micro-level.

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4.

Reasons for market and stale collaboration are:

l. There exist inadequacies need partners to invest growth. of finances therefore we and facilitate economic

5.

Public Administration 6.. There is need to change the rn indset of bureaucracy. Bureaucracy have been exercising their authority arbitrarily in the past hence attitudinal change is requited. Liberalization wants structural change, procedural change backed by behavioural change in the administration.

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Developmeni of Women throuoti Five Years Plans

The First Five Years Plan (195 I-56) began with welfare oriented programs for Women Development. The Central Social Welfate board was created in 1956. The Second Five Year Plan (/956-61) organized Mahila Mandals, The Third, Fourth plans gave importance to education of women. the Fifth Plan (l974c78) shift from women welfare to women deveJppmentwasseen in various programs. TheSixth Fiv~ Year Plan (1980-19'85) opted a multidisciplinary approach for women developinen!; The Seventh Plan (1985-90) ainiedafprovidingecoriomic independence to women and implemented beneficiary oriented programmes The Eight Five.Year'Plan (1992-97) marked it s~it from development to empowerment approach. In the Ninth Five Year Plan (1992-2002) two major steps towards gender justice like listing of empowerment as major plan objective and inclusion of <Il Women's Component Plan in the Plan of all Central <.) > Ministries/Department was made mandatory. ~

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Liberalization is anti-public-administration it has marginalized the role of bureaucracy and moulded it to change its role from regulator, to a facilitator. It can be inferred that liberalization is leading to delegitimization and marginalization of public administration and the traditions of welfare state. It is accentuating inequalities between and amongthe nations and classes, it is anti-poor and anti-public. Its mission appears to be end of democracy by way of centralizing power, resources in the hands of World Bank, IMF, WTO and like which are not unleashing forces that development process all create a multi-polar global accountable to people. It is will dehumanise the whole over the world. The need is to world.

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Policies focusing Women ~sDevelopment

(j For the overall development & em powerment of women Women and Development ~ various policies have been formulated like The National In our reliaious books a lot of importance to women is Plan of Action for Women adopted in ) 976 became a given. Dignity of women holds due significance in our ~ guiding document for development till 1988 when the culture. Lifeline of civilization that are rivers are named g National Perspective Plan for Women was formulated after the name of women. But in actual practice they are Q 'Shram Shakti' the Report byNCW examined the various d epnve d a f respect an d diigruit y. . . .~ challenges faced ..~by women in unorganized sector . and

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E suggested various measures. The National Plan of Action ~ a.. for the Girl Child (1991-2000) is a decadal plan with special ~ gender sensitivity towards girl child and adolescent girls. a. Apart from this a separate department of Women and Constitutio/lal-Legal Provisions Child Development under Ministry of Human Resource Article-Tq confers on men and women equal rights and ~ Development in J 985. Rashtriya MahilaKosh (RMK) was opportunities in political, economic and social spheres. C' set up in March 1993 to extend credit to poor and assetless Article-I 5 prohibits discrimination against any citizen on ~ women. Mah.ila Samridhi Yojna (MSY) was launched on

Concrete attempts have been made 10 empower women some of them are discussed below

grounds of religion, race, caste, sex etc. alike. Article-I 5(3) ~ makes a special provision enabling the State to make ~ affirmative discrimination in favour of women. Similarly ~

October2,

1993 for making rural women self-reliant. was launched

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d and integrate;components of all sectoral programmes an Artcle-16 provides for equality of opportunities. Articlefacil itate their. convergence to empower women. The STEP 39(a) mentions that the state shall direct its policy towards et: (Support to Training and Employment Program for Women) securing for both men and women equally the rights to ~ ~ ~ was launched in 1987 to upgrade the skills of poor and means of livelihood. Article-39(c) ensures. equal pay for :;( assetles$:'wdmen. In addition to this various socioequal work. Article-42 directs the state to make provisions ~ econOffij<;prbgrams like Hostels for working women,

Mahila Yojna (IMY)

in 1955 to coordinate

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for ensuringjust & human condition of work & materni.ty. relief, Article-51 (a)(c) imposes fundamental duty on every citizen to renounce practices derogatory to the dignity of women. In order to safeguard the various constitutional rights the state has ~nacted many women-specific and women related legislations like the Immoral Traffic (Prevention) Act of 1956. The Hindu Marriage Act of 1955, The Equal Remuneration Act of J 976, The Child MarriageRestraint Act of 1976. Various amendments have been brought in favour of women as in the Factory Act of 1948, it is mandatory to provide tor creche where 30 women labourers are present. National Commission for Women Act 1990 was passed to set up National Commission for Women to review constitutional and legal safeguards for women and recommend reniediallegislations.

cre'chh for wprking women, Short Stay Homes for women and girl~:(S~H), Anganwadi-cum-Creche Centres ..ha.v~ been established. Concrete.' steps have been taken to generateGender sensitization and ilicorporationo"tgen'ae,f issues in development programs. The participants of'these programs include governmental officials, representatives of voluntary agencies academic & technical institutions. Nowadays "mother's name" is a pre-requisite for all legal documents. This reflects the importance of women . h as a proof for identity, this is a landmark change III t e framework Indian society.

Strategies for Women Development

I. 2.. Make women empowerment democratic way offunctioning Capacity building is needed.
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realistic. Training is needed. ~ , ...

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8/ Public Administration Women organization should be given greater importance. 4. Legal protection need to be provided effectively. 5. Public consciousness must be created. 6. Easy accessibility to finances must be ensured. 7. Greater degree of employment to women should be given. 8. Greater collaboration between the state and Women NGOs are needed. 9. Removal of discrimination, practically is needed. 10. Sensitivity campaigns must be launched in every field of administration. II. Gender budgeting should be a part of every Department and Ministry.

3.

Self-Help Group Movement

To bring about direct empowerment of women and extend scope of wornens participation in economic activities. a unique program has been started namely Self Help Group .. Second ARC report on "Social Capital" talks about cooperative endeavour; where a group of women should have access to credit to participate in economics activities. Article-19 gives right to association and Article-43 give directions to the State to promote cooperative societies for cottages industries. So to make women socially, economically.soundmakethemempo\overed,createaspirit of self reliance. provide them with direct economic access, cultivate saving habits in rural women, give them economic independence SHGs are advocated. In the process they can decide the most effective ways to utilized their money in constructive way. this enables women to take financial decision in family. They have liberty to spend money on their ownself, and for local development.The very existence ofSHGs is highly relevant to make 'the people of below poverty line hopeful and self reliant. SHGs enable them to increase their income, improve their standard of living and status in society. It acts as a catalyst for bringing this section of the society to the mainstream. Self-help Group (SHG) is a homogeneous group of poor, women, users etc. This Group is a voluntary one, formed on areas of common interest so that they can think, organize and operate their development. SHGs function on the basis of co-operative principles and provide a forum for members to extent support to each other. It is considered as a means of empowerment. SHGs organize very poor people who do not have access to financial system in the organized sector. In groups, normally transparency and accountability are lacking. However, in a group like SHG, they are ensured through coilective action of the members. This scheme rnobilises the poor rural people especially women to form group for mutual benefits. SHGs playa crucial role in improving the savings and credit also in reducing poverty and social inequalities.

Self-Help Group can be formed with 5 to 10 members. The groups can avail themselves of financial facilities offered by the financial institutions and the Government. The individual members can also apply for the credit facilities. However, there are certain norms and prescribed procedures for obtaining credit. Frequently, the group should convene meetings of its members and discuss all the issues relating to the groups on a common platform. This provides an opportunity to members to express freely their views, expectations and suggestions for improving the functioning of the group. Regularly Government agencies and VDOs organize training programs, for educating and developing skills among members. These programs enable the members to learn, cooperate and work in a group environment. SHGs are required to maintain records as directed by the monitoring agencies. The SHGs generate a common fund out of small ~ savings, promoted on a regular basis among members by ~ curtaining unproductive expenditure. Sometimes external ~ resources loaned/elongated by voluntary associations > involved in promoting and strengthening the groups U supplement the internal savings. The funds thus created ~ are used for giving loan to its members. Such loans include ~ consumption loans and production loans. The J? consumption loans include subsistence needs, health call, 0social and religious ceremonies and the like. The 0 production loans are for the purpose of purchase of .~ agricultural inputs, investments on poultry, sheep and for ~ small business like vending, having etc. The credit needs ;;: of members are usually assessed in group meetings. I An important vehicle to promote finance in India has

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been the SHG program and its linkage with banks. Selfhelp group meets the smaller consumption and emerging needs of its members from its own savings and common fund generated. As the age of the group increases the capacity of the group and quantum credit also group. By this time the group would have acquired enough experience to manage the finance but the funds available are not adequate. At this stage the group needs the support of the financial institution. SHG banking is a program that helps to promote financial transactions between the formal rural banking system in India comprising of public and private sector commercial banks, regional rural banks and co-operative banks with the informed self-help groups as clients. Grarneen Bank, NGO like SEWA provide help for such activities. Second A RC advocated that SHGs should cover semi urban and slum areas also. "Swayarnsidha'' was lunched -in 2000-01 in 650 blocks, each having 100 SHGs. Over a period of time little less than a lakh SHGs have been created. Government provided approximately rupees 198 crores. Th is shows a step towards women empowerment.

Public Administration

/9

Questions
1. Development is multi-dimensional in nature. under 2. . Every social scientist viewed development different perspective. 3.

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10. Bureaucracy can provide law-and order which is essentja~ pre-requisite for development. II. Neither State nor the market alone can fulfil the need i . of development. 12. Both M~rket and State should playa supplementary & complementary role.
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F or a student of Public Administration dispersal of power leading towards pluralism is considered as development. According to Riggs Development differentiation with integration. No development of environment. is a process of

4. 5. 6.

13. The policy of economic liberalization has resulted in emergence of Independence Regulatory Authorities. 14. To provide a level play field to th.e State run administrative activity there is need to bring N PM. 15. More that structural and procedural change behavioural changes are required in the administration to facilitated socio-economic development. 16. Our strategy for development towards women have been chpnging from Welfare, Development and empowerment. 17. Despite.' various strategies for development women ~till there is gender inequality. of

can take place without protection

The current need is balanced economic development which could be sustained with social justice. Western model of development are not only alien to many developing countries but has resulted in wide gaps between haves and have nots. Economic development process have ignored the vulnerable section of society which has resulted into unrest in society. Bureaucracy should playa catalytic role and should become market friendly.

7.

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9.

18. SHG movement is a step towards empowerment of women and thereby enhance the dignity and states of women in rural areas.

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