BUREAUCRATIC VALUESIN

DEVELOPMENT

-1

's

.rt. .

ureaucraticin

Development

Values

A Comparative Stucly of Value Orientatlon ofBureaucracy Engaged in Developmental

and N on- D ev elo pment al Tas k s

R. B. JAINP. N. CHAUDHURI

Under tbe Auspioes ofCentre for Policy Research

IJFPAL PUBLISHING HOUSE. NEW DELHI

UPPAL PUBLISHING HOUSE3, Ansari Road, Daryagani New Delhi'110002

8. Yasbwani Place, Chankvapuri, New Delbi-!10021

@ Centre for Polioy ResearchNew Dolhi

First Published, 1982

PRINTBD IN IND1APubtished by B.S. Uppal, Uppal hrblishiog Houee"N€w Delhi-1100m and Printed at Saarwati

Printing Press, Moujpur, Delhi.

FOREWORD

' Under tho auspiccs of Indian Council of Social Scionoo

Research's Sponsored Research Programme on GovernmentalSystems and Development, thc Contre for Policy Research has

boen coordinating the work on the various studies. The prcsent

study by Dr R B Jain and Shri P N Chaudhuri attempts acomparative study of bureaucratic values and orientation indevelopmental and non-developmental functions of the Govcrn'ment in two States, viz,, Punjab and Madhya Pradesh.

For obvious reasons the systemic importanoe of the bureau-

cracy has been widely accepted, both by the academio commu'nity and the politicsl leadership for rescarch and study.

We fecl that the prcsent study is a useful contribution to theliterature and should enable development of wide perspectives ifinterproted along with other related works.

V A Pai PanandikerCentro for Policy Researcb,Now DelhiJunc, 1982

Dircctor

. PREFACE

Max Weber's theory of bureaucracy delineates some of theoharacteristics of modern organisations which distinguish tbem,from traditional forms of administration. These characteristicsinclude, division of labour, hierarchy and authority, writtenrules and regulations, impersonality and the like. The presentadministrative structure in India is a continuation of the legacyof the British administrative apparatus which was built on thevalue-systems of the Weberian characteristios of bureaucracy.It has been argued and assumed by scbolars in India andelsewhere that administrators steeped in such value- systemsmay be less useful as developmental enterpreneurs than thosewho are not so rigidly tied to notions of bureauctatic statusnhierarchy and impartiality. The rule-bound behaviour, the prec-ise delineation ofjurisdiction and the centralization of authoritytend to be dysfunetional in the contoxt of develoment. Thcfundamental values of a development-oriented administrativeapparatus are supposed to be difrerent from those of a tradi-tional bureaucracy abd the belief that the dcvelopment bureau-cracy provides a positive tbinking and a creative outlook hasalmost becomc a clich6. Thus the crucial question that emefges.

in Indian context is whether the traditional bureaucratic struc-tural and behavioural values and norrDs arc contradictoty or'complementary to the requirement of a developmental adminis-tration.

With a view to enquire into such fundamental issues, thepresent study makes an attempt towards a comparative studyof the bureaucratic values, orientation and behaviour of theofficials engdged in developmental and non.develpomentat tasksin the two comparatively good and not-so-good performancectates of Punjab and Madhya Pradesb. The officials chosen forstudy belong to tho developnrental tasks of Irrigation and RuralElectri8cation programmes and primarily'non devclopmental'tasks of Revenue administration in the three blocks of the twodistricts in these states selected oo the basis of th€ir level of

vlrt

performanco in development tasks. The constellation of burca-ucratic valuos chosen for empirical investigation is limited toonly a few important ones having significant impact on theperformance of development goals, Such a comparative studyof the value perceptions of two sets of officials working in twodifferent fields -developmental and non.developmental and intwo different settings will, it is hoped, prcvide some insightsinto the kind of value constellations tbat impede or areconducive to the developmental process, and hopefully enlightenus on the ques(ion whether the much maligned bureaucracy inIndia, while largely remaining wedded to tho Weberian model ofbureaucratic organization, has in fact adapted to the changingneeds of the situation. Inter-alia, the study also seeks to enquireinto the validity ofthe oft-repeated plea for debureaucratizingthe administrative systems for achieving developmontal goals.

We gratefully acknowledge the help and cooperation olvarious officers of the two State Governments of Punjab andMadhya Pradebh, a number ofinstitutions, friends and colleaguesin undertaking the project. The University of Delhi, PunjabiUniversity, Patiala and the Indian Instirute of Public Adminis-tration, Ncw Delhi gave kind permissirrn to work on the projcct.Sardar S.S. Puri, Chief Secretary to the Governmeot of Punjaband Shri Birbal, Additional Chief Secretary to the Government ofMadhya Pradesh instructed their Secretaries in the Revenue andlrrigation Departments and Chief Engineers (Irrigation) who inturn fequested theif junior officers at different levels for extend-ing'cooperation for the field work. Sardar T.S. Madan, Chair-maD, Punjab State Electricity Board and Sbri G, Jagatpati,Chairman, Madhya Pradesh State Electricity Board alsoinstructed their ofrcers to extend cooperation in the field work.Collectors of the two selected districts, Sardar S.S, Daura andShri Sekhar Dutt were also of great help to

'"rs.

We are also grateful to the Indian Council of Sbcial ScienceResearch for financing the study. We also ow€ our debt to th6Centre for Policy Research which providcd us tho basic adminis-trative facilitios to conduct our research studics. Our decp senscof gratitude aro due to Dr. V. A. Pai Panandikor, the Dircctor

tx

of the Centrc, who has Dot only evinc'cd keen interest in the

study, but has also guided us through each phase of its oomple'

tion. His deep insight in the subject, firm commitment tosuch researches, and the academic fervour that he had lontthrough his discussions. have been a source of constant inspira-

tion and encouragement to us' We are also grateful to Mr. Y'L'Nangia, Chief of Administrative Services of the CPR, who

along with his band of very efficient and hard working staff has

putlod us through many difficult circumstan@s in the course ofour study.

Wo are tbankful to our colleagues at the CPR, especially Dr.O. P. Shar$a and the team of research iovestigators comprising

of Mr. Yogesh Kumar Sbarma, Mr. J.P. Noor, Mr. R.C. Yadav

and Mrs. Achla Gupta and others who have rendered valuable

ossistance in the completion of the field work and in the collec'

tion of data. We record our appreciation for typing assistanco

rendered by Trimbak Rao, P.K. Yegneswaran and KalpanaMissar.

We are howeve r, entirely responsible for any shortcomingsthat might have inadverstantly crept in this study.

R. B. JainP; N. Chaudhuri

. CONTENTS

Foreword v

Preface vii

List of Diagratns xiii

Llst of Tables xv

1. Burcaucracy and Development : An AnalyticalPcrspective I

2. The Research Design 3t

3, The Bureaucracy at tho Grass Root Levol : AStudy of its Profilc and Job Satisfaction 49

4. The Structural Characteristics of Bureaucracy:An Analysis of Offioials' Perception 9 t

5. Sooio-Penonal, Socio-Cultural and Socio-Adminis-trative values r23

6. Official Porception of Bebavioural Values 149

7. Cliontele's Pcrception of the Officials' Pcrformancc 181

8. Relationship Between Buroaucratic Characteristiceand Dovelopmontal Orientation 213

9. Bureaucratic Values and Devetopmont: AnOvervicw 255

Appendices 275

Bibliography 307

9r7

LI$T OF DIAGRAMS

l. Hierarchy

2. Division of Labour

3. System of Rules

4. Impersonality

5. Integrity of Character

6. Equality of Individuals

7. Values Scales in respect of Caste/ClassConsiderates

8. Socio Administrative Values Scales

95

98

103

lt3

127

l3l

135

142

9.

10.

I l.

12.

13.

t4.

15.

16.

Rationality

Authority

Change/Result Orientation

Hierarchy and Development

Division of Duties and Dcvelopment

System of Rules and Developmeot

Imp€rsooality and Development

All Structural Characteristics ofBureaucracy and Development

154

158

170

2t6

220

223

226

229

xlv

17. Integrity of Character and Develop-

18. Equalityoflndividualsand Develop-menr x6

19, Socio Administrative Valucs andDevelopment Bg

20. Personal and Socio AdministrativeValues and Development 241

21. Rationality and Development ,+3

22, Authority and Development Us

23. All Behavioural Characteristics andPevolopment 249

t1

LIST OF TABLES

Number of Officials lnterviewed inMorena by Dopartments and plaoes ofPosting

Numbe r of Ofrcials Interviewed inPatiala by D€partments and Placcs ofPosting

Districts

Distribution of Ofrcials by Age Groupand Class of Sorv ice

Age Composition of Developmentaland Non-developmental Personnel byDistricts

Distribution of Officials by Classes ofService and Maximum Time UvedUpto 20 Years of Age

Rural/Urban Background of Officrrs'Engaged in Developmental and Non-developmental Functions by Districts

Parental Occupation by Class of ser-vice

Distribution of Parental Occupationof Developmental and Non.develop-mental Personnel by Districts

Economic Background and Class ofScrvices

Economic Background of Officers byTypes of Work and Distficts

Marital Status of Respondents

37

38

38

50

5l

53

<i

56

58

60

6l

62

2.2

2.3

3.1

3.2

J.J

3.4

3.5

3.6

).t

3.8

3.9

xvl

3.10 Number of Dependents of Officials inDistricts of Patiala and Morena

3.1 I Lcvel of Education by Class of Service

3.12 Distribution of Ofrcers in the Deve-lopmontal and Non-developme ntalDepartments by Districts and Levelsof Education

3.13 Upward Mobility of the Officials

3.14 Upward Mobility of the Ofrcials byDcpartment and Districts

3.15 Job Satisfaction of Officers by Dis-tricts and Depadments

3,16 Chances of Promotions bv Districtsand Departments

3. l7 Utilisation of Education, Training andExperience of Officials by Districts andDe partments

3.18 Officials' Perceptions about capabili-ties by Districts and Departments

4.1 Respondents' Scores on Value of Hie-rarchy by Departments and Distriots

4.2 Scores on Division of Labour byDepartments and Districts

4,3 Scores on System of Rules by Depart-ments atrd Districts

4.4 -Scores on the Fceling of Getting a

Government Job Without Using InBu-. encc

4.5 Scores on Impersonality by Dcpart-ments Districts

4.6 Distributron of Ofrcials' Tondency toBecome Friendly with the People inCourse of Officials Dealins.s

63 .l

64d

67

68

69

t+

77

8l

83

93

97

t0l

108

u2

u5

d4

i

4.7 . State Electricig Boarde

4.8 Department of lrrigation

4.9 Department of Revenue

5.1 Distribution of Opinions about thoIntegrity of Character by Departmentsand Districts

5.2 Distribution of Opinions About Equ-ality of Individuals by Departmentsand Districts

5.3 Distribution According to the Ofrci-als' Value Scales in Respect of Caste/Class Considerationd by Districts and

' ' Departmcnts

5.4 Distribution of Socio.AdministrativeValues by Districts and Departments

6.1 Distribution of Values Attached bytbo Officials , to Rationality by Dis"tricts and Dopartnents

6,2 Distribution of Respondentg Accord-ing to Their Perceptions of Authorityby States and Departmentg

6.3 .Distribution of Scales of Valuog ofAttitudes and Bchaviour of Visitors byDistricts aud Dcpartmonts

6.4 Meetings with the Clientele and Boha-viour of Ofrcials by Districts andDepartmontt

6.5 Dietribution "of Scale Vatues AboutOrientation of Ofrcials TowardsChangc and Torg€ts Achiermonte byDistricta and Dcpartmetrts

6.6 Opinion About'Partiolpativc :Decidion-. mrking in Paliala and Moreoa

tv|l

l17

ll8r20

t25 ,

130

t34

140

t52

156

l6)

t62

t67

t72

xviii

7.1 Supply of Canal Water and tbe Mdin: I

tenancc of Canals t85

7.2 Supply/Interruption and Utilisation ofPower

7,3 Perceptions of Villagers About the

Officials' Crpabilities by Districts

7.4 Villagers' Perception About the Beha-

viour of the Govornment Officials To-wards tho Beneficiaries and Non-bene--ficiaries

7.5 Aptitudc for Department Work

7,6 Viltagers' perception of their Cooper.. ation with the Officials

7.7 Aloofness of tbe Officials from the

t88

i,l9l

' Villagers

7.8 Political Pressure on Ofrcials

194

r97

199

200

201

7.9 Villagcrs' Perception of the Influenceof Political Lesders on Bureaucracy 202

8.1 Retationship Between Perception on. Hicrarchy and Development Orienta-' tion by States 215

8.2 Division of Dutics and Devolopmentin the two statcs 219

8.3 Ofrcials Porcoption oa Syetcm ofRules and tbeir Oriertation to Dcvo-

. lopmont by Statos 222

8.4 Impersonality and Dovclopnect byStatos 225

8.5 Rclationship of Officials' Combiued' Perceptions of Structural Chatactcris-tics of Buroauoraoy ald. Their Dey+ .' lopment Orienlation by,$Iata 228

8.6 Rclationship Betwe€o Integrity ofCharacter aod Dovelopment Orionta-tion by Statoe 231

8.7 Equality of Individuals rnd Develop-meut by st4tes 2y

8.8 Socio-Adminlstrative Values andDevelopment by States 237

8,9 Sooio-personal and Socio-Administra-tivc Values and Dovelopment by States 240

8.10 Ratiouality aad Dcvolopmen! byStatos 242

8.ll Authority and Development by Statos 244

8.12 All Bohaviour/ll Characteristtcs andDcvclopment by States

..'

I

Bureaucracy and Development rAn Analytical Perspective

The concept of "dcvelopment administration" is of recentorigin but has become quite a popular and a fashionableexpression in administrative partance. While an argument canbe madc out, as Swerdlow has done, that this is somewhat anartficial conccpt, whose meaninq is unexplored .and deceptivelyvague, most writers including Swerdlow himself, tend to agreethat the conccpt is a useful one. It involves special understand-ings required in developing countries. Such understandingsate more perceptiblc at the operating levels of an administrativesystem. These imply that officials must make enough differentdecisions, adopt cnough differcnt policies, cngagc in enoughdiffermt activities, and sharc difcrent value systems and orienta-tion to warrent the distinctivc dosignation.l

In simplistic terms, therefore, as Edward Weidner, one of thepoineers in this field has suggested, development administrationis synonymous with "an action-oriented, goal oriented adminis.trative system."2 He furthcr defincs it as .,the process of,guiding an organization toward thc achievenrent of developnien*tal objective."s Fred Riggs characterised developmcnt adminis-tration as an administrative problem in government reforms..He views developmcnt o'...as a process of incrcasing auronomy(discretion)of social systcms made possible by rising levels ofdiffraction."5 Development admiuistration, thoreforq oncompa-

Bureaucratic Values in Developm ent

sses thc organization of new agencies such as plannilg organiza-

tisns and development corporations; the reorientation of estab-

lished agencies such as. departmotrt of agricdlture; the delcgation

of administrativc powers to deveiopment agencies; and the

creation of a cadre of administrators who can provide lcadership

in stimulating and supporting programmes of social and econo-

mic improvement. It bas the purpose of making change

attractive and possiblo.o

The goal of development is, therefore, not westernization ormodernization into industrial but the employment of modern

technique, both technical and social in the pursuit of societal.objectives. As Caiden suggests, it is the attainment of results,

not rationality, form or ritual.? "In common usage of the term",therefore, as Weidner has put it, "a rapidly'developing countryis a goal oriented country, headed in the direction of modernity,

with special emphasis on nation'building and socio'economicprogress."s Development administration is thus that aspect ofpublic administration that focusses on government-influcnced

change toward progressive, political, economic and social

objoctives.

As the dominant concern of development administration is

with the 'management of change', in countries' which have.development as a major national goal, an effective bureaucracy

should, therefore, function more as an agent of change tlan an

instrument of stability and continuity. ln order to be an agent

of chango, a bureaucratic system must have the capacity to.(a) forecast, project and understand the direction and tempoof major or significant changes in its environment; (b) to plan

for neccssary or desirable changes; (c) to adapt its€lf to changes

demandcd or planned by the political system, or to otherunforeseen changes; and (d) innovate on its own.o

In the context of devolopment administration, the Weberianmodel of buroauoracy has beon much criticiscd on the ground

that it being a product of particular historical, social aad politi-cal milieu is not conducive to the fulfilment of the develop-mental objectivos.lo It is argucd that in his burcaucratic model

Eureaucracy and Development 3.

Weber has treated administrative system as 'stoady state'systems. Consequently he was neither interested in the problem.of consciously stirnutating develofment in a society nor in theproblem of directing social change. Developmont situationsrequire risk-taking and achievement orientation whcn decisionmaking is situational, innovative and creative. In many dovelop-'ing countries, including India, burcaucracies have come in for-sharp attacks for not bcing able to appreciate tho problems of.development, Where commitment to development needs andprogrammes have been called for, bureaucracies have been

r.found to take shelter under conservative neutrality.ll Joseph.J-a Palombara, therefore, suggested tbat (for developmentalproposes) the Weberian cbaracteristics of bureaucracy like

.organisational rules and procedures, division of duties etc,,should not get procedence over target achievement.lz Thus in.a place like India, he maintains, public administrators steeped.in the tradition of the Indian Civil Service may be less useful.as developmental entrepreneurs than those who are not sorigidly tied to notions of bureaucratic status, heirarchy and,impartiality.ls The. rule bound behaviour, precise delinea-tion ofjurisdiction, centralization of authority and systenr ofpromotion based upon seniority in the administrative oraniza-tion of India are dysfunctional in tbe context of development.ra

The Indian Bureauuacy and Development Administration

The present. administrative structure of India has emerged from.the British colonial systen. As one of Britain's major interests'in India, as in other parts of her colonies, was to use itsrresources to her best int€rests, little attention was given by theBritish to devolop administration as an instrument of economio.and social change. The administration was solely concerned withthe maiotcnance of.law and order and the collection of reve..nues. After attaining .indcpendence, the functions of govern-ment have undergone a fundamental change. Instead of beinp

-the guardian of law and order alone it has now assumed thirols ofa custodian of welfare and thc well-being of its citizeqs.This has led to a greater intervention of tbe state into economic

,a nd social fslds. The pengtfation of the state into economic

Bweaucrattc Values in Developmettt'

and social developmcntal activities has acquired new importance"

in the task of nation'building' The odium for bringing about'

desired economic, and political change in India has in greater'

part fallen on thc bureaucracy, wbich has been built up over'

ih. y.ut. by the British to suit tbeir objectives' The bureau'

cracy in India has now to undertake several complex socio'econ'

omic functions and bring about the necessary social and econmic'

.iuog" for nation-building purpose in the society' With'

in. uioptioo of these new goals and objectivcs, the style of thc'

iun"tiooiog of bureaucracy had atso to undergo changes' For'

merly the bureaucracy in India had to function in the back'

ground of a colonial rule and imperial order but it was now

Iuppored to work in the framework of a democratic set up with

aciiue involuement of the people for whose welfare the Stata

existed. The fundamental question io the context of India bas'

in...fo*, been whether the administrativs system developed'

ani nurtureO in a colonial setting could aew play an appropri'

"t" rof" in a free demooratic State committed to a socialistiq

pattcrn of society and simultaneously respond to the oxigencies

of development?

Witb the initiation of the process of national planning, heavy"

responsibility now rests with the administrators for bringing

about welfare goals in tbe society. The functions accruing to

the governmental bureauoacy thus go beyond the t-raditional

fraJe of reference of a laissez faire state' The officials aro

now called upon to act as catalyst to tho process of social

and economic transformation' It has been generally argued

that the economic dovelopment of a society particularly il it is'

to bc implemented by a massivc intorvontion of the public '

sector, requires a breed of bureaucrat different from the type

of man who is useful when the primary concern of bureaucracy

is the maintenance of law and order. Thus the need of the'

hour is a kind of bureuacrat, wbo is more free'wheeling, less

adhering to administrative forms, less attached to the impor-

tance oflhiararchy and seniority.ls Therefore th€ basic issue'

that has einerged in recent timcs in India has been whether

thE administrative'system inhcrited from tbe British c*n respond

-to the changing values, aspiration and gorls' of' the- societyt

thureaucracY and DewloPment J

'The old bureaucratic conservation and indifrerenca o1' 11-ts civil.€ervants, the closed system of imporsonal operations of develop'

mental progrommes, thc rigid adherence to formal rulss'

precedents and procedures must be replaced by a forward look'

iog, change, action and result'oriented system. Thc bureauuatic

'syiiem stroutd be in communication with outsido groups and

'pcrmit initiatives, responsibilities and innovations'

Thc difference betwecn a traditional and developmental

bureaucracy is partly structural and partly behavioural' The

traditional concept of bureaucracy stems oot oi the Weberian

characteristics like efficiency, impersonality, predictability' speed'

precision, discretion, unambiguity, continuity, unity and heira-

lchy. Its role is that of exercising and expanding control over-people and other sphercs of life either in its own or in the

'inteiest of its masters. The Indian bureaucracy has so far been

,conspicuous by its nonpartisan, neutral' and constitutionally.based status and its paramount role in the governance of the

.country. Its formal exercise of traditional' State authority has

genarally been without any conpulsion of responsivcness to tho

rpeople's needs, demands, aspirations and desires. Howcver, thertasks of a developmental bureauaracy are supposed to be diffe-

rent inasmuch as it is concerned with promoting creativity andgrowtl with the stability of thc system. Developmental pro''€esses are also involved in bringing about appropriate changes'in the values. attitudes and b€haviour of the individuals in thesociety. The success in respect of developmental activities ban.,not, therefore, be achieved without the concurrence and active,involvement of the people, [n contrast to the traditional'bcreaucracy, a developmontal bureaucracy thus needs different*inds of valucs, oricntation and attitudes which should.govern its behaviour, and the bslief that the development'bureaucracy prescribes a positive thiuking and a creativc-outlook has almost become a clich6. A signifioant question-

that arises in this context is whether such dichotomizationof the role of administration is realistic and even conducive

{o development? Even if such administrative jargons do carrysome distinctive notions, can the importance of traditionaladministrative funotions bo completcly ignored? Cannot the old

6 Bureaucrutic Values in Developmeao

administrative apparatus be revamped to give adequate support:to the developmental offorts of a devetoping society? Is it:conceivable that one part of the administrative system shoulducontinue to collect revenues for the maintenanee of the statc.macbinery and another part be concerned exclusively with the.developmental activities of a welfare state? In what way thetwo parts in such a situation will be different and antagonistic,or complementary to each other? If economic and social change.is the goal ofa developmental administration, is ir also essential.that an attitude of cbange orientation on the part of bureaucracydifferentiates it from the status quo orientation of the traditionat, .

bureaucracy? If we consider developmental tasks as separaro-from those of keeping law and order, the fact remains that inrmany countries today the.two tasks are performed by the sametype of persons and there is considerable interchange and trans--fer of personnel between the routine and revenue departments.

. on the one hand and'the developmental departments on theother. And even in the days of traditional administration, withlheavy stress on 'order' and 'revenue,' mauy of the officials were-involved in what might have been. then interpretsd as develop-mental aotivities. Thus, the crucial question that emerges is.whether the traditional bureaucratic structural and behavioural.values and norms are conftadictory or complementafy to the.requirements of a developmental administration? The basic pur-pose of the present research study is to attempt to find answers.to such questions in the Indian context.

Bureaucracyi The Weberian Model

Bureaucracy bas been defined as "the type of organisation desi-gned to accomplish large-scale administrative tasks by systema-.tically coordinating the work of m4ny individuals.'10 It is notintrinsic to any particular ideology -communism, socialism or-capitalism, but can be found in any type of socjety with orwithout private property and in a basically dictatorial or a basi-.cally democratic climate.u Bureaucracy is useful to the organi-sational system in societies with varied political systems, tbecontext and character differing a great deal according to the,political set up. Thus a bureaucratic system controlled bv th*

BureaucraeY and DevelaPment ' I

Communist party in the Soviet Union or The Poople's Republic

of China is a different system from that oporating in a liboral

society like that of the United Kingdom or the United States of '

Amcrica or France.

A Weberian form of bureaucratic organisation is characte-

rised by the existence of hierarchical arrangement of offices'

division of duties, observance of rules and procedures, selection

of personnel on merit and meticulous recording of administra-

tive decisions in writing. This classic modcl of bureaucracy not

only incorporates the essential structural charecteristics that

have been postulated as definition of bureaucracy as a form oforganization-hierarchy, differentiation and qualification' It also

specifies a network of interrelated characteristics, both sructu-

ral and behavioulal, which identify bureaucracy of this type'l8

It establishes certain standards of integrity, impersonality and

professional competence and has been found to be useful and

efficient in carrying out its responsibilities' But its capacity

for adaptation to change has been rather slow. In the develop'

ing countries whcre quick changes are necessary for bringing

about socio-economic transformation' such a concept of bureau-

cracy has not been found to adequately respond to these tasks.

Its role in development administration has, in fact, been ques-

tioned in many countries.

The Weberian model of bureaucracy, according to its critics'is subjoct to various dysfunctional consequences by failing totake into account the individual and behavioural aspects ofits members. In an atmosphere of development, Weberiau

model of bureaucracy is said to be unable to meet the demands

of the stuation. Robert K' Merton, the eminent social scientist,

was the first to point out that although close control by therules favoured reliability and predictability of behaviour, lack

of flexibility affected the fundemental aspect of development'i.e. good service to the people.re Excessive formalism becomes

counter-productive, especialty tn rural development where the

beneftciaries are illiterate and ignorant of government rules andregulations. Another writer, Philip Selznick, oonceives the central

dilemma in bureaucracy as arising out of the need for delega-

8 Bureaacratic yalues in Dsys!6pnst$

'tion of power to organisationsl sob-systems. The increasingcomplexity of organisational tasks makes decentralisation anddelegation of responsibility to the intermediaries inevitable. Thebifurcation of interest between the central system and its decen-tralised sub-units has again.the danger of <iisplacing the goal.20

Similarly Alvin Gouldner advances the thesis that bureaucrarrctechniques. p;oduce their own reactions. As the top levelbureaucrats become aware of their subordinates' behaviour, theyissue additional rules and procedures wbich uttimately lead totensions between the top and subordinate officials causing dis-placement of organisalional goals.2l In the same vein. severalother scholars on bureaucracy, such as, Robert V. Presthus haveheld the viewpoint that being tho product ol an alien culture theWeberian model is not suitable for transplantation in thedeveloping societies.22

Some social scientists in recent times bave even predicted thodemise of Weberian concept of bureaucracy. According toWarren Bennis, bureaucracy has served its purpose-to providecivilization with a great social machine for reorganizing rurallife into industrial society, Bureaucracies are highly efficientorganizations for mobilizing thousands of people into routinetasks fighting trench wars, building Model T-Fords, licensingautomobile drivers, distributing agricultural products. Theythrive on the sort of institutional plaoning that can developonly where organisations are allowed to pursue fixed goals with-in a relatively stable environment. When rapid change erases

that stability, the bureaucratic form loses its utility. A leadingfuturist Alvin Tofler, thus observes, that it is "not surprising tofind that whenever organisations today are caught up in thestream of technological or social change, wherever researchor development is important, wherever mea must cope withfrst-tirne probtems, the decline of bureaucratic forms is mostpronounccd.2s

The problem of bureaucracy is somewhat complex in develop-ing countries where social and political institutions are rela-tively less developed and whero the State has mainly to depend

Sureaucracy anrl Developmenl 9

upon the admilistrative structure for the accomplishment of itsgoats. Thus, ihe bureaucracy in India aod other develofing

'countries have to perform functions which in developed coun'

tries aro performed by a variety of other institutions' In socialist

'countries. bureaucratic systems are more integrally interwound

with their political and party systems, while in a developing

'society tho poli ioal system may be less developed in comparison

lo the bureaucratic apparatus. However,'wbatever may be thp

nature of political system. all modern bureaucracies do possess

the Weberlan characteristics to a varying degree' The lndian

bureaucracy also exhibits sonle of these charactcristics in the

following manner: (a) Bureaucracy is heirarchically organised

'inasmuch as "principles of office heirarchy and of levels

of graded authority mean a firmly ordered systcm of super

and sub.ordination in which there is supetvision of the

lower oliqer by the higher ones" (b) Bureaucracy is based

-op a systematic division of labour (c) All bureaucratic opera-

tions are governed by a system of rules and the application ofthese rules to particular cases (d) Bureaucracy is impersonal in

"character, i.e. its members function without regard to individualpersons, and (e) Personnel for manning the bureaucratic organi-

' sation are selected on merit and technical qualifications'

Notwithstanding ttre ' Weberian characteristics, in practical

terms a bureaucrat in India must seek to reconcile the tlto. different worlds in .which he lives and works-the little world of

his office with its files, rules and routine procedures which call

for his adherenc€ to the Weberian principles and another world

of men and women with their growing problems, aspirations

and demands, The environmental constraints ol this world

'and the special consideration for backward castes, classes and-other weaker sections and communities necessitate deviation in

his actual behaviour from the strict Weberian model'

Thus no study of bureacracy in India can be complete and fruit':ful without an analysis of its behaviour and attitudes. Amongst

'a large number of behavioural values, the most significant.of these relate to: (a) Rationality in decision-making, i.e. choos-

dng between alternatives puroly on consideration of efrciency

Bur eaucrat ic Value s in D eve I op ment-

as it has been asserted that bureaucracies in developed countries.are well known as being capable of eliminating fiom official"business all kinds ol emotional and other personal biases likelove, hate or contempt, (b) Impersonality, i.e. the functioning of-bureaucracy without regard for any particular persons, places or-things, (c) Authority-the existence of superiority or inferiority'complex in the heirarchy of bureaucracy ensuring authority tbrexecution of various measures, and (d) The Change/ResultOrientation-bureaucraay and particularly developmental bureau-cracy shouid have change orieotation and/or result orientation,..for being successful in its mission as compared to the status-qua"orientation.

In order to explore the content of values and orientations ofithe bureaucracy in India, this study is specifically concerned withan analysis of their perceptions about the kind of. Weberian,.behavioural and socio-admi nistrative values that they seem .tocherish. It also seeks to examine the relationship between the,social background of the officials and the impact of such factors.like their training, work experience, psychological make-up, andthe political environment on therr accomplishment of develop.mental and non.developmental tasks. A further investigation inthe nature of commitment of .the officials to the traditionalvalues particularly the ascriptive, and the modern liberal and.rational values is also attempted in order to determine if any.particular constellation of value-orientation affects thc function-ingof the officials in the achievement of the develoomentalgoals.

As the bureaucracy in India is the principal tool for bringingabout socio-economic changes in the society, it is also importantto examine how far the bureaucracy is able to perforrn thegrowing development tasks. From the academic ooint of view.it would also be worth .investigating if the Indian bureaucracy.engaged in development tasks is in any way actually differenifrom the old traditional bureaucracy. Il the differences exist, arethey significant or merely unimportant variations? Is the Indianbureaucracy static or dynamic? Are its structural and beha-vioural patterns interrelated? If there are significant variations",

10

Bureaucracy and Developnent

can they be related to differeacosadministration?

l1l

in patterns or systelns of'

A Brief Review of the Earlier Studies

Many studios in India in recent times have focussed their-

attsntion to some of the above questions and to several aspect$'

of bureauoratic petformance in the developmental field. It wouldr

be fruitful to review briefly the findings of some of the more im-portant of thcse works for providing a proper perspective to the-

present undertaking. It is significant that most of these studies '

havo been critical of the way the lelics of a colonial bureau'

cratic system in India have hindered tho processes of develop-

metrt. A voluminous study undertaken by Ralph Braibanti and

his associates ot Asian Bureauodtic System rn 1.966 had clearlyshown that thr British values still continued to set the tone ofbureaucracy in India, and there had boen no radical departure

in their bohaviour from the pre-indepcndence norms'e4 Thu$'

one rrf the earlier empirical studies in this rcspect had argued

that the Indian Civil Service of yesterday had a penchant for'strictly adhering to rules and regulations, like obsequious depen'

dence on superior's instructions and thc ostrichlike attitude to

changing external conditions. And, therefore, the new bureau"

"ru.i[iJInaiul must require,'new orientations' new activations,

new environments and new work ways."2s

Similarly, in a survey of Block Devolopment Officers inRajasthan and Uttar Pradesh, Kulde:p Mathur found a clear

linkage betwedn administrativo culture and social environtlrsnt'

In tho performance of development officials, the admioistrators

seem to have admired inter'personal behaviour, morality and

hooesty mote than their qualifications, comp6tence and intelli-geqce. Mathur noticed that even though the need to fulfildevclopmont programmes was nrost u(geBt, much of the'bureaucratio pursuit was directed towards aotivities other than.

the achievement of developmental goals.26 Thus, he argued''

that if change was the basic purpose, a new-look develop-

ment bureaucracy was needed in place of the Weberian model..

tl2 Bureaucratic Values in Development

A recent study by V.A. Pai Panandikar and S.S. Kshirsagar'has revealed the existence of some interestiog pattern of felation.ship between the bureaucracy and development administration inIndia, Thc authors concluded that the bureaucracy involved inthe tasks of agricultural development at the field level necessita-,ting mass participation tended to be less rigid and behaviourallymore flexible than the headquarter bureaucraey, while the'bureaucracy in a regulatory and non-developmental- agencyrtended to be more rigid and behaviourally less flexible.2?

In a searching probe into the structural properties of the?anchayati Raj bureaucracy and its rote in agriculturaldevelopment in the Mehsana district of Gujarat, RamasbrayRoy's findings indicate that the feeling of self-reliance andself-confidence on the part of bureaucracy in inter-personalrelations at various levels and interaction patterns uith the,environmental needs were found to be both facilitating andrestraining factors in the role performance of the administra-tors.28 Although rigidity in administrative procedures andtbe absence of a tradition of allowing the ofrcials ro take instantdecision restrained the adniinistrators in employing their.experience for improving the implementation of agriculturalprogrammes, the offcials were lound generally to have structuralproperties of the organisation modified to suit their role'effectively and efficiently.

In a similar study of community development in Rajasthan,Ftr.R. Chaturvedi has eramined the interbction betweenbureaucracy and the local community in the task of rural.development witbin the framework of Panchayati Raj. He'came to the conclusion that the existing bureaucratic organi-sation developed for the maintenance of law and order andcollection of revenue was inadequate for chrrying out the tasksof developmental change. Thus, he argues, that there is thenecessity of restructuring the bureaucratic organisation on theone hand and a radical change in the orientations, attitudes andbehaviour patterns of the bureaucrats on the other for thetransformation of tbe rural society steeped in ignorance andlaoking in resources.tn

Bureaueracy and DeveloPmefi 13

In an illuminating article, J'N' Khosla has likewise suggested

that stfuctural de'emphasis of heirarchy is necessary to get

rid of the conventional pyramid which leads to centralisation

and creates tension and inter-personal conflicts' As most of

the developmental activities take place in the field, decentralisa'

lion of auihority enables the field units to take decision on the

spot without seeking clearance from the centre' Dccentralised

decision making thus creates autonomous units of administra-

tion and is con<lucive for development.so

On the value systems of the bureaucracy, N'K' Singhi in his

study of public and privato bureaucratic organisations in Rajas-

than, has found that "there is dissonance between the defined

goals and rational norms of bureaucracy and the value-orient'

ition of the bureaucrats."sl The bureaucrats reveal ambivalence

and contradiction in values wbich is the result of the twin

proce sses of traditi,)nalism and modernity' A large number ofLureaucrats consider caste as a drag on the forces of develop'

ment. The rresponses to the bureaucratio norms show both

greater non-rational perception in regard to one attribute and

iat onal p€rdeption for the other' There is thus a laclc of

o"ttrrn oi "ooristency,

which he thinks is necessary for the

impa*iaf functioning of bureaucracy' He also found a lack of

compatiUifity between the goals of socialism' ^democracy

and

rationalism on tbe,sne hand and the values of bureaucrats on

the other. Tbe structure of bureaucracy in India tends to have

greater caste-like structure and the higher bureaucracy has

Jxaggeraterl sense of status'consciousness in the Iudian society'

filii".tutor consciousness becomes part of the personality of the

bureaucrats, which is reflected i their actual behaviour' Despite

tU" ftign pcrceptions of dysfunctions both of over-organization

invotv-ioj excessive development of those routines which within

itit. "-t" f\tnctionally necessary' and of under'organization

ioAoalos those ills like nepotism, favouritism' graft'.corruption'

eic., tne'qualitv of adjustments of bureaucrats with their roles is

"o-purutin"ty .orc positively oriented' Half oflhc bureaucrats

iJt[h satisfaction-with their jobs, nature of -work'

prestig€

;;;;t. Thc dysfuoctional perception- of buroaucracv is

ft;i;;;" rise in rational expectations at the aspirational level

Bureaucratic Values ln Develoom ent

and its lag at the level of actuality, He, therefore, concludedthat as thd present bureaucratic system weighed heavily in

'favouf ofroutine administrative tasks and concentrated authorityand decision-making in the hands of tbe elite class which tendedto be power-oriented, it was unsuitable for the achievement ofthe goals of national development. The realisation of an

, effective welfare society based on justice, equality and democracythus needs new values, structure and method of work and hish

' commitment to goals of national reconstruction.

In yet another study on the Administrative Development in, Indio,3z Prem Lata Bansal has made an empirical examinationofthe capacity of the civil services in India to respond to change.Her principal concern was to investigate whether the IndianAdministrative Service (the IAS) alleged to be embedded in thetraditions of the Indian Civil Service (the ICS) accopts, rejects

'or is indifferent to change, and if it accepts the change, whether'the change is merely tolerable or is it one about which the IASis enthusiastic. Her findings indicate that a majority of adminis-trators are developmentalists, but the level of their.commitmentto modernizing values is low. Thus they cannot be expected tobe the advocate-leaders of developmental planso who can put

''their prestige and influence to develop the support bases for aproposal. Her study further domonstrates that the administrators,

"having scienco and engineering degrees are more development-alist than those having degrees in Arts. The concentration oftoo much power in the role of the generalist administrator atthe district level not only makes hirn authoritarian iu his attitudebut also isolates him from the masses because of the heavy

'burden of paper work. Her analysis of the attitude of the ad-ministrator toward equality reveals that while on the one handthe administratirrs believed in the equality of opportunity for

..all, at the same time, howover, they wire opposed-to the policyaimed to achievc equality of opportunity- to all in concrete.terms. Bansal's enquiry suggests that the modernizing values

-are penetratiog into th€ IAS with only limited impact on thoseoffcers whose tendency is retrospcctive and whose acceptance

-of the new order is slow. The IAS omcers, who are intolerant

'14

.EureaucracY and DewloPment I 5

'to modernizing processes despite m.odifications il-training and

,iiJ.- r"t.t-oi[*e position to politioal executives' are non-

l"urfopt.nrofist. Howevero the admioistrators wh,o are younger

i" "nrl

tat*,ed in the post-independent social atmosphere'

"liit'"" "tpi"ti. is u"in! laid on initiative' and who are from

;l;;L;"* ;"cio economic bockground are- dcvelopmentalists

,il""i"g p;tititt orientation towardchange' Bansal's study has

,f".l"tjngnt ort significant revealations about the administrative

rttl.;i;;" higher civil services in relation to development

.administratiotr'

The impact of cultural environment and the prevalent value-

tyr;;;;-il; ,o"ioty oo the bureaucratic behaviour has been the

,'oUjr.t of another important study by Stantey Higginbotham'

ir-fiJ""av ot Culturei in Conflict : The Four- .Faces

of lndian

..Bureaucracy,'" he dtscusses bureaucracy and bureaucratic be'

,nunioo, in a setting characterized by conflicting and changing

,cultural patterns' He has studied the Indian bureaucrats' many

of whom were raised in traditional Hindu environments' as they

aalry oo, their dutios in formal bureaucratic structures' which

ll rirgg*r- are strongly reminiscent of the pre'Independence

stf;-i""dtilttration. Rules, regulations' procedures' control

mechanisms, and basic maoalemint practicc-s have remained

*r"otiuttv oo"Uanged over the past 25 ycars' He concluded that

the firmness, harsbness and impersonality used by tbe British

.auiUorities in handling the Indian suborditrf,tes were in turn

employed by those subordinates in thoir dealing with villagers'

The colonial approach which became known disparagingly

u-oog *-.oniiy develpoment workers as "the -official way"'

was a-product boih of the paternatism of colonial bureauoracy'

.and of the relatod sense that fear and awe were the emotions

*o*iiittfy to causo farmers to pay taxes anC otherwise co'

'operate with tbe rcpresentative of oxtraotive bureaucracy'

"Tho official way" of dealing with citizens relied on tbe

.authority and prestige of ofrce' Bureaucrats made no attempt

to gain the fricndship or trust of villagers' They emphasizerJ

instead their ability to causo uncooperative citizens endless

aim."itv and expense. Offieials felt thcmselves accountable to

16 Bureaucrattc Values ln Development.

superior.ofrcers and in the service of an administrative machine,that was not ultimately responsible to the people. Their goalrand those of the agency were to control citizens and to extract.resources from them. The bureaucracy,s strict rules becameweapons in the hands of its offcials, Blaborate regulations.facilitated their postures of aloof and formal inflexibility, butwere ebsily forgotten when they received offers of grfts toappease the harshness of their feelings. Thus Heginbotham has.argued that colonial bureaucratic culture was opposed to thecommunity development model inasmuch as it was based onclose supervision, excessive control by higher-ups, and wide-spread distrust oflndian subordinates. The villagers had a well-established image ofthe exploitative, extractive and diadainfulgovornmcnt worker wbich they naturally applied to extension,agents when they first began to appear in rural areas.

The above brief review of some of the existing Iiterature on,Indian bureaucracy has invariably emphasised the fact that thc.effectiveness of the bureaucracy as an instrument of socio-.economic dcvelopment is very much dependent upon its cultural.and value orientations, i.c. its systems of values, belief andwork-ways. However, many of these studies have not givensufrcient atteBtion to the stujy of constraints on bureaucracvand on factors presumed to hinder its innovative capacity. Thaithere are constraints is generally admitted, but what is the,nature of such constraints has not been fully investigated.Whether the procedures adopted by or for the bureaucracy arerelevant in the light of policies it must execute? Or do the,bureaucrats themselves stand in the way of efective goal imple.mentatron is one of thc crucial issues of the functioning ofbureaucracy? Whether the government itself suffers fro alack of will or clarity of goals and is, therefore, the majorbarrier to devclopment is another question. Answers ro someof these important questions require sound and cmpirically-basod analysis rather than a mere impressionistic acceptance orrejection without any systematic study. There is thus a need of.a,;r enquiry into the value-orientations of tbo bureaucracy inIndia.

Bureauctacy anil Development

Any organizational form embodies values, Tb us efrciencyis good; wastefulness is bad. The organization as a peopledentity become value conscious; survival is good; threats tosurvival, and those who makc them are bad. The politicalarena often influences institutional value. Parties in powermake better allies than parties who are not. Individual em-ployees bold values: like fat people are lazy; thin people arcenergetic. These four value-orientations-the bureaucraticrthe institutional, the political and the individ ual-permeateadministrative policy. Altliough their presence is ubiquitous,their influences are over-lapping.sr

Thus the bureaucratic valuc of efficien:y and "value.neutral'nexpertise provide the governmental organization with much ofits power and autonomy. Efficiency and expertise win deferencefrom the traditional branches of govetnrnent.ss Similarly organi-zations, as peopled structures, are social systems and bave goalslike survival. Survival is an institutional value expressive of thoinstrument that employees have sunk into the organization.One survival technique is to maintain and augment supportiveelements in tbe environment-while intermediatine or otherwiseneutralizing i{eologies.sg

While bureaucratic values are part and parcel of the organiza-tional form, institutional values arise out of an ideological orpecuniary comm,tment to particular goals of the organization.Political party values are, however, rather unique to the govertr-mental organization. Wheo values of political parties are opera.tive, adminisrators attribute extra weight to policy proposalssolely on the basis of the political colouration of their source.s?The most important of the value systems are individual percep-tions of the administrators through which values are tfanslatedinto administrative policy. Decision makers are ofte n awarc.of their perceptions. As a result, decisions are consciously:frittered through ono or more biasos,38

As all officials are human beings possessing value judgementsand biases, human values and orientations are regarded as endu-ring long-term goals which regulatc behaviour adaptation. Since,

t7

18 Bureau$atic Values tn Development

the values of an official form part of his work environment andorientation and since lhe value systems of the civil services inIndia have been undergoing chacges due to factors like chanpein educational system, processes of urbanisation and industri-alisation, parliamentary democracy, impact of mass media, etc..

the pace at which the developmerltal goals could be realised inIndia depends mainly upon its officials' orientation towards cer-tain types ot values and the extent to which their own valuesare consistent or in contradiction with values necessarv forrealisation of new goals of a democratic welfare state.

The Objectives of the Study

Tbe present study thus makes an attempt towards a comparativostudy of tbe role-perceptions, values, attitudos, orientation andbehaviour of the Indian bureaucracy engaged in developmentaland non-developmental tasks. It is hoped that such a studywill examine the prevalent bureaucratic norms and values andtheir impact on the developmental orientation of the officialswith a view to understand the changed character of bureaucracysince Independcnce.

I'he Focus of Enquiry

.As the problems of bureaucratic values towards developmentorientation a're vast and varied, it was thought necessary [olimit the scope and coverage ofthe present study. The segmeotof the Indian bureaucracy that is proposed to be the focus of.enquiry is restricted only at the district level in two differentfelds of dcvel,opmental and one non-developmental activities intwo diferent States of Punjab and Madhya Pradesh. TheseStates are selocted purposively on the basis of thcir oomparativelygood and not-so.good perflormance in developmental tasks. The.developmental tasks proposed to b6 studied are Irrigation andRural Electrification Programmes and the non-developmentaltask relates to the Rovenue Adnrinistration. Similarly thc con.stellation of bureaucratic values selected for empirical iuvestiga-'tion is also limited to onty a few importatrt ones havingsignificant impact on its performance of developmental goals.

iBurcmtcracy and D evelopment

The Research Design is discussed fully in detail in the nextchapter.

tHypotheses Proposed ta be Tested

,Assuming that in an administrative .r.r"t, a distinction bet-"\veen the developmontal and non-developmental functions canbe maintained, the project.is undertaken with a view to test thefollowing prevalent hypotheses concerning the value.systems of,the bureaucracy in l.ndia at the grass.root level:

,(a) does the bureaucracy in India whether engaged indevelopmental or oon-developmontal functions still, byand large, shares the same role-perceptions and values ?

'(b) whether a different set of values and attitudes is neces-sary for the officials engaged in developmental tasks,

,(c) whether value-orientations of the Indian bureaucracyare dissonance with the developmental goals and areambivalent, complex and contradictory,

'(d) whether the value constellation of the bureaucracyreflect the ethos of the social systenr from which rheofficials are recruitedo

{e) whether the possible inbuilt resistance of the bureaucra-tic system still continues to be based on colonialimperial traditions, and finally,

'.(f) whother the bureaucracy in India has no clear conccpt,perception and evaluation of its capacities for develop-mental tasks.

'Theoretieal A ssumptions and Policy Per speottves

As has been discussed above, most studies of public administra--tion in developing countries have stressed the viewpoint thatthe band of ofrciale who have been brought up and trained inthe colonial administiative culture, wedded to the Weberian.characteristics of heirarchy, status and rigidity in the adherenceof rules and concerned mainly with the enforcemeot of law and'order and collection of revenues, were quite unfit to perform thc,duties expected in the changed situation of an administration

l9

'20 Bureaucratic Values in' Developmeit

geared to the task of developmcnt. As the government is themain institution throogh which the development goals are to bcaccomplished in the changing turbulent and unstable political,environment of a democratic framework in India, it is thought.desirable that the' officials engaged in developmental worlcsbould be the kind, who "emphasise results, rather than proce-dures, teamwork rather than hierarchy and status, ffexibility anddecentralisation rather than control and authority" The develop.ment administrator, it has been argued, had to be outgoing andpeople-oriented, 'he had to be responsible to the new political.pressures, and must know how to get along with politicians."sFThe kind of qualities and personal traits that a successful newadministrator should possess, viz., " tact, pragmatisrn, dynamism,.flexibility, adaptablity to any situation and willingness to takerapid, ad ftoc decisions witbout worrying too much about pro-cedures and protocol,"t0 has now become a well accepted theoryof bureaucratic capabilities in the developmental context ofIndia.

Against such widely accepted and prevailing notions, in his.recent study of the profile of a single IAS officer brought up.in a colonial b:rreaucratic culture, Anil Bhatt has raised some.

very pertinent and relevant questions which need to be answeredin the context of any empirical study on development adminis-tration. His study analyses the profile ofthe IAS officer who"bclieved in the Weberian principles of hierarchy, line of com-mand, and adherence to rules and regulations. Bhatt did not findhim in any way less democratic. His adherence to rules did notprevent him from going out of his way to extend the benefits ofthc area development plojects to adivasis. The respect forauthority did not come in his way when he rcfused to attend th€MPs meeting. On the contrary he asserted thc principle of locatautonomy against the directives of the highest administrativeauthority-the State's Chief Secretary. While he did not go outof the way to mix with the people he was not less peopleoriented. His experience, as Bhatt analyscs, suggests that whatis ofteo criticised as rigidity has another dirnension and thatis resilencq and firmness. On the othel hand adaptability;.pragmatism, aBd tact in their operational rnanifestations have:

/ Bur e auer-acy an d D e v e lopme nt

.ofteo meant doing iregular and uqiust things, allocating un-

fair priorities, and striking t€nuous consensus and pseudo'com-

pron:ises.a1 Biratt therefore, argues that what requires reorganisa'-

tion and investigation is whether the prescription prepared forthe oew bureaucrat-go.getting, free-wheeling, flexible, dynamic,

adaptable and so on-is couducive to development aad rvhether

"it equips him to cope with the turbulence and uncertainty of thopolitical envitonrnent. The irnportant theoretical qucstions thatneed further investigation in this context are:

(l) Are the values imparted by the colonial bureaucraticsystem really impediments to development?

(2) Did qot tbe pre-independence bureaucratic traditionalso train the bureaucrats to respect political masterc, to

. '5bserve the rule of law, to develop a sense of dedicatioland maintain high standards of intcgrity and per-

. formance?

, {3) Were these qualities really unimportatrt in adapting to, thc demouatic developmental framework?

"{a) Are the classical attributes of capability and honesty allthat irrelevant to development?

(5) For the sako of achieving results and getting along withcolleagues, supervisors, and politicians, qan administra-tors afford to ignore all rules, regulations, procedures

. and norms,. criteria of fairness, just distribution andallocation? Would this lead to development?4z

The prescnt study seeks to throw some light on such type ofquestions that have been posed by scholars in this respect. Itattempts to examine the the oretical dimensions of the socialisa-tion process of Indian bureaucracy, the socio-economic milieu,in which it operates, the cducntional system in which it is'brought up and the theoretical framework of its vision in whichit worlcs. An analysis of the typ€ of motivation, value percep;tion, environmental milieu, would possibly enable us to derivecertain specific suggcstions for the recruitment and socialisation'process of the bureaucracy in India and to dcvelop policy al-tematives for the implementation of developmental tasks. It'inay also enablc us to devise certain concrete steps that oould

2t

22 Bureaucfatic Values in Development.

be undertaken for mouldipg the present bureaucratic system for'increased performance-achievements, The study would alsohelp us adopt certain policy measures with regard to the.structural components of the bureaucracy that might be condu-cive to changes desired in the bureaucratic behaviour for promo-ting developmental tasks.

A comparison between the value orientations and attitudes oftwo sets of bureaucrats working in two different fields-develop-mental and non-developmental (if the non.development&l taskof revelrue colloction could be trcated as a continuuar of thtt oldlcolonial bureaucratic values in the post-independence period)"and in two different settings, one wbere the developmont hactaken place comparatively repidly and in other comparativelyat a lower pace would, it is hoped, provide some insights into.the kind of value constellations that impede or are conduciveto the developmental processes. It is also expected that thEstudy would enlighten us on the question whether the much,maligned buroauoacy in lndia, while largely remaining weddedto thc Webefian model of bureaucratip organization, has in fact:adapted to tho changing noeds of the situation. And finally,.the study is also supposed to enquire into the oft.repeated plea.for debureaucratizing thc administrative system for achieving.dovelopmental goals. To what exteot such steps are feasibleor conducive to the processes of development ls an enquirytbat is being presently attempted.

NOTES

See Irving SwErdlow, (ed.), Deyelopment Admlntstration i Conceplgand Problems (Syracuso, N.Y., Syracuse Universiry press, 1963), p, ix-Thero is a ipowing literaturo in the field of development administrationand administration in developing countries, Besides the $orks citod inthis cbapter, other important workr aro F.W. Riggs, (ed.), Frontiers afDevelopmenl Administration (Durham, NC, 1970) ; J.D. Montgornoryand W,J. SiffiD, (eds.), Approaches to Development , Politics Admlnbtra-tion and Change (N*t York, 1966) ; Harry Maddick, Democfey

Bureaucracy and DeveloPment 23

Decentru|izattott and Development (Bombay, 1963) ; Ralph Braibaati'(ei.\, Polittcat and Admtntstrattve Development (Durham, N.C'' DukcUniversity Press, 1969) ; James W' Bjorkman, Politlcs of Administru-

tire Alienation in India's RwaI Dewlopment Prcgrammes (Dalhi. l9?9)'

sec also A. Roy, (ed.), Development Admlnistation in the Middle East

(Beirut, 1973) ; B.K' Dey, "Buroaucracy and Developmenr : Somo

Reflectioos", Indian foarnal of Public Administation, vol' 15 (1969)'

pp. 223-43; V.A. Pai Panandiker, Development Administalion ln

Inilia (Dalhi, Macmillan, 1974), S'K' Sharma' (ed.) Dynamics ofDetelopment (Dolhi, 1977), 2 Vols, aod Goorge F. Gaat, DeYelopment

,4dministration i Concepts, Goals Methods, (Madison Wisconsio, Univer'sily of Wisconsin Press, | 979).

2 Edward W. WEidner, "Development Administtation-A Now Focus forResearch", in Ferrel Heady and Sybil Stokes, (eds.), Parers ln Compara'tive Public Ailministrctlon (Ann Arbor, Michigan, Iostitute of PublicAdministration, 1962), p. 98.

3 Edward W. Weidner, Technical Assistance in Public Adminhtrnlion .The Case for Development Administrutlon (Chicago' Public Adminis-tralion Service, 1964).

4 F.W. Riggs, Adninistrction in Developing . Countrles-Theories ofPrismatic.tociett (Boston, Houghton Mifrin Co., 1964).

5 F.W. Riggs, The Erology of Development (Bloomington, IDdiana Uni-versity Pr€os, 1964).

6 G.F. Gant, "A Notion Application of Dev€lopmeot AdmiDisttation",Publlc Poltcy, vol. 15 (1966), pp.200-1.

7 Gerald B. Caiden, The Dynamics of Public Admlnlstration t Guideline s

to Current Tran{ormation in Theory and Practice (New York, HoltRin€hart and Winston, Inc,, 1971)t p. 269.

8 Edward W. Weidnei, ted.), Development Admlnstrutlon in Asio(Durham, N.C,, Duke University Prors, 1970) p. 7.

9 See Unitcd Nations, Development Administratlon i Current Approaches

and Trends ln Public Adminlstration for National Dewlapment (New

York, Uaited Natiotrs, Departm€nt of Economic and Social Affairs"

1975), p. 21.l0 Joseph La Palombara, Bareaucracy and Politlcal Developnent (Princetoni

Princeton University Fress, 1953).

ll Kuldeep Mathur, Mobit Bhattacharva and Sudipto I\tundle, IIowBureoucracy Meets a Crisis-Three Studies (Indian Institute of PublicAdminisfatioo, New Delhi, 1975), p. 54.

12 La Palombara, n. 10.

13 Joseph La Palombara, "An Overview of Bureaucracy and Politicai

Dovelopmont", in Josoph La Palombara, (ed.,), Burcaucracy and Politi'cal Development (Princeton, N'J., Princeton Univcrsity Press' 1963)'p. 12.

14 Richard P, Taub, Bureaucrats Llnder Slress (Berkeley, University ofCalifornia Pr€ss, 1969), pp. 196-98.

24 Bureaucratle Valuet ln Development

15 La Palombara, n. 13, p. ll.16 Pstcr M. Blau and Marshal W. Mayor, Bureaueracy ln the Modern

Socre4, (New York, Random House, 1966).

17 Joseph B€nsmen and Barnard Rosenberg; Mass, Class and Bureaucracy(Englewood CIifrs, N.J., Prentice Hall, 1963).

18 For a discussion of Max Weber's theory of bureaucracy see MaxWeber, From Max Weber : Essays in Sociology, Translated and editedwith an iDtroduction by H.I{. Genb and C. Wright Mills (New York,Oxford University Press, 1946) j Max Weber, The Theory of Social andEconomic Orgonisation, Edited with an introduction by Talcott Parsons(New York, Free Pross, 1947) and Martin Albrow, Bureau$acy(London, Macmillan, 1970), and Ferrel Heady, Public Admlnistration.A Comparative Perspective (New York' Marcel Dekkee, Inc., 1969),

ch. lI.19 Bobert K. Meion, Social Theory and Social Structure (New York, The

Free Press, 1968).20 Philip Selznick, TVA and the crassroots : A Stdy in the Soclology of

Formal Organisatfar (Berkelely, University of California Press, 1949).2l Alvin W. Gouldoer, "Cosmopolitans and Locals : Towards an Analysis

of Latent Social Roles, I and II", Administrative Science Quarterly,II,3 & 4, December 1957 and March 1958.

22 Robert V. Picsthus, "Weberian vs. Welfare Bureaucracy in Tradition-al Society", Administrative Science Quarterly, June, 1961.

23 See Wafr€n Beu,ris, Organization Development (Reading, Mass.,Addison-Wesley Publishing Co., 1969); Warr€r Bennis and Pbillip E.Slatcr, The Temporary Socierl (New York, HarDer and Row, 1968);Warten Bennis, Changing Organisdtions (New Yofk, Mccraw tlillBook Co , 1966);lAlvin 'foffier, Future Shocti(Now York, Bantom Books,1970); and Howard E. McCurdy, Publia' Admtntstration i A Slnthesis(Menlo Park, Calif., Cumming's Publishing Co., 1977),W,268-295.

24 Ralph Braibanti (ed.)i, Asian Bureaucralic Systems Emergent from theBritish lmperial Tradition (Dtrham, N.C., Duke University Press, 1966).

25 Shanti Kothari atrd Ramashray R.oy, Relations betveen Polltieians andAdmlnistrators at the Dlstrict Level (Delhi, 1969) p. 155.

26 Kuldeep Mathrt, Bureauffatic Response to Development-A Study ofBlock Development Offrcer in Rajasthan and Uttar Pradesh (Delhi,National Publishing House, 1972).

27 V.A, Pai Panandikar and S.S. Kshirsagar, Bureaucracy and Develop-ment Administrat bn (New Delhi, Centre for Policy Research, 1978).

28 Ramshray Koy, Bureaucracy and Development i The Case Study ofIndian Agriculture (New Delhi, Manas Publications, 1975).

29 H.R, Chaturvedi, Bureaucracy ancl Local Community i Dlnamics ofRural Developmenl (Delhi, Allied Publishers, 1977).

30 J.N, Khosla, "Development Administration-New Dimcnsion.", Il eIndian Joumal of Public Adminlstraltoz, January-March 1966,

3l N.K. Singhi, Bureaucracy : Posltions and Percons (Role Struttures

,Eureaucrucy and DeveloPment 25

Interactlons and Value Orientations of Bureaucracy in &aiasthan\ (New

Delbi, Abhinav Publications' 19;4).

32 Prem Lata Bansal, Administratlve Developmen' ln Indla (New Delhi'

Sterling Publishcrs Pvt. Ltd,' 1974)'

:: StanleiJ. Higginbotham, Cr,ltues inConflict:The Four Faces of Indian

Burcaucracy (New York, Columbia UDiversity Press, 1975)'

34 Samuel J. Bernstein and Patrick O' tlara, Public Administratlon '

Organisatlons, People and Public Policy (New York' N'Y ' 1975)''

pp.258-62..35 rbid,36 lbid.37 rbid.38 lbid,

.39 See Aoil Bhatt, "Colonial Bureaucratic Culture and Development

Administration: Portrait of an Otd'FashioneC Indian Bur@ucrat" 'Journal of Commonweahh awl Comparatbe Politics, vol' 17 (July 1979)'

p. 159./t0 Itrid.*41 lbid.-42 lbid., pp. 169 snd 171.

The Research Desigtt

The main objective ofthe study, as stated in the earlier chapter'

is to examine the value systems of the officials at the block and

village levcls in two districts engaged in developmental and non-

developmental tasks, one oach in a good developmcnt perfor-

mance- Stat€ and another not so-good development performance'

State. Since the o6cials work within a oertain organisational'

framcwork, their performance is conditioned by the roles de'

fined in their respective departments aud by the methods of-

their operation. In coutse of time tho incumbents develop their

own perceptions about the role performance and operate in a

system conditioned by the socio-cultural and socic'economicenvironment. The effectiveness with which an ofrcial performs''

bis own role depends, ultimatoly, upon his perceptions in the

prevailing environments. The study is, therefore, intended to'aoalyse the role relationships of the incumbents aqd theirdepartures from thEir formally assigned roles. ln other words'

the study also propores to exmine the relevance of bureaucratic

theory to an understanding of bureaucratic behaviour ag

visualised in the existing context of development tasks in India'The study further aims to enquire lnto thc extent to which. tha

development orientation ofthe officials helps them in effective"

implementation of the dcvelopment programmes ar.d interalio'proposes to assess the significant factors in the personal and"

Burcaucratie Values in Development

.departmental lives of the bureaucrats which influence their

.sxercise oi authority and responsibility.

The Scope of the Study

'The study has been conducted amongst a sample of the members-of the bureaucracy engaged in developmental and primarilyaon-developmental activities. The oficials chos€n belong to theirrigation and rural electrification departments, who are engaged'in carrying out development programme in the rural sectors, andthe officials of revenue adminisftation, engaged in collection of'revenue.which has been assumed to be primarily a non.devclop-ment activity for the purpose of this study.

The agencies chosen for study bclong to two different Stateswith different stages of development. The States chosen on thebasis of this criterion are Punjab and Madhya Pradesh. Punjabis a State where considerable developmental activities have takcnplace with respect to both irrigation and electrification. It is aState which is the best irrigated ia India (75 per cent ofnetsown area .is.irrigated by all sources) and where all villages are'electrified. Madhya Pradesb, on the other hand, is a State withthe lowest percentage ofirrigation and electriflcation (9 per centof not sown area is under irrigation from all sources) and 19.5per cent villages are only electrified. These States werc purposi-vely selected for our study as examples of good and uot-so.good'performance in development functions, whereas the regulatoryactivities remain almost on the same par in both the cases.

Unlike most other States in the country, punjab gives a largershare of electric power to its farmers. All villages are electr!

-fied and the tubewell connections for irrigation pulposes arereadily given. The agriculture sector is thc largest consumer ofpower in the State. ln 1976, the annual per capita consumption.of electricity for irrigation in Punjab was 6l .K.W,, which wasthe higbest in India. Against the 77,450 electric connection fortubewells given during 1972 to 1977 in punjab, 47,429 weregiven between ltne, 1977 to F'ebruary 1979.

28

The ResearcklDesigi ' 2*

The belief that the State inherited a iast nbtwork of canals

from the British is not true. ln 1947 at the time of Indepen'

dence, the portion oflndian Punjab had only 30 per cent of the

canals of undivitled Punjab and half of its land was agriculturallypoor. The present irrigation system is mostly developed by tbe

normal investments of the State Govarnment. The per hectarc

yield of wheat, rice, cotton and potatoes in Punjab is the

highest in India today. During 1971-72, the production of'wheat rose to 56.2 lakh tonnes from a mere I lakh tonncs in,

1965-66, ln 1965-61 the Coopbrative bodies in Punjab gave

Rs. 25 crores in short-term crop loans, out of which only Rs. 4

crores was meant for fertilizers, while in 197l-72 the fertilizerdistributed on loan, increased to Rs. 34 crores. The long term,

loans for sinking tubewells by Cooperatives amounted to Rs. 3l'lakhs in 1960 which increased to Rs. 16 crores in 1972. TheNational Agricultural Cooperativo Marketing Federation ofIndia now maiotains 5,000 depots of.fertilizers for 11,000

villages, These statistics are good cnough to indicate the rateof development of Punjab in the field of agriculture. The yield'

of wheat and rice rose to 2,537 kgs. (next only to Mexico in'wheat) and 2,910 kgs. respectively per hectare in 1978. Similarproduction records have also been maintained for cotton"potatoes, sugarcane, etc,

In Madhya Pradesh, the percentage of electrified villages in1976-71 was 19.51. Upto 3lst March 1977, only 249 cities andtowns and 13,829 villages were electrified. The total number.of new consumers under irrigation during the year came to35.5 thousands in the irrigation sector. fhe State has lately'made considerable progress in rural electrification. Against ataverago (per consumer) consumption of power of 3,249 K.W.,the average per consumer consumption of power in the agri-culture sector iryas 1,075 K.W. or 33 per cent approximately.

The State lacks in a network of cau.ls. The oanals arcmainly meant for distribution of stored water accommulatedfrom the rainfall. The geographical position and configurationof cultirrable land masses are such that Madhya Pradesh is oneof the least irrigated States in India. For increasing agriculturatr

Bureaucratic Values ln Development

"production, conjunctive use of undergrourd water is a very-important factor for supplying watcr input. The Statc does nothave a good network of effestive cooperatives and sale depotsfor supplying loans for financing agricultural production and

-the oarketing of the produce, The private moncy-lenders andtraders havo still a large grip on the cultivators who are oftendoprived of their fruits of labour. The introduction of highyielding varieties of wheat and paddy and the application of

'fertilizers in assured irrigated or rainfall areas have no doubtincreased the per hectare yield of the crops under the Integla-ted Agricultural Production Plans, but the increase in totalyield of crops is very small, compared to that of Punjab.

In Madhya Pradesh, the district of Morena which has acomplex of physiological tcxture was selected for our study as

. a result of discussions with the Secretary, Department ofIrrigation & Power and Secretary, Revenue Department atBhopal and Members, State Electricity Board at Jabalpur. InMorena, there are some areas where canal irrigatiou has beenundertaken and where the Chambal Ayacut authorities havecompleted some works. This area has also been developed.through a number of rural elcctrification programmes and gainedsome prosperity. The areas around Amba, Jawra and Sabal-garh have also beeome prosperous to a varied degree, Thesefactors would be clear from the irrigation map of Morena

: given on tbe opposite page.

In Prrnjab, all the districts are welFirrigatcd and electrified.'In Patiala district, Patiala, Rajpura and Dera Basi blocks havedifferent degrees of irrigation. Villages by the side of theGrand Trunk Road in Dera Basi block have higher elevation

. and therefore canal irr.igation has not been extended to theseareas. Of course, all the villages in patiala district are electri-fi:d but the number of rural consumers of power is vet toincrease in ertain areas. The irrigation map oi patiala on p"g,32 illustrates these facts.

The development pfocess in thc sectoral dimensions of irriga_. t tion and eleetricity in Morena and patiala districts, as elsewhere

-30

II

,:)

iir

:

I

I

t

'The Research Dedgtt 33

in India, has been a continuous ono' Although for purposes

.iin" -itav "mcials

from these soctors are treat€d as officials

oerformiog deoelopment tasks and ofrcials - from tbe Revenue

#ilffi;;t cslntiailv involved in non'dovelopnental *orL*

The Revonuc departm€nt of the State Governments have also

t"* "tritfi rni promotion of development activities in various

-"* it addilion to their revenue collection work' For instance'

;;;;t;;;; loans to. the fatmers relating to asricultural inputs

iik.t;; *"t.., t rtilize., pesticide and power' a village Patwari'

. ll.iii"n_iraar or a Tehsitdar is stilt a key person. Therefore

Jo"n foo.tioouries have also some involvement in the develop'

mont activities. The distinction made betwoen of8cials engaged

a.G"ptti,rf or non-developmental tasks i3 thus..somewhat

,JiUitt"ty with a vicw to differentiate between tbeir value

systems,

Selection of the Unlts for StudY

As stated earlier, the two districts of Morena and Patiala srcrg

.;i";;t;t a rssult of discussions with the ofrcials at the state

l-.".i. af,"t selection of districts' three blocks in each of the

two States were solectcd on the followiog principles'

The district of Morona in the State of Madhya Pradesh has

l0 blocks and tho position of blocks in respect to rural electri-

fcation is as on Page 34.,

In the selection of the three bloclcs for our study' with good

.medium and poor stages of development, the criterion of 660/"

..and above of olectrified and irrigated villages in a block

was taken as the well-developed bl'ock' A block with 33%

-oi l"tS of eiectrified aod irrigated villages was taken to be

io th" poo, stage of development. A block having between 33%

"ana a6o/" of electrified and irrigatcd villages was considered

to be one with medium dovelopment. With these criteria''three blocks, Amba, Jawra and Sabalgarh wcre setected for our-study. Theso three blocks also satisfied the criteria of develop-

..ot io irrigation. Amba Blook is very well irrigated whilc

Jawra Block is onty partly irrigated. Sabatgarh Block is ill-

34 B ureaucratic Vahies in'Delelopment

,Sr,

No.Block Total

villagesElectrified Perc.ntagevillages

l.2.

4.

6.

7.

8.

9.

10.

Porsha

Amba

Morena

Jawra

Pahargarh

Sabalgarh

Kailaresh

VijaipurSheopur

Karhal

73

7l180

99

127

t24

46

27

28

49

38

t49

95

87

39

46

22

JI

47

24

6

I

69

62

74

99

r54

213

109

Total 1249 4t3

SourcB: Executivc Engineer, M,P. Electricity Board, Morena.

irrigated. Thus Amba, Jawra and Sabalgarh blocks were takenas repr€sentativcs of good; medium and poor developmentalperformance blocks ln the Morena district of Madhya pradesh.

Applying tho samc criteria of developmcnt so far as irrigationand electrification were concerncd, three villages in each ofthesc blocks were selected for dctailed study. These villages.were chosen somewhat subjectively.on the basis of discussions.with block lcvel ofrcers, ae thc rolevant statistics about theirrigation and clectrification programmes were noi available forall villages in tho selected blocks. Good, medium and poor.pcrformancc villagos, in fact, fopresent a comparative concept.In a good performance block a good performance villagc meanra village well irrigated and welFelectrffied, while mediul perfor-mance village meaut a village which is only partly irrigated andpartly electrified, A poor performance village in a gJoC Utockmoant a village where irrigation and/or o'iectricitl facilitics, I

The Research Design

are very meagrely available or not available at all,. although itis geographically located within th€ jurisdiction of a block, onethird or less of which is irrigated and electrificd. Similarly, in apoor performance blook where electricity or irrigation facilitiesare available in <ine-third of th.' area or .less, a good perfor.mance village was one which shared these development benefrtsto the sams cxtent. A medium performance village in a poorperformanc"e block was one where electricity and/or irrigationwas available only to a small portion of the village. A poorperformance village in a poor performance block was one whereelectricity and/or irrigation facilities wor€ not available. Withthose criteria the villages that were chosen for study in thesclected blocks of Morena district in Madhya Pradesh were:

35

IAmba (goodperJbrmanceblock)

IIJawra (mediumperformanceblock)

IIISabalgarh(poor perfor-mance block)

t.

,,

3.

l.

3.

L

2.

J.

Good village-Thara

Mediumvillage-Bharatpura

Poor village-Paikapura

Good village-Chhaira

Mediumvillagc-Belgaon

Poor village-Manjra

Good village-Sunhera

Mediumvillage-Lakhanjhari

Poor village-Rampahari

The same methodology was apptied in the selection of blocksand villages in thc district of Patiala in the State of Punjab. ThePatiala block is very well irrigated by the Det-work of Punjabirrigation canal system as well as by the Bhakra-Nangal canals.

Patiala is also the hcadquarters of the Punjab State EtectricityBoard. Although all the villages of Punjab are electrified,the numbcr of agricultural connections differe from area to'area. In Patiala block the agricultural connections are very

common. As tbis block fulfils our criteria for good pcrfor-

36 Burcaucratic Yaluet in Development

mance, it was tak€n as representative for a good performance

block. The Rajpura block is well-elcctrified (although notto the extent as Patiala block) and only a portion of it is

irrigated. This block was, therefote, taken as representativcof the medium performancc blocks. Dera basi block which isnear the Grand Trunk Road between Chandigarh and Rajpurahas little irrigation facilities but some elcctrification work bas

been carried out, It was, therefore, chosen as a r€presentativeof poor performance blocks.

The same criteria used for seiection of good, medium andpoor performance villages in the Morena district of MadhyaPradesh were also applied for seleotion of villages in the tbreeblocks of the Patiala district in Punjab also. The villages.ultimatelv selected in the Patiala district were as follows:

IPatialn (goodperformanceblock)

IIRajpura (mediunt

performanceblock)

IIIDera Basi (poorperformance

block)

2.

t. Good Village - |.Re was

Medium Village-2.Khera Jatta

3. Poor Village- 3.Old Sular

Good Village -Chhat

Medium Village-Paher

Poor Village-Basi Sikha

1. Good Village '-Ghanoune

2. Mediumvillage.-Bankberpur

3. Poor Village-Mohmedpur

Universe of Oficials Selected for Study

The universe of ofrcials working for lrrigation, Blectricity andRevenue departments ofthe Madhya Pradesh Government andpostod in the headquarters of the district of Morena and thcthree selected blocks consisted of 92 officers at the time of theSurvey. These officers at the district and at selected blockleadquarters consisted of the Executive and Assistant Engineors

lIIe Rescarch Design 37

-and sub*ngineers, Revenue Sub'Divisional OfEcers (SDOs)'

Tehsildars, and Naib Tehsildars' Out of thesc 92 ofrcors, 88

-were available for interviews and-ctructured questionnaires were

.canvassod alter personal discussioirs. Thc overall position of

_. ,;the three types of officials intorviewed is given ia Table 2'1'

- The universe of officials working for the two developmental

-and one non-devclopmental departments of the Governmcnt of-rPunjab an$ posted in Patiala and two other blocks consisted of

'136 officers. The city of Patiala has the largest concentration

of officers on account of the shortage of acoommodation at.other block headquarters. The rovenue work. of Dera Basi-block was, in fact, managed by officers posted at Rajpura.On account of the reorganisation of the Revenue Departmentof Ponjab, a number of promotions and transfors were taking

TABLE 2.1

Number of Ofrcials Interviewed in Morena by Department andPlaces of Postine

Place of Posting DepartmentsElecitricity Irrigation Revenue Total

Morena Headquarters

Amba Block

Jawra Block

Sabalgarh Bloch

Total

4

4

3

t13

9

6

20

t6

51

5

6

8

24

l8

15

29

26

88

place at the time of the survey. The number of officialsbelonging to the Revenue Department, that wc.could contact,was, therefore, somewhat less. The total number of officials of'the Government of Punjab interviewed was "thus 124. The dis.,tribution of the thrce types of the officials in Punjab who were:interviewed during the enquiry was as follows:

Number of Officials

Bureaucrat ic Yalues tn Development

TABLE 2.2

Iuterviewed in Patiala by Departments andPlaces of Posting

Place of Posting DepartmentsElectticity Itigatlon Revenue Total

Patiala tleadquarters andBlock

Rajpura BlockDera Basi Block

Total

32

24

l874

JI

8

39

8

3

l1

?l35

l8t24

tRevenue officers posted at Rajpura do the revenue work forDera Basi Block.

Sanple of Villagers Interviewed

In addition to the officials, a numbor of beneficiaries irr the.selected villages were also interviewed on a structured qu€stion-naire in order to know their reactions and attitudes to the valuesystems of the ofrcials in their dealings with them. The tablebelow gif.bs the number of villdgdrs iiiteiiiCw;d inl6e niiEselecte d villages each of the Morena and Patiala districrc.

TABLE2.3Districts

Morena

Jawra Sabalgarh PatialaBlock Block Block

Rajpura Dera BasiBlock Bloclc

Patiaia

AmboBIock

Thara Chhara Sunhera20 18 l5

Bharatpura Belgaom Lakhanjhari Khera Jatti Pahar Bankh-t9 2t 20

Paikapura Manjra Rampehari19 20 22

Rewas Chhat Ghanoune,20 20 20

20 20 erpur 20Old Sular Basi Sikha Mohmed-

20 20 pur 20

The Research Deslgn

Thc villagers contacted were eithor benefioiaries of developmentlprogrammes of irrigation and/or rural clectrification or non-teneficiaries but knowledgeable persons in the areas. The totalnumber of villagers interviewed was L74 in the Morena districtand 180 in the Patiala district, giving an average of ,19 and 20'schedules respectively per village.

'The Design of Questionnaires

A study of valuc-orientation of officials engaged in develop-'mental and non-developmental tasks]is important for an analysisof buteaucratic performanc;. Values are enduring long-termgoals directing and regulating bohaviour patterns and adapt..ations. Values refer to thosc aspects of individual's orientationwrich commit him to ths observation of certain rules, various'standards and criteria of selection of certain courses of actions."Such orientation is not random but tends to srow out of a.system having some organised set of rules. Values may beexplicit or implicit, and restrictive to an individual. In otherwords, they enable bim. to tako actions in terms of certain€valuative standards.

Since the attainment of independence the value system of thesociety in Indiahas been undergoing rapid changes, A numberof complex, interwoven and diverse factors are responsible for,it. In relatioo to the sub-systom of bureaucracy, the officials',commitment to the nature of value-orientation assumes a great.significance. The problem of bureaucratic capabilities and pre-paredness for development tasks is intimately conneced with theproblems of its values, orientation and behaviour. This study

'is, therefore, concerned with a comparative analysis of values,,perceptions, attitudes, orientation and behaviour ol tho bureau-,cracy in India engaged in developmcntal aod non-developmental{traditional) tasks (assuming, of course, that such a distinction€an be maintained structurally). The questionnair€, is thusdesigned to provide scope for analysing the bureaucratic capa-bilities and preparedness for dovelopmental tasks as also to{rnderstand tho change in the character of bureaucracy sinco

39

4,0 Bur eaucrallc Values in Development

Independence and to examine if the Indian bureaucracy ctill, by'and large, shares the same values and role-perceptions.

Values Selected for Enquiry

Kee ping thesc considerations in mind, the scale and items in',

the questionnaire were designed to probe into the following sets'"

of values and characteristics otit of a large constellation ofrvalues that the ofrcials possess in a bureaucratic structure.

S t ruc tur al Character is t ics

l. Hierarchy of AuthoritY2. Division of Labour3. System of Rules4. Selection on Merit5. Inpersonality

Social Per sonal Values

l. Integrity of Character2, Equality of Individuals

Socio-cultural Value

1. Caste/Class Consciousness

S ocio- adminlstrat i v e Value s

Status Consciousness

Behavioural Values

L Rationality2. Superiority/Inferiority Complex3. Change/Result Orientation4. Participative Decision-making

For investigating relationship betweon tho social background

II

III

IV

V

Section ISection lISection IIIrSection IV"Section V

S€ction VI.

Section VII{

Section VIlft

Section lX.

The Research Design

of the officials ald their role perceptions and for inquiry intofactors like education, training, work experience, age, income'

class of jobs, promotions received, exposure to larger environ-

ment having varied influences on their accomplishing develop-

meotal or non{evelopme ntal tasks, .some questions on persona}

particulars were incorporated in the questionnaire fieant for tno

officials (Sections X and XI of the questionnaire in Appendix II).

For the measurement ol the degree of bureaucratisation we

had to dovelop Likert type scales for the various charactsristics

of bureaucracy. To avoid the problem of summated rating inscales measuting the same concept and the increase or decrease

in the variation in the possible scores, coding from "strongly

agree" to "strongly disagree" instead of merely "agtee or dis-uEi.J' *u. 'ntroi'iced .6 that u higher scorb on a particular

item indicated stronger agreement or disagreement with thc

attitude being scaled. The medium scores thus reffected diffe-

rences from the highest and lowest groups. The irrobable anti"cipated replies were given in codes which could be used

manually or directly for mechanical tabulation. Some of thequostions were, however' negatively framed to facilitate the

spontaneity of replies, say for instance the question 1.2

(Appendix II). It was asked if the respondent official couldtake action at his discretion immediately aftor the question 1.1

where the rcspondent was askeC if he was guidcd by his senior

officers for taking a decision. Sirnilarly, after asking the res-

ponclent if there was any clear.cut division between his and hie

senior/junior officers'duties (questions 2.1 and 2.2) it was again

asked if the respondent had to do things performed by his supe'

rior officers at his level (questions 2.4 and 2.5), A number ofsucb positively and negatively oriented questions were includertin the officials' schedule. This was only for facilitating clear-cut replies with the least possible thinking and hesitation.

Developmental cfforts on the basis of the felt needs ol'thopeople in a clearly de8ned geographical area need the activeinvolvement of the people. The developmcrtal outlook of thepeople can give some concrete shape to programme implemen'tation. In order that the officials are assured of people's

4L,

42 Bureaucrutic Values in Ilevelopment

booperation in the development programme, it was felt trecessarythat the people in villages should be enquired as to what extentdid they appreciate the officials' actions, role performance andcapabilities. Thus a villager's schedule was also designed forthe eramination of thc people's perc:ptions of the officials,performance (Appendix III),

Section I of the Villagers' Schedule started with the enquiryinto the nrost important agricultural development programmeand the frequent natural calamities in the locality that the peoplehad to face. Questions on administrative inefficiency anddelay, inadequate staff, insufficient funds or people's coopera-tion etc. wero included in this cluster. Questions about rbgular/interrupted supply of irrigation water and power, state of main-tenance and the availability of agricultural spare parts locallyformed the subject matter in Section II. Questions o n thebehaviour of officials and their aptitude for development workwere put in Section III. Questions in Section IV elicited infor-mation about personal particulars of the rural respondents. Thereplies expected in five scales of values were all coded.

A dmi ni st ra t ion of Que s t io n n aire s

After our meetings with the oflcers of lruigation, Blectricityand Revenuc Dcpartments, we approached the officers selectedfor interviews through their heads to get responscs on the off-cials' schedules. The respondents were all cducated and oughtnot to have had any difficulty in answering the self-explanatoryqucstions. But our experience was otherwise. As the response toour request was very poof, we had, ultimately to afrange per-sonal meetings with them for getting responses to the officials'schedule.

Diffculties

In the bcginning, there were some difficulties, both on the partsof the offcials and the villagers to respond €xactly to the intensity scales which the Likert scales provide for a useful analysisof agsociation between different variables. This happened parti-

The Research Design

cularly during the filting up of the viltagers' schedules. The

levels of rating which created confusion in the minds of thevillagers was resolved after some time through personal dis-.cussion w th the villagers. The ofrcials, however, had nodifficulty in grading their replies.

'The St,uctural Linkages of the Field Oflcials

It will not be out of place to mention some of the broadIinkages of tho field ofrcials that we interviewed for the purpose.of our study with their parent departments at the head-.quarters for obtaining a proper perspeotive of their positions.

In Madhya Pradesh the offce of the Superintending Engineer.'(Irrigation) responsible for development of thE Chambal AyacutProject is situdtod at Gwalior. The irrigation officers and

'staff in the Morena district worh undcr this SuperintendingEngineet (lrrigation). Ao Executive Engineer (Irrigation), withhis Assistant Engineers and other staff, posted at the head'

.quarters of the Morena district is responsible for th€ construc'

tion, maintenance and distribution of irrigation water. As more

:irrigation water became available on account of the develop'ment of the canal network, a different irrigation .cirole under an

Executive Engineer, assisted by Assistnnt Engineers and othqr'technical staff, was created and housed at ttre headquarters of"the Jawra block.

Similarly the development of power, transmission and distri'bution in the Morena district is under the chargc of an

iExecutive Engineer (Power) posted at the headquarters of theMorena district. He works under the supervision and guidance.of a Superintending Engineer of the Madhya Pradesb StateiElectricity Board stationed at Gwalior and is assisted by Assis'

tant Engineers and other technical staff Another division in'charge of an Executive Engineer has been created at Sabalgathunder the Superintending Engineor, Gwalior on account of theincreased electrification work for making conjunctive use ofunderground water resources and for industrialisation. The staffis housed at Vidyut Colony, Sabalgarh from where it operates.

43

44 Bureaucratic Values in Develoommt

The Revenue Department officers posted at Morena andother block headquarters work under the Collector of Morena.District at Morena subject to the overall supervision of the'Divisional Commissioner, Chambal Division,

The Headquarters of the Chief Engineer (Irrigation), Punjab'is at Chandigarh, The Offices of two Superintending Engineers,one for Irrigation Branch of the Governnent of Punjab andanother for Bhakra Main Canal System, assisted by a r,umberof Executive Engineers, Assistant Engineers and technicatstaff, are located at Patiala. t he engineers and overseers are,however, responsible for maintenance and distribution of water..line-w ise and canal-wise.

As already mentioned, the headquarters of the Punjab StateElectricity Board is located at Patiala. Tbe SupsrintendingEngineer of the Patiala Circle works under the Chief Engineer(Soutb Punjab) posted at Patiala. The Superintending Engineerhas a number ol Executive Engineers supported by the powerstaff stationed at Patiala and Rajpura. The maintenance,generation and distribution of power in the selected block ofDera Basi is done from Rajpura. However, for depositing the.electricity dues, villagers have to travcl long distances to theHead Quarters to avoid thc possibilitv of the disconnection ofelectric supply.

The officers of the Revenue Department, Patiala and Rajpura,work under the supervision of the Deputy Commissioner,Patiala, located at Patiala.

The Field llork

During the State level discussions at Bhopal, the AdditionalChief Secretary to the Madhya Pradesh Government, Secrotary,Departmcnt of Irrigation and Power and Secretary, Departmentof Revenue were reguested to issue instructions to tbe localolficers in Morena to render assistancs to our research team. TheDivisional Commissioner, Chambal and the Co ector, Morenareceived instructions from Bhopal to see that the revenua

The Research Deslgn 45

department officors posted in Morena oxtended all coop'eration

to our study team in the field rvork. Similar instructions were

issued by tho State Elsotricity Board, Jabalpur to tho Supcrin-tending Engineer (Power), Gwalior and Executive Bngineer(Power) and Morona and Sabalgarh. The Chief Engineer'(Irrigation), Bhopal and Superintending Engineer (Irrigation)'.Gwalior also issued instructions to the Executive Engineers(Irrigation) at Morena and Jawra which facilitated our feldinvestigltion work.

At our instance the Chief Secretary to ths Government ofPunjab requested the Chairman, State Electricity Board, Patiala'the Secretary, Department of Revenue, Govcrnment of Punjab"

Chandigarh, and the Chief Eogineer (lrrigation), Chandigarh toextend all cooperation in our survey work. Thdse officers

in turn requcstod the looal officors of the three departmeDtcposted at Patiala to render facilitios for the survey. The fieldwork in Patiala was thus facilitated en account of the coopera.tion receivcd from all the dopartmental officers.

The field survcy in the district of Moiena was 'conductod inJanuary 1979. After meeting tbe senior officers of the depart*ments of Electricity, Irrigatiiin and Revenueo the offlcials'schedules.for 6lling were distributed amongst the various officersof the Madhya Pradosh Government. Subsequently appoint-ments had to be made with the officials (as they were mostlyfreld offioers having touring dutios) and the schedules were gof,

filled after iotcrvicws and discussions, The same procedure was

followed in thc fcld survey work in Patiala district in February1979. Thereialso the officials' schedules were got comploted aftorinterviewg and discuesions on tho appointed days. Similar fieldsurvoys wero conductcd in the headquarters, sglccted blocks andvillages oftho:district of Patiala'in Punjab during February 1979.

At the distribt, block and village levels, discussions were held

with officials and non-offncials like the District Collector/DeputfCommissioner, District Revcnue Officer, Project Agriculture-Oliicer for Intensive Area Development, Chairman, ZilaParishad, Panchayat Offioer, President of District Cooperative

46 Bureaucratic Values in,Development

'Unions, etc., who gave us mase of information rclating to the

'development and non-development prograromes of the area,-and the attitudes of the officers and citizeos towards dewlopment etc.

Discussions with the villagers in the remote areas of the'selected districts offered good opportunities to know about the"desired needs ofthe people in the area, the shortcomings andadvantages of development plans, the cooperation ofrered by'the people to the ofrcials in implemcnting developmentalplans and value perceptions about tho ofrcials. . Village levelworkers, school teachers, Tehsildarr, Naib Tehsildars, andpersoDs like political leaders, beneficiaries of developmentalactivitiesland other non-beneficiarics (but knowlodgeabtepersons) werc of gr€at help io this exercise.

-Pre-testing of S chedules

During the first round of the field survey, thc draft question.naires for (a) the oftoiatr and (b) villagers were prc.tested. Anumber of officials proposed to bo interviewed were given

"copies of the rclevant questionnaircs. The questionnaire wasrevised in the light ol oommcnts givcn by the ofroials in thesample.

Although some doubts were exprcssed about the retention offvc sceler of values for offcials' perceptions, the number of'qcales was not reduced, But on account of inadeouate entriesin thc scale values of replies, throe scales of values were takenfor tabulatiotr, The two extreme values on cach side were-combined while the middle values were retained intact.With this proccss thc tabulation of data became moreneaningful.

Regarding the quertionnaire for villagers, the pre.testing of'schedules enahled us to delete and add romc qiestions to make'thc quertionnaire oore comprchensive, But at the tabulationstagc retcntion of fivc scale valuer for eaclr reply seered to be'supetfluous on account of inadequate frequenciec in some cells

The Research Design

of extreme value, Ultimately thehad to be restricterl to three value

Margin of Errors

4T

analysis of village schedules"scales.

The offioials' schedules were canvassed on a complete enumera-tion basis as the number of available officials according to theproposed schemo ofthe survey was only 212 in the two districtsof tle two States. The question of margin of error did not,.therefore, arise.

The most important numerical entries in the villagers''schedule wero (a) age and (b) income. Income figures, as is.

well-known, arc not free either from under-estimation or over'estimation. As propor representation was given to large,medium and small farmers and landless labourers while visit-ing a village, the variance of mean income was found to be high.and erratic. The mean and variance of age of selectcd random,villagers were calculated in respect of sampled villagers for one .

village each in the two states. The coefficient of variation forthis characteristic for 18 villagers in the Morena district and.

20 villagers in the Patiala district was found to be less th'rn 4..Thus, on an average, a sample of 19 and 20 villagers in theMorena and Patiala districts rospectively was consideredadequate to keep the margin of error within tolerable.limits.

It is with these limitations that the work of the survey was

completed during December 1978-February 1979, the resultsof which were tabulated. The interpretations drawn from thevarious statistics and tables are analysed within the frameworkof our hypothoses and objectives.

3

The Bureaucracv at the GrassRoot Level : A Study of its

Proflle and Job Satisfaction

trn orler to [nclerstand the value system of the officials at thegrass root level in India it is essontial that their personal profile.and socio-economic background be analysed fully. This chapteris devotod to an analysis of the personal characteristics of the.officials that we had interviewed for our study.

The investigation into personal profiles of the officials is,ao irnportant elcment of the study as it provides an occasionfor an analysis of their attitudes and Lehaviour in the porspec-dive of their social environment. It is also expected that thebackground ioformation about the offcials may further reveal-the capabilties and potentialities of thc officials for developmen.tal tasks,

Profiles of the official.respondents was examined in terms of,age, marital status, number of dependents, rural/urban back-.ground, educatiorr, parental occupation and economis class.origin, class of present service, promotion received, etc.

.Age of Classification

'Table'A'of Appeodix I gives the ilistribution of respondentsby age-groups, State and Class of service, It may bc seen that

imoro than half (52 per cent) of the respondents of our study

50 Bureauuatic Yalues ln Development

belonged to the middle age'group 26-35 years and about another'

one.third (33.5%\ belonged to thc higher middle age-group

36.45 years and thc remaining rcspondents belonged cither to"

tho old (46-58 years) or young (below 25 years) categories.

Thc age distribution of the relpondents acoording to age-groupt.

in tcrms of percentages was as follows:

TABLE 3.I

Distribution of officials by Age Groups and Class of Service.(Percentage)

Age GroupsQlsss I Totat

Class of ServiceClass II Class III

4.2

9.9

7.0

9.5

l

J.

1.

25 years and below(young)

26-35 years(Middlc aged)

36-45 ycars(Higher Middle)

46 yearc & above(old)

47.4

26.3

26,3

63.r

30.8

6.1

47.6 52.4

35.9 33.5

Total 100.00 100.00 100.00 100.00,(N='le) (N:65) (N:128) (N:212)

Mean age-Class I-38.4 years

Class II-34.4 years

. Class III-35.2 yearsTotal-35,3 ycars

It is clcar from the above table that 86 per cent of officers.cngaged in developmental activities in both the developmental,dcpartmcnrs of electricity and irrigation and the non-develop-mental dcpartment of revenue administration oosted in Morenaand Patiala districts belongcd to the age-group of 26-45 ycars-

.A Study ln Profiile and Job Sotisluction 5l

The highest pcrcentage viz 63 of Class II officers belon-ged to the ag6 group, 26-35 ycars, The lext highest percentage*w€ro in the same age-group of Class I and Class III offi""r*(47 per cent each). Thus the civil servents in the developmental,ald non.developmental bureaucracy were quite young. How-cvcr, the mean age of Class I offccls was somewhat higher at38.4 yeare. This was so beoause according to the respondentsthe main criterion of promotion and advancement of career intheir departments was seniority and many incumbents occupy_ing Class I positions had been promoted as such.

Theaverage age of the omcers of Class II and III cadresas also,oftho whole group varied between 3"+ to 35 years.Analysing tbe details of age composition of developmental andnon.developmental personuel in Morena and patiala we fiindthe peculiarities shown in the fo owing table.

TABLE 3.2

Age Conposition of Developmental and Non-developmentalpersonnel by Districts.

(Parcentage)

Age GroupsMorena

DAtoF- N;;mental detelop-

mentalmental lopmental

t.

2.

?

4.

25 years andbelow

26.35 yearc

36-45 years

46 ycars andabovc

o.J

54.7

3t,2

7.8

8.3

20.8

37.6

33.3

)7

58.3

34.s

4,5

45.4

27.3

27,3

100.0 100.0(N:64) (N:2a)

100.0 100.0(N:113) (N:ll)

Tolal

52 B reaucratic Values in pgvelopment

Tbe largest conccntration of ofrcials engaged in developmental

work in both Morena and Patisla belongs lo the age group,

26.35 years and.the proportion excreds 50 per cent' In fact186-93 p€r cent of devolopment pqsonnel in both the States comc

from the age group 26-45 years' The officials of the non'ceve-

{opment departments of both the States of Madhya Pradesh

ancl Punjab seem to 'belong to higher age group. In Moreira

more than one-third officials each of the non-developmenlal

d€partment belong to the two highest age-groups. viz,' 36'45years and 46 years and above. Similarly in Patiala more than

one-fourth each of officets of the non'development department

of Revenue belong to the two highest age groups' although 45

per cent of such officets wete comparatively young belonging

to the age-group of 26-35 years. This showed that tbc r€ctuit-

ment of tcchnical personnel for the development departments

!vas, of late, heavy and fast while the recruitment to non'deve-

lopmental jobs was lagging far behind. In fact the expansion

of tbe Revenue departments of the two State governments was

less on account of reform in land revenue laws and the Stato

assuming directly the responsibility of collecting revenue from,the ownerr of land. But compared to the expansion of develop'

mental activities of the two Stat€s and heavy recruitmerit ofdevelopment personnel, the non-devclopment dgpartmeot failedto otfer increasing opportunities of ncruitment and promotionfo older staff. This characteriitic was more conspicuous inMadhya Pradesh than in Punjab

Rural lUrban Background

.A popular belief prevailing in academic circles is that the

"ofrcials who have spent a good part of their lives in rural areas

undcrstand better the problems of rural development. We'wanted to examine how far the rural or irnall town backgroundwas responsible for the existencc of such an outlook amongstthe officials choson for our study. For this purposc, we put a

question to our cfrcial respondents enquiring about their.maximum place of stay until thoy attended the age of upto20 ycars. Thc places of their rcsidence were divided into fivccategories, (i) village with 5000 p€oplc or less (rural), (ii) a towl .

.A Study in Profile and Job Satisfaction 53

with a population between 5,000 and 10,000 (small town),.{iii) a town with a popularion between 10,000 and 1,00,000-(big town), (iv) a city with a population betweon 1,00,000 and10,00,000 (city) and (v) a metropolitan city with more than10,00,000 people (metropolitan city), Thc replies wcre analysed

.and are given below while the main inrbrmation is shown atTablc 'B'(Appendix I).

TABLE 3,3

Distribution of Officials by Classes of Service and MaximumTime Lived Upto 20 Years of Age

Percentage

Lived. M aximumTime Upto 20Years of Age Class I Class II Class III Total

l.2.

3.

5.

Rural areas

Small townBig townCityMetropolitao City

5.3

57.9

36.8

l;52.3

26.1

10.8

26.6

32.0

23.4

12.5

5.5

16.0

23.r

35.4

18.9

6.6

Total i00.00 100.00 100.00(N-re) (N:6s) (N:128)

100.00(N-212)

More than one-third of tho respondents (35 per cent) arcstated to have spent their adolescent period in big towns and a

'littlo less than one.fourth (23 per cent) of the respondents spenttheir early formativc lives in a small town. In the absence of highschools and technical schools and colleges in villages and smalltowns, they had to spend their school/college lives in bigger{owns. The respondents felt that this exposure to urbansurroundings in a way broadened their outlook and ultimately.helped thom to carry out their tasks.

The majority of higher civil servants (58 per cent) had expos-rrres to big.towns followed by one-third (36 per cent) of officeisrbrought up in an atmosphoro of a city life. Thir pattern was

54 Bureauc rat ic Va lues in D evelop rn ent

noticed among Class III officers also. In Class III positions'-

we find all types of background cbaracteristics, having leaning

toivards small towos and villages' In the course .of interviews'

it was discovcred that migration to towns of smaller and bigger'

sizes was necessary for availing educational facilities in bighschools and engincering schools/colleges' Any way, the presenl

set of officials were not completely found cut off fromthe rural surroundings, An important feature in the social,

background variables in the rural/urban cxposures of the ofr-'csrs as revealed by Table 3:2, is that in Class III services of the'

state governments, ofrcers of botb the developmental and non-dovelopmental departments had the background of rural, semi-

rural and urban areas. As is evident fronr. a comparison ofcorresponding percentages, the Class II officers of the State ser.

vice had groat€r exposure to urban areas compared to theClass III service officers. 'I'he Class I officers of course hadgreater exposure to towns/cities, Examining the details of rural-urban background of the officers interviewed in Morena andrPatiala ws find the following particulars'

TABLE 3.4

Rurat/Urban Background of Officers' Engaged in Devclop-mental aod Non-developmental Functions by Districts

(Percentage)

R.rallUrban

Background.

Morena Patiala

Develop- Non-deve-mental lopmental

Dnelop- Non-deve-mental lopmental

t.)

4.

Rurel areae

Small townBig townCityMetropolitanCity

29.7

20.3

2s.0

17.0

7.8

t6.7

16.7

45.8

20.8

5.3

24.2

41.6

2r.l

7.8

45.s

45.5

9.0

Total 100,0 100 0(N:64) (N:24)

100.0 100.0(N:ll3) (N:Il)

,tl Study in Profile andtob Satisfaction 5j

We find that a large p€rcentago of developmental personneltad the background of a big town (25 por cent in Morena and42 pet cent in Patiala) while the lowest percentage belonged tometropolitan towns. Rural areas, howover, offered the highestpercentage of development ofrcials in Morena. Both the States'do not have a melropolitan city and the officers with the back-ground of a metropolitan city wcre educated outside their'States. In Patiala officers having rural background and enga-'ged in developmental activities wete very few. In Madhya?radesh and Punjab it was found that the ofrcials engaged indevelopmental activites came in good numbers from small townsand cities where technical institutions in both the States wero

'locatdd.

In both the states of Madhya Pradosh and Punjab, the per-€entage of officers engaged in non-developmental work was

'close to 46. However, the background of these officials differedin the two states. While in Madhya Pradesh thoy had thebackground of big towns, in Punjab the same officErs had thebackgound of rural areas and small towns.

Xarental Occupation

The parental occupations of the official respondents are given inTable 'C' in Appendix I. The most numerous family occupa-tions wcre reportcd to be service and agriculture. A largemajority of respondents in Class III service of the Government.of Madhya Pradesh came from agricultural households while asajority. of respondents in Class II service reported their?arents' occupation as service, Similarly, respondents in Class IIIservice of the Government of Punjab came mostly from service,and agriculture class of people. In fact, Punjab has a largesectioo oI population ia the military service. Thus service ingeneral was reported to be the main occupation of the parents

of the ofrcials in all thc three categories of respondeqts,Moreover children from the families with background of scrviewere more attracted towards the government servic€. Agriculturebeing the occupation of moro than half of the population oflwo States, the lower cadres of servioe class are manned by

56 Bureaucratic V alues in Development

people mainly ftom this parental occupation. The distributiorvof the parental occupations of respondents, as revealed by ourenquiry, was as follows:

TABLB 3.5

Parental Occupation by Class of Service(Percentage)

Service

Parental occupation Class I Class II Class III Tbtal

l,

4.

5.

Agriculture

I;dustry

Business

Profersion

Service

31;l

5.0

2l.l21.1

21.1

15.4

4.6

13.9

13.9

52.2

A1 '

?.0

t -r. J

1.0

30.5

33.0

6.11]t4

10.4

36.3

Total 100.0 100.0(N:le) (N:6s)

100.0 100.0(N:128) (N:212)

The above table reveals that more than one.third (36 porcent) of the official respondents belonged to the families withservice occupations. The incumbent were perhaps attracted bysorvice occupations of their fathers. The occupation of service,includes both the civil and military jobs. The respondents inPatiala were widely found to belong to families with military.service. The next highest group of respondents came irom thefamilies having tho agricultural occupations. Over tbe years,the State of Punjab had made good prog..r, in the field ofagriculture which had become a good commercial occupation of,a large number of families in patiala. In comparison to this,however, in Madhya Pradesh, because of the abience of otheroccupations, agriculture is still the mainstay of the economy,although there is a trend among the people to move away fromthe profession of agriculture marnly as a subsistence economyand to get settlod io other sectors of ocoupationS. Thus the

A Stutly ln Frofrle and lob Satlsfaction 57

officers in the Class III category of both the States belongedoverwhelmingly to the parental occupation of agriculturists and

the servico class. Our findings also support the conclusions ofother similar studies. For instance in their study, V.A. Pai

Panandiker and S.S. Kshirsagarl have found the highest per-

centagos of parental occupations of bureaucrats havinggovernment service which varied from 19 to 36 per cent and'

agricultural occupations which varied from ll to 5l per cefltaccording to the types of reporting agencies. Kuldeep Mathurtfound agriculturo as the main parental 'occupation of the BlockDevelopmcnt Officers of Rajasthao and Uttar Pradssh. H.R-Chaturvedis also found agriculturo to be the parental occupationof l7 and 25 per cent of the development officers working.respectively at the district and block levels of Panchayati Raiadministration in Rajasthan, while 38 and 25 per cent of suchofficers working at the district and block levels respectively hadthe parental background of government service. V. Subra-maniao's studya of I.F.S./LA.S./I.P.S,/I.A.A.S. officers foue&'3J and 14 per cent of such ofrcers having government serviceand farming occupations respectively. Similarly, in otherdeveloging countries like Bgypt and Pakistan civil servant$-

belonged mainly to families having such occupations. MorroeBerger's studys in Egypt and Muneer Ahmed's studyo inPakistan showed that about 40 and 66 per cent respectively ofthe civil servants in their countries were drawn from familiesofthe govcrnment servaots. However, tbe opposite is the case

in the U.K. where 10 per cent of the senior civll servants werefound to bave parents in the civil services.T If we look into the,

break-up of percentagos of the officers of Madhya Pradssh andPunjab (Table 3.6), so far as their parental occupations areconcerned, we find agriculture and services (which includomilitary services in Punjab) contributing about three-fourths of

' the personnel engaged in developmental activities. The maxi-.mum number of officials in Madhya Pradesh and Punjab wasfrom agriculture and services respectively.

Regarding the officials of the non-developmental departmentin the two States, it is obseded that the maximum percentageof such officers came from agricultural families in Madhya

5E Bureauuatlc Values in Development

TABLE 3.6

Distribution of Parental Occupation of Develoymental andNon-developmental Personnel by Dlstricts.

(Percentage)

Parental

Occupation

Morent PotialaDevelop- Non- Develop. Develop- Non- Develop-mental mental mental mental

l.2.

?

4.

Agriculture 43.8

Industry

Business

Profession

Services

3.1

15.'l

6.2

31,2

45.E

4.1

t6.7

t6.7

t6.7

24.8

8,8

11.5

8.8

46.0

27.3

LI.J

36.4

9.0

Total 100.0(N:64)

100.0 100.0 100.0(N--24) (N-lr3) (N:11)

Pradesh (46 pcr cent) aod io Punjab (36 per cent) from familicsbelonging to teaching, legal and medical professions, etc. Veryfew ofrcers having industry as the father's occupation wereattracted towards jobs in both the development and non.develop-iment offces of tbe two States.

Economic Background of the Officials

!t is gcnerally argued that the fepresentation of the variouseconomic classes in the administrative services in accordancewith their strength makes bureaucracy representative in charac-ter. Tbe bureaucracy in India is not considered to be repre-sentative as it is mostly filled by the incumbents belonging tothe middle and upper economic classes. This is largely due tothe botter educational facilities which the parents of the officialsfiom this class could afford and also due to a greater awarenessof the employment opportunities on their part. The pre-entry

A Study tn Profile and Job Sotisfaction 59

.education and training that they are able to get help them toEet entry into the services. Thus if one is abte to afford better€ducation in a good university or a good engineering college/school, one's chances of selection for a good job are bringhtened.'Every candiCate is not, how-ever, in a position to migrate t6*a-top institution for obtaining higher education. On this accountmany candidates are victims of unmerited disability, To investi-gate into the economic class of origin of the respondent ofrcialswe canvassed a qucstion to identify the economic class to which'their parcnts/guardians belonged at the time of the first eDtryinto the scrvioc. The economio classes were divided into fivecategorics-(i) upper class, i.e., parents/guardiaos having.income of more than Rs. 1500 p.m., (ii) upper middle class,i.e., income between Rs. 751 to Rs. 1500 p.m., (iii) middle class,i.e., income between Rs.25l to Rs. 750 p.m., and (iv) lowermiddle class, i.e., income between Rs. l0l to Rs, 250 p.m. and{v) Iower class, i.e ., incoms of Rs. 100 p..m. or less The replies,'shown in Table D in Appondix I show that more than half the'oftcers (53 pcr cent) belonged to families having income bet-ween Rs. 251 to Rs. ?50 p.m. One.fifth of the officers belooged

"€ach to the categories of income ranges Rs.751 to Rs. 1500p.m. and Rs. 101 to Rs. 250 p.m. Few officers belonged to theupper class and lower class of income categories,

The replies of the respondents iirdicate that most of the Class I.officials in Patiala or Morena belonged to the upper middleand middle class families, Most of the officers of Class 1I

.eatogories in Patiala und Morena either belonged to the middle'class or upper class, More than half of the officcrs in Class IIIin Patiala and a little less than half the number of officers inClass III in Morena came from the middle class families.'Curiously enough although no officer in class I and class II inPatiala came from the upper class, 10 out of 73 class III off0cers.of Patiala stated that they belonged to the uppcr economicclass. .In Morena only one class III officer out of 55 identifiedhimself with the upper cconomic class. The distribution of theofficials according to main economic background is given below.

60 Bureoucratic Va lues in Deve lopntenr

TABLE 3.7

Econornic Background and Class of Service

(Percentage)

Income ofParentslGuardians Class I Class II Class IIIof thc official at thetlme of getting the

first job.

Total

More thanRs. 1500 p.m.

Between 42,1Rs. 751-1500 p.m.

3. Between 52.6

Rs. 251-?50 p.m.

Between 5.3Rs. 101-250 p.m.

Rs. 100 andbelow

3 8.5

55.4

6.1

7.8

5l.6

30.4

1.6

\)

20.1

<t e

20.8:

0.9

8.6

a

4.

Total 100.0 100.0 t00.0 100.0

Thus it can be secn that all the catesories of the services.derived their staff mostly from the mid-rlle class (percentage.varying between 52 to 55). Tho upper middle class providedmost of the Class I and Class II officers and the Class IIIofficers largely came from the lower middle olass.

The details of break-up of the economic class background of-the offcials enagaged in the developmental and non.develop-mental acrivities can be seen in Table 3.8 on p. 61,

Most of the ofrcers, engaged both in the development and,nod-developmental departments came from the middle clasc.household income group of Rs.25l-750 p.m. with the exceprionof the officers of the non-developmental department in punjab,.

A Study ln Profile and Job Satisfaction

TABLE 3.8

Economic Background of Officers by Types ofWork and Districts

(Percentage)

6t

Parents' lGuardian'sIncome at the

Morena Patialo

time of firstappointment

DeveloP' Au.Non-deve'

mental lopmentalDeve- Non-deve

lop- lopmmtalmental

t. Morc thanRs. 1500 p.m.

BetweenRs.75l-150Op.m.

B€tweenRs.25l-750p.m.

BetweenRs. 101-250p.m.

Rs. 100 andbelow

8.84.1

tt.

5.

26.9

50.0

28.1

8.3

41.8

37.5

8.3

18.6 54.5

57.4 .4 5.5

15.2

Total 100.0(N:64)

100.0 100.0 10u.0

(N:24) (N:113) (N:ll)

55 per cont of whom belonged to the higher household incomerange of Rs.75l and 1500 p.m; This was not surprisingbegause Punjab had been having the highest per capita income

and enjoying prosperity in agriculture and industry since

long. In Morena and Patiala the next highest percentage of-the officers engaged in developmental activities belongedto the lower middle income group of Rs. l0l -250 p.m.and the higher middlo income range of Rs.751-1500. InMoreqa 38 per oent of Revenue Dcpartment Officers and ia

62 Bureauuatic Values in Development

Patiala 46 per cent of such officers belonged to the parental'income groups of Rs. l0l to Rs. 250, and Rs. 250 to Rs. ?50.and Rs. 251 to Rs. 750 respectively.

Marlnl status and Dependents

As shown in Table 3.9 below, only 6 respondents in Patiala andll respondents in Morena were found to b€ young and unmar-ried out of 124 respondents in Patiala and 88 respondonts inMorena, respectively.

TABLE 3.9

Marital Status of Respondents

Mafital Status Patiala Morena Total

1. Unmarried

2, Married

3.' Widowed/Divorced

6(4.9)113

(91.1)5

(4.0)

1l(r2.5)

7l(80.7)

6(6.8)

17(8.0)184

(86.8)7l

(s.2)

Total t24(t00.0)

88 212(100.0) (r00.0)

(N,8. Figures in brackets are percentages)

Recruits in Morena were found to be comparatively young and'unmarried (compared to Patiala district) while the widowed/'divorced respondents in the two areas were more or tess'similar. About 87 per cent of respondents were married.

The social obligations of unmarried and widowedidivorcedrespondents were not materially different from married respon-.dents. While the former had to look after parents, brothersand sisters, as is normally expected in the Indian society,the widowcd and divorced respondents had many children to6upport. Thc number and percentage of dependents that therespondents had to look after ie shown in tablc 3.10 on page 63.

A Shdy in Prcfi,le and Job Satlsfaction

TABLE 3.IO

Number of Denendents of Officials in the Districtsof Patiala and Morena

63

Number of dependents Morena Totnl

1. Nil

2, l-2 petsons

3-f pcrsofis - '-

5-6 Persons

5. More than 6 oersons

4.

2

(1.6)

23(r 8.5)

6l(49.2t

?l(25.0)

(s.7)

I(t.l)t4

(1s.9)

36(40.e)

26(29.6)

1l(r2.5)

J

0.4)

37(17.4)

97(4s.8)

57(?6.9)

18

( 8.5)

Total

(N.8. Figures in brackets are percentages)

The highost dependency ratio is observed in thc dependcntgroup of 3-4 persons (46 per cent) followed by the next higherdependent group of 5-6 persons (2? per cont) and tho lower,group of 1-2 persons (17 per cent); 8.5 per cent of the officialrespondents said that they had more than 6 perons to support.It seems that the government servants both in Patiala andMorena arc normally aware of family planning programmes ofthe government and small family norms are vety muoh in evi.dence among the officials.

Levels of Education of Various Classcs of Offcers

Normally tho level of education is highly correlatod with theclass of sorvicc. But lhe present study related mostly to (withth€ exception of a fow r€venue offflcers having been educated in

124(100.0)

88(100.0)

212(100.0)

'64 B reaucrctlc Values in D*elopment

'the generalist tradition) the civil engineers of the Irrigation'Departments and electrical engineers of the State ElcctricityBoards having professional qualifications which they usually

. acquired after passing the Highcr Secondary or Intermediateexamination, The percentage of respondents in vario $

',categories of educational levcl is shown below.

TABLE 3.1I

Level of Education by Class of Service

(Percentage)

Levels of Educatton Class of ServiceClass I Class II Class III Total

I . Matriculation

.2. Bachelor's Degree

.3. Post-graduate

-4. Technical/Professionalqualifications after

*, high school or higbarsecondary education,

21.0

6.2

4.6

15.4

72.9 73.8 67.1 69.8

6.0

tt.71t.7

9.5

9.0

9.0

t2.2

Total 100.0 100.0(N:te) (N:165)

!00.0 100.0(N- r28) (N:212)

__The percentage of respondent offcers in Class I, Class II and' Class III Services witb technical/professional qualifi iations afterhigh school or higher secondary varied between 70to 74 per.cent. These related to the engineer respondents. Tbe nextimportant level of education that is revealed in the sample is the'post-graduate degree usually acquired by offigers of th.e RevenueiDepartments ofthe two State Governments, fh" p.r..niug,'varied between l0 and 2l among the tbree classes ol services.Tbe smaller percentage (10 per cent) of the post-graduate levclof education in the case of Class III oficers oo the- *hol, ,r,

*oompensatod by the higher percentage (12 per cent) of bachelor

A Study in Profile atd Job Satlsfaction 65

degree level. Many Tehsildars and Naib Tehsildars with gradu'

ate and matriculation levels of education were working io'Class II and Class III Services' Tho direct reoruits in the

State Civil Service working for the Revenue Department were

mostly post-graduates.

Executive engineers in the State Electribity Boards or thc

Irrigation Departments, who are in Class I Service, are promo'

tees with expcrience and seniority from direct recruits as assis-

tant engineers in Class II Service. The scales of pay prescribed

by the Punjab and Madhya Pradesh Governments exclusive,{of allowances) are moro or less similar-

Designarion of posts Puniab Madhya Pradesh

Assistant Engineers. Rs.450'900 Rs. 425'850

Junior Engineers Rs,40G650 Rs. 350-650

'0verseers/Lino SuPerin'

'0endents/Sub-engineers Rs,200'450 Rs.280-480

The State Electricity Boards, being autonomous, scales ofttheir oficers aro marginally higher and the officers have com-

,paratively more allowances.

There are two engineering collegos in thc State of Punjab at

{.udhiana and.Patiala and one engineering colloge in the UnionTerritory of Chandigarh awarding engineering degrees and a

'number of enginoering schoolslpolytechnics producing diploma-'holders in engineering. Tl?e graduates ofthese institutions form

{he bulk of the candidates for rccruitment to the various posts in

Ponjab State Etoctricity Board. The diploma-holders, are usually

'inducted for tho Class III services of thc State Government'

Even diploma-holding ongineers are recruited as Linesman

lClass IV) who are eventually promoted on th€ basis ofseniority.as Line Superintendents (Ciass III). Thorc has boen lot of resent-

ment overitagnation, porticularly in thc Class III and Class

.lV positions. In order to facilitate the scope for promotion.to

.Class Il positions of ongineers, the Govornment of Punjab has

66 Bureaucratic Values in Development

fixed the quota of promoticns and has also created posts of.junior engincers (Rs. {00.650) in Class II service.

The Govcrnment of Madhya pradcsh has also created postsof Junior Engineers (class II) in tbe scalc of Rs,350-650 to givorelief to the sub.engineers/ovcrsecrs who have becn working forlong time in their own scales of pay. The Class II engineorofficers are rrcruited as follows (i) 75 por cent as direct recruit-ment of-graduate cngineers, (ii) 20 pei cent from promotion of.sub.eagineers/overseers and (iii) 5 per cent as promotion ofdraftsmon.

In the Dcpartments of Revenue of the two State Govcrnmentsrecruitmont is done in senior and junior scales of the State CivilServicc (Class II). - Junior-scale civil servants *. pro*ot.dwith soniority and good record of."rui." to-r.nio, Jcales and.senior scale officcrs are promotcd to the Indian Administrative,Service rrndor the assigned quota, promotees from various.Class III serviccs of the State Govcrnment$ aro taken in the_State Civjl Service Claes II with seniority and meriJ under thoassigtred quota system. The ofrcem oi th. R.uroue Depart-ments that we interviewed wcre usually goneralists and did not.have any particular specialist or professioial qualifications.

The collection of electricity and irrigatiotr charges are made.by the rovonue staf of these- dopartmJnts, Therl was a pro*posal somc time back to draft a few ofrc"r, oiin. RevenuE.Departmcnt to the Departmente of tnigation: aiJpower forexercising magist€rial powers in order to .iAu6 thu a".ufnotn_tion of the eloctriciry and irrigation duos in M;;y; pradesh.But thc ofrcers in the Revenue Department Oia noi-slow anyioterest as thc extra allowauce thai was uAmissiita

-to'them forthis p-urposc was only to the tune of Rs, 100 or Rs. tSO p.-..and thc scheme fell through.

- Tbo dotails of eduoational levels of the oftcors cao be see&from the following table 3,12 on page 67. ------ -'"

4 Study ln Profile ond lob Statisfaction

TABLE 3.12

Distribution of officers in tho Developmental and Non.devolop-mental Departments by Districts and Levels of Education

(Percentage)

67

Letels ofeducation

Morena-Devehp-lop:-fr ;n'Aev4op-mental mental

PatialaDevelop- Non-deve-mental lopmental

l. Matricula-tiotr.

Baoholor's '

Degree.

Post-graduate

Technical/Professional

100.0

33.4

66.6

l 1.58

9,7

78.8

54.6

9.0

36.4J.

4.

Total 100.0 100.0(N:6a) ' (N=24)

100.0 100.0(N:113) (N,,-ll)

It will be seen that all the ofrcers posted in the Morena dig:trict for developmental work were stated to have teohnica[professional qualifications after the high school/higher secondaryeducation while the corresponding pe{cpntage of ofrcers engagedin the developmental activities in Patiala was 79. The ofrcersof the Revenue department in Morena had either a Bachelor'sdegree or a Post.graduate degree, But most of tbe officers ofthe non-development departqrent . in Patiala had cducationalqualifications either of the lpvels of matriculation or po$t?graduate.

(Ipwartt Mobility qf the Officials

68 Bur eaucr at i c Yalues in D evelo pmen t

index for studying their job satisfaction. It will be noticedfrom Table 3.13 below that 55 per cent of the officers surveyed

did not have even one promotion and most of them were young

recruits. Only 33% of officers had one promotion at the timeof the survey. Th.e details are given in Table F in Appendix I,

TABLE 3.13

Upward Mobility of the Ofrcials(Percentage)

Promotions Officersreceived - ckss I ffi

l. Nil2. One

3. Two4. Three

{?

68.3

2r.l5.3

49.2

36.9

10.8?1

65.6

25.8

8.6

55.2

33.0

r0.4

t.4

Total 100.0(N:19)

100 0(N:65)

100.0 100.0(N:128) (N:212)

Only onc young Indian Administrative Service Ofrcer wbolvas on probation was found to be working in a MadhyaPradesh block for the Revenue Department. It was in facthis first training in revenue administration. About two-thirdsof Class III officers (66 per c€nt) did not have a single promo-tion. Of course, a large majority of them were direct ricruitsto Class III and were comparatively young in age. A quartor{26 per cent) of Class III ofrcers came to this Class as a resultof promotion. Thus it can be said that thefe is not enough,causc of demoraiisation amoogst the officials which would effectdevclopmcntal programmes in the two selected districts. Mostof the Class I officers (68 pcr cont) came to this class as a resultof one promolion while 2l per cent came as a result of twopromotions. Among class II officers, 49 per ccnt and 32 per cent.came to thig class as a result of one and two promotions res-pectivcly. The casc of Claes III ofrcors, aE statcd carlior, alsodid not pr€scnt I gloomy picture, as will be seen from'the above

A Study in Profle and fob Statisfaetion 69

table. The team of ofrcers belonging to all ther three classesrrere on tbe whole, found to be enthusiastic about the duties.assigned to them.. ThiS donclusion is based on our field study.and observatioo, In certain cases an individual ofrcial had,trowever, remained too long in his cadre for the next promotion,but such cases are not exceptidnal and do not contradict ourfindings. The stagnation which was made out to us during.the course of discussions and interviens is not borne out by.facts and statistics. The details of_ promotions i.c., upwardmobility of the ofrcers in Morena and patiala working in the.development and non.development department will be seen from'the following table.

TABLE 3.14

Upward Mobility of the Officials by Departmeut and Districts(Percentage)

Promotlonsreceived

MorenaDevAop- m;<eva*mental mental

PatialaDeveioy n;;A*-mental lopmental

l. Nit2. One

3. Two.4. Three

68.7

25.0

6.3

29.2

33.3

29.2

8.3

56.6

38.0

4.5

18.2

27,3

54.5

Total 100.0(N:64)

100.0(N:24)

100.0 100.0(N:113) (N:11)

Most ofthe interviewed o$cers of the development depart-'ments of Madhya Pradesh and Puojab were comparatively-young and did not receivc any promotion till the time of the.survey. Thc perccntages wefe 69 and 57 in the two States.Theirs w*s the first app.iatmctrt. Twenty-five pcr cent and38 pcr ccnt of the officers ia thc ttcvelopment departmcnts of'Madhya Pradcsh aod Patiala rcceived one promotion. Thisrindioercd 6omc alvancement in thcir gflcial positions on thotpart of a good number of offic,crs. Four and five ofroers rcs-

.tO Bureauqatic Values in Development

pectively of the governments of Madhya Pradesh and Punjab

were beneficiaries of two promotiotrs as well.In the non-develop

mental department of Revenue of both the State Govcrnmentg'

the officers were comparatively aged, and were bentificiaries of

one or two promotions. However, 7 and 2 ofrceIs of the

Revenue departments of Madhya Pradesh and Punjab respectively

who were very young were working in their initial scale ofappointment. Two officers of the Revenue Department of'

M"anya Pradesh even stated to have received three promotions

and more than half of such officers in Patiala received twopromotions.

.:

In-servlce Tralning

The Civil Engineers of the Irrigation Departments and Electrical

Engineers of State Electricity Boards in Class II service have toooi"rgo training after they .are recruited. But no training isproviJed for the Executive Engneers in Class I after their

. progotioo " from Class lI- posts. The direct'-recruits of sub-

ingiaeets/ovetseerslline supervisors/line superintendents in Class

IIi servico have. to,undergo Jhree .months'---training. after - their

appointment. But no trainidg is given 'io the promotees in

Class- III from the posts ofi Jinesmen. ' The officers of the

Revenue Departments in Class I and Class II services are kept

on probation for two years aftor recruitment. This period istaken for rraining the officers in revenus laws, rules, procedures,

etc. .Tehsildars apd Naib Tehsildars are in subirrdinatg executiie

service .who also bebome familiar with rules and iegulalions

during their career and 50% of them q9 eveqtulllv plgmoted

to the State junior civil services.

coufsoThus,.

A Study ln Profile and lob Satisfactlon 7l'

€ompetence of those qualified officers for development adminis*

tfation.'The Canal Departmonts have their own Patwaris for looking

'to irrigation facilities and ccllecting revenues. A Ziladar (Canal

Patwari) in Punjab is of the ranlc of a Deputy Collector witbpowers of prosecution and stoppage of irrigation in tbe follow'ing scason in case of the non'payment of caoal ducs for the

previous season, The State Electricity Board collects ellectri-city dues from private parties through their own collectingagcncies, In Punjab, overdues are not a big problem. But inMadhya Pradcsh, prob;cutions are yet to be made for non-pay'ment of canal and irrigation dues, although irdgation andpower suppties are being made in Morena during the last7/8 years. {t can be said that the stoppage'of power or irriga.tion faoilities for non'payment of dues is no doubt detrimental

to the development efforts in the region. But this is one

anea where rules have to be followod in a more stringentmanner.

Professional Intercst

The respondent officials wero asked a question, whether in the

midst of their professional duties thev could find tioc to read

tome professional journats or were they mernbers of a profe'

ssional society. 'fhe answer was invariably 'No.' Koeping intouch with new dcvelopments through professional journale

or membership of a professional body'could give an indicationabout their professional itterest and furtherance of profes-

fional knowledge. Th€ nbgative r€sponse in this rcspect indicateg

an apathetio attitudo on the part of the officials to develop thcircapacitios further. This is probably beeause of the lack of anymotivation to sustain their profossional interests. In fact,.rnost of tbe staff seemed to be ignorant of the name of anyprofessional journal or association in their own fields .ofactivities.

Job Satisfctction of Offictals

There has lately been considerable interest in the efforts to

'72 Bureaucratic Valu'es in Development

indentify factors that directly or indirectly shape the behavrourof civil servants in a govcrnmental organisation. One set ofsuch factors that had interest€d tho researchers relates to thefamily origin, background, sttd educational attainments of thEcivil servants *hich greatly influence their soiialisation processand which have been discussed so far. The behaviour of theofficials is found to be further influenced by the kind of satisfac-tion they derive on the job and whether or not they have a feelinglthat their qualifications and training are being properly utilizcd"In other words, the officials'own perception about their capabilities to perform the assigncd tasks has a considerable bearingon their behavioural pattern. Here we propose to analyse theofficials' perceptioD about thcir job satisfaction and their capa-bilities to cope up with the environmental situations.

Job satisfaction of the ofrcials has many facets and is com-posed of various component elements. The interest of theincumbent in the assigned job brings in him a feeling of initia-tive and responsibility. Even though an incumbent may bean insignificant part of the organisation he can make significantcontribution if he finds interest in his assigned work. Theefficient performance of the officials depends on the intere$tthat their jobs create for tlem.

Another factor that is important is the job requirementsand the related qualifications that lhe incumbent posscss€sfor discharging efrciently his official responsibilities. The fullutilisation of the incumbent's qualifications and capabilitiesnot only bring greater productivity but also make him morewedded to his work. kiconsistency in these may bring a senso ofhelplessness and frustration amongst the ofrciirls, In order todetermine purpose of evaluating the officials' feeling of job satis-faction we put a set of four questions to our respondents -(i) isthe work you ar€ doing interesting; (ii) when you do good work,is it appreciated by your superior ofrcers (appreciation bysenior ofrcers boosts up the mcrale and spirit of thc incum-bent); (iii) how good are your chances of promotion in yourdepartment; and (iv) a negatively framed question-would you

A Study in Profile aqd fob Satisfaction

like to change over to atrother officeidepartment, if given achanco to do tbc same work.

The replies of the first two questions were tabulated, and arepresented on page 74.

On the whole abofi 2l-27 p€r cent of the officers in thedislricts of Patiala and Morena found the work interesting.The pattern of job satisfaction is more or less similar in thetwo States and in the three departments. Broadly spcaking aquarter o[ the respondent officcrs had found their workinteresting. The officials in the higher scales ofthe departmetrtsengaged in developmental tasks usually expressed their satis-faction over the work they were performing. In th€ Departmentgof Revenue of both the State Goveroments some officors in thohighor s4lary scales, who were on deputation from their originalpostings r€port€d tbat they had to 8uffcr in. their carcerultimately on account of their deputation as on completion oftheir assignment they had to revert to their origioal posts as .

they were not allowed to have benefits on both the counts..They could not be promoted to higher class posts in thuRevenue Service from their deputation posts as a result ofwhich they had somc setbacks. This dwarfed their initiativcand impeded their progress in the departments. 8o far osdepartmonts engaged in developmental activities arc concerned,the officcrs were mostly technical and they had a chance to riseto highcr posts through seniority and chan records. There wasthus much loss frustration among those ofrcers. Tbe progressof development in the State was perhaps rapid because of the.intergst of these group of officers in their work.

Between 37 -47 per cent of ofrcers, however, thought that theyfound fheir work interesting only sometimes. And about one-third of tho ofrcers, on an average, fcund thcir work seldom.interesting. The absence of ample scope of promotions, smallincremerts, particularly in the lower scales of pay, abs€nce ofcheap housing facilities, etc. addcd to the lack of interest by theeoployees in thcir assigned work. This is true of ofrcers of allthe tbree departments of the two State Governm€nts.

73

Bureaucratic Values in Development

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* Study in Prafile ad Job Sattuf.tction

The appreciation by the senior officers of tbe work done by.junior officers also showed mot€ or less the same trend. A littlelhighei percentage of officers, varying from 27 to 35 reported thettheir work was well appreciated by the senior officers. This is inTespect of the oftwrs in all the three departments of the two'State Goveroments. The percentage was somewhat lower innen-developmental department of Revenue compared especially'to those of developmental departmont of Irrigation in both the

States. The percentags of ofrcers whose work was only

sornctimss appreeiated by their senior ofrcers was found to be.somewhat higher in Punjab than in Madhya Pradcsh. The lack

of appreciation of the juniors' work by the sniors dwarfed, inturn, the initiative and interest of the officers in the assigned

work. The percentage of officers who felt that their work was

not appreciated by the senior officers rangod from 15 to 24

only. One possible explanation for the nbn'appreciation of the

irrork done by thc officials in respect of both development and

non-tlevclopmcnt progtammes could be that thc respondents'

standards ofl self'waluation is based very much on their own

subjective criterion rather than on an objective one.

' Applying the ' ,(' test on whether the work performcd wa$

{ntcresting, the valucs for Patiala and Momna wore' 0.93

and 2.t8 (d. f.+4) respectively, which arc vcry insignificant at5 per ocnt level of probability. It means that the perception of,the officials in ths. three departments of the two State

Goverrments.aboirt interest in their work was not correlatedend had no similarity.

The I'z values of work-apprecialion by senior officers ofPatiala. and Morena werc 3.96 and I .17 respectively for 4.degrees of freedom and these are again statistically insignificant.

Tbe appreciation of the work of the junior' officers of botb the

Stato Goveruments was, tirerefore, not correlated' Th€

appleciation of work was independent of dePartments in which

tho olficials worked.

75

'16

Chances of Promotion

Promotion in the service

Bureaucratie Values in Develonment .

is an imoortant milestone in the'rd career of a civil servaut. lt not only brings in him self.confi-

dence to cope with new environn,ents and respon,ibilities but-also the necessary job satisfaction. In the contcxt of develop-mental activities tinely prorrotions in the career of a develop-mert administrator bring in him new confidence in the achieve-mont of the prescribed goals. Two questions-ti) How good,wcre the chances of pro'rotion in the depaftmcnt; atrd (ii) ifgiven a chance to do the same work iq another olfice/depart-ment, would you like to switch over (a negatively framed,qucstion) were put to the respondent officials. The replies weretabulated and summarised iu Tabte 3.16 on pagc ??.

The lowest perccntage of officers viz l8 and l7 respectivelywho reportcd good chances of promotion in their service careenbolonged to the non-development departments of the Govern*ments of Punjab and Madhya Pradesh. Similar perceotagesin the dcvelopmeni departments of the two State Governmentsvaried between 2l and 28 which were also verv small. Fairchances of promotions were reported by 36-47 per cent offioer$and poor cbances were reported by 3l-46 per c.cnt officers. ILcan well be imaginod that if more than oao-third of thoofficials on the whole flnd bleak chances of promotion in theirdepartmeots and if similar number of officers find their workdull and uninteresting, a good output of work cannot be exp€c-ted from these large number of officers especially in regard to,developmental activities. One explanation of low chances ofpromotion can be that at thc time of initial recruitment, thosewho are at the top of the seniority list tako less time for apromotion but officers very much below thc list of seniority takomuch. longer time although inirially all of them might have been,recruited in the same batch. It croates frustration. However,there is no alternative in the present situatlon as thc promotionalopportunities are not so froquent. Thus because of thcdpmoralisation process that sets in, the quality of the perfor-mance of the oficers ultimately suffers,

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-78Bureaucratic Vaiues in Development

The 12 values for the chances of promotion were calculated''and wcre found to be 3.?4 for 4 dcgress of freedorh for both?atiala and Morena, which is very insignificant. Replies on the-chaoc€s of promotion did not show wide diversiiy iq all the'three departments of the two State Governments, fh"t war,'no significant variation/difference in thc chances of promotion. of officers of the developmental and non-developmenial idepart-, ments of the two State Gove rnme nts, Whatever good, fair orpoor chanccs of promotion exist, they hold good ior all sectionsof officers and are independent of the departments in wbich.tbey work.

The X,2 values for offering to switch over to other dcpartments'in the Government of Punjab and Madhya pradesh were foundto be 5.46 and 4.24 respectively for 4 degress of:frcedom, which'.were statistically insignificant. Thus the perceptions of the-ofrcers of both the development and non-development; depart-ments about the avenues of promotions seed to suggest that

.tbey do not think that any other departments hold out better"prospects of promotion, This is also reinforce d bv ithe fact'that only a smaller percentage of officers of the Revenue.Depart-ments of the two State GoVernmonts showed their willinlness to

'switch over to another department. i

However, on thc other hand, the percentage of officers in the'.development departments who were willing to switch ovAr to an.olternative oftce/department for doing similar duties wcre'reporred to vary between 38 and 53, Thus dbout half of the'officers were found to be willing to chauge ovor, It, therefore,

' seemed that the ofrc.ers ongaged in developmentql taskswere not very happy with their work, Development admi_

,xistration needs very highly devoted civil servants with a zeal for"quick development wbich seemed to be lacking in ther present'eet of officials. The satisfaction of the officials deriyed fronrtheir rvork is a very important index of their commitment totheir organisational goals and achievements, A higher job

,satisfaqtion helps in building high morale leading to betterperformanco dnd higber productivity. Only 60-70 per cent of

4he officers bf the three departmints of.ihe two State govern_

A Study in Profile and Job Satisfactian .7v

ments thought that their work was always interestiog or occa--

sionally interesting while the perceptions of the remaining officers-

reflected that the prevailing mood in their work environment:

was unsatisfactory. These perceptions prevailed even when a

greater appreoiation of work of the junior officers by theirsenior offioers (80 per cent of the ofrcers being either always oroccasionally appreciated) ought to have given them better job'

satisfaction. This natural.ly meant that 30'40 per cent of the,'officers whether engaged in developmental and or non'develop''mental tasks, were feeling . frustrated and losing confidence in,their capabilities to cope up withr the .assigned responsibilities'

A feeling of being an insignificant member in a big governmental'

apparatup';and th-e. so-called u-r1pf-estigious nature of the officials''job were stated to be responsible forrthe kind of dis's4tisfaction.that has Qropt in the officials' attitudes towards their organisa-'

oational goelqri .Furtter, on. sulsequent questioning the same

percentage ofli,pfi,icors of the two development,departmeots bf -

.,both tha Stateq r,eportod poor clances of promotipn in their owo

departments.r d,fegling of stagnatioo and the absenoe of further'scope of promolion in near future made them lose their initiativeand interest in their present work. They were even eager to move'

to other departmonts if theyr were.'given the chance to do so.

The officers'of the. 4qn;developm€nt departorcnt of the two'.State governmen-tsi on lhe other hand, who ssffer€d set'

.backs in deputal.ipn prorlotions earlier, did not show theirwillingness to aovg to other departorents ' even though their

,chances of promotion in their Qwn department were limitod.What should then be done to boost the morale of the3e

. o$icers ? Would frequent merit'based promotions enhance-their ctranoes of .fulfilment of the organisational goals ? The.

. problem is not only thq ,availability . of opportunities but . alsothc way the morit cdterion is to be assessed' A sound pro'motional policy linked with greater productivrty/performance,in the developrnental projects may help in obtaining ,some

inprove ment in the existing situation.

'80 Bureaacratlc Values in Development

Utllisatlon of Education, Training and Expeilence of the. Officials:

The problem of tho preparedness of the officials for develop-" mental tasks is intimately connected with their educational, achievements, training and experience. This aspect was also' examined for offiers of both the development d€partments and" compared to those of the non-developmental departments in'the two States, For this purpose a question was canvassed'whether they thought that in their present post their education,training and experience were fully or moderately utilised or

" no{ utilised at all. We have already noted that so far ar the twodeveloprnental departmonts w€fc concerncd thc officials wcre

'technically qualified, and trained after recruitment and hadgained considerablc experience during the course ofthe day_to_

" day work, The officials betonging to the non.developrnental- department aho had the requisite background of good general. educatiron, training and work cxperience ovct a number of. years, The rcplies are sumuarised in Table 3.17 on p. gl as''bclow. J

There is hardly any difference in the replies ofthe ofrcerso bclonging to tho throe departrnents of tbe two State Govern-" ments. Half of the officers were of the view that their" education, training and experience were fully utilised in thework that they did. The identiat type of replies are also

'.reflected in the moderate utilisation of their peisonal achieve_ments. Onc+hirds of the officers were of the view that theirbackground achievements werc only moderatcly utilised. The

r remaining ono-sixth of the officcrs were of the view that therei attainments and talents wcre trot utilised properly. There was, hardly any sigoificant diflerenco in the fattirn of repliesr received from the three sets of officcrs of the two State Govern-ments. If thc perception, as reported by 15-20 per cent

- omc€rs, that their background eduoation and experience werc_not

being utilised properly is accepted, it may suggest thatrthoir work cnvironmeot was not conducive to enable themrto put their best in tbcir jobs.

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From our analysis we.find that half of the number ofiofficials seemed to be highty satisfied that their qualifications,training and experience were being fully utilised in thoir presentpositions. Another one-thirds of the officers said that theireducation, training and experience were moderatcly utilisedleaving only one'sixth of the respond€nts to say that theircapabilities were not being fully utilised. If this finding isconsidored with the earlier finding that about a third of.respondent officials were willing to switch over to other office/department and that about another half of officials mishtalso like to chango over, therc seems to be sometbing wrJngin the working environmentfconditions of the offioials thatneeds to be examined in depth. Further it also suggests thatseemingly high level of the job: Satisfaction of officials consealstheir considerable dissatisfaction with thb organisations they,work for. They feel that their departments have doue preciouslittle for them to iecognise aod appreciatc tbeir potentialities.

As far as their perceptions of full, moderate and poorutilisation of ,.their 'edudation, training and cxpdriencein the jobs are. concerned the X2 values for 4 degreesof freedom for officers of the Punjab and MadhyaPradesh Clovernments were as low and insignificant as.l.7l and 2,59 respectively. The educational qualifications,training prescribed and experience undergone for various.types of devclopmental and non.developmental positions.thus seem to have beeg prescribed quite in conformity withthe job requirements, of the pbsition in the two StateGovernments. Only 15-20 per cent of the officers of both thedevelopment and non-developmeot depaltrlents of the two.State governmohts dr:d not feel that their sducatioh, training.and work were trot utilised properly.

Capabilities to cope up with Envlronment

A queslion about ths capabilities of officials to cope up withenvironmeqt situation was canvassed to respondenis. percep-tions wcrc reeo.f.nj

"i_O arc summarised in Tabte 3,lg on p. 83"

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About half of the interviewed officials in the three depar!ments of the two State Governments were of the opinion thattheir capabilities were quite high to cope up with the environ-mental situation. The percentage of officers in the State Elec-tficity Boards was somewhat higher in this respect as comparedto the percentages of officers in the Revenue departmentswhile the percentage of the officials from tbe Depaitmen( ofIrrigation was slightly higher than the Department of Revenue.Similarly, about a third of officers in all the departments of thetwo Governments were of the opinion that their capabilitiesenabled them fairly to push through the dovelopmental andnoo-developmental activities with whicb they were concerned.Thus. five.sixths of the officers could be said 1o be fully andfairly confident about their perception of their own capabilities.On the whole it could bo said that the officers of both the develop-mental and non-developmental departm€nts of the two StateGovernments haC adequate self.gonfidcnce to cope up with newsituations. That is probably the r€ason why.the role perfor-mance of the majority of officers of the two State Governmentshad been satisfactory which is borne out by the achievementsin the power and irrigation sectors. It has been verv en-couraging in both the State Governments. This has been alsopossible by dedicated assistance and cooperation simultaneouslyrendered by the team of officers of the non_developmontalDepartment of Revenue to the developmental activities of theother Departments in the two States, Thus the bureaucraticresponse to development has been somewhat satisfactory inboth the State Governments..

The I'?values of self confidence ofthe officers whoso capa_bilities suited their work environment and enabled them to copeup with the situation for the officcrs of the Governments ofPunjab and Madhya Pradesh wero 7.59 and 3,3i respectivelyfor 4 degtecs of freedom. These are statistically insignificanteven at 5 per cent level of probability. The ofrcers of theRevenue departments of the two State Governments, drawDsomo times from different departments wcre found to havesomewhat larger mean-square deviations of their perceptionsabout capabilities to cope up with environmental situations.

A Study in Profile and Job Sati{action 85

Nevortheless they were not of much consequen@. The differencein personal capabilities being very small, it was noticed that alltho officers of the three departments of the two State Govern-ments, on the wholc, bad the required skill and capabilitics tocope up with the new situations that arose during the course ofdevelopmental and non-developmental work and their con-fidence in their capabilities enabled the State Govcrnments toutilise their talents somewhar adequately,

SUMMARY

The foregoing analysis of the personal characteristics of the124 o6cials of the Government of Punjab in Patiala district andthe 88 officials of Madhya Pradesh in Morena distriot, belongingto lrigation Dcpartmcnt, State Electlicity Board and Revenue

Department studisd iu tbe survey leads to the following profilcof developmental and non-developmental personnel.

The developmental officials in Patiala and Morcna working inClass I and Class ll salvices, not to speak of Class III employees,

are comparatively young in age. More than half and aboutone-third of them belonged to the age-groups, 26-35 years and36-45 yaars'reap€ctively,

Regarding urban-rural background of tbe ofrcers surveycd itwas found that the officers with the big town/urban backgroundhaving spent upto the first 20 years of their lines in a town withpopulation between 10,000 and 1,00,000 were predominantlyoccupying Classs I and Class II posts in Patiala and Morena.About one-third and one-fourth of such officials in Class IIIservice were found to work for the developmental and !on-developmental departments of Punjab and Madhya PradeshGovernments respectively. The Class III servicds, however, drewrecruits from the villages, big towns and cities in considerablenumbers,

So far as parentat occupations are concerned, persons whose

parcots wore eithsr in agriculture or in servicc in general dominated the burpaucratic universc of the officials studied. Persors

86 Ettrea*crat ic Values in Diveloomenl

with parental occupation of service formed more tban half (52per cent) of the people serving in Class II service of the State

Governments of Punjab and Madhya Pradesh while 42 p€r centof Class III service personnel came frcrn the agriculturistfamilies. Even 32 per cent of Class I oficers and 3l per cent

of Class III service ofrccrs carne frorn tbmilies with 'seivice'

'occupations.

The economic class to which the surveyed officers belonged is

mainly the income group of Rs. 251 to Rs. 750 p.m. The per-

centages of Class I, Class II and Class III ofrcers with fathers/guardians belonging to the above income iange varied betw€en

52 and 55. About 42 per cent and 39 per cent of the Class Iand Class I[ ofrcers respectively, in addition, had their parents/guardians income between Rs. 751 to Rs. 1500 p.m. The second

highest income group that the parents/guardian s of Class IIIofficers belonged to was Rs. 101 to Rs. 250 p,m.

Eiamining the marital status, we find that about 9l per cent

of the ofrcers of Patiala and 8l per cent of the officers ofMorena district were married and a little bigher pcrcentage ofofrcers, namely 13 pcr cent, were unmarried in Morcna com-pared to 7 per cent in Patiala. Regarding their dependency

ratio, 49 per cent of the officers in Patiala and 4l per cent ofthe officers in Morena had to support 3-4 persons ; 25 percent in Patiala and 30 per cent omcers in Morena had to main-tain 5-6 persons, About 19 per cent and 16 per cent of officershad to maintain only 1-2 persons in Patiala and Morenarespectively. The Government servants under study werenormally aware of the small family nornrs,

As tbe study mainly related to enginee rs/sub-engineers alongwith a few officers of the Revenue department, the most predo.minent educational level was that of technical/professionalqualifications after high school or higher secondary levels. Thepercentege varied between 6'1 and 74 among the three classcs ofofficers. 'lhe post-graduate and the graduate levels of educationwere, however, iroticed most in case of the Revenue Departmentoflcers.

A Study in Profile and Job Satisfaction 8?

The chief eriterion for promotion of the oflcials was r€ported

to be seniority witb good record of service' Merit (r'rhich was

Oitn.uft to define), hard and good work also came to be consi-

Jur"a oteo the scniority of an incumbent made him eligibh for

promotion.

One important finding of the study is that 68 per cent of the

officers in Class I service were beneficiaries of orre promotion'

followed by 2l per c€nt getting two promotions, while 49 per

cenl and OO'per cent of officcrs in Class II and Class III jobs

respectively -

were direct recruits. However, 37 per cent- ofofficers in blass II and 26 per cent of officers in Class IIIrespectively received one promotion only. AII officers' whcthsr

promoted or lot promoted, were, however, found to work in

good spirif and the incidence of stagnation in the service was

very smali, which wa-s contrary to our earlier expectation'

The training period ofthe officials immediately after recruit-

ment varied from two to three years for revenue and engioeer

officers and from one year to 3 months for iunior irrigation and

electricity staff.

Thc officers hare yet to make use of professional journals

and to become members of professional bodies in order to

.nhrn". their t€chnical oompctence and increase their 'profes-

sional skill'

The profile of the bureaucracy that €merges from our study '

is not very much different from the findings of the study of

Pai Panandiker and others.s It, therefore, seems that althougb

il"r" n", been a lot of discussions about the socialisation and

i."i"i"g processes of thc offrcials at the grass-root level'

adequaie aotion has not been taken in this respect'

The analysis of job satisf)ction of officials reveals that about

2l-27 per clnt of officers in the dishicts of Patiala and Morena

foundiheir work quite interesting, whilo 37-47 per cent ofrcors

iound their work only occasionally interesting' About one'

third of the officers, on an avorage, found their work seldom

88 bureaacratic yahps in Dewlopment

intcresting. The pattern of pcrception was similar for all thethree departments of the two Stat€ Governments.

The appreciation of the work ol the junior ofrcer by theirsenior officers also showed more or less the same trend, About27-35 per cent of officers reported that their work was appre.ciated well by their se nior officers. This percentage was some-what lower in the Revenuo Department. This is ihe pattern inboth tbe State Governments and all the three departments. Thepercentage of officers whose work was appreciated only ogca-sionally was somewbat higher in punjab than in MadhyaPradesh. Only 15-24 per cent officers felt that their work wasnot appreciatod by their senior ofrcers and thoy were justcarrying on their duties somehow, There was not much ofvariation in.the levels of appreciation of the work of thc juniorofficers by their senior officers in various departments.

Regarding the chances of promotion in ono,s own depart-ment, about 18 and 17 per cent rcspectively of the officers be-longing to the Departments of Revenue of both the goveromentsof Punjab and Madbya pradesh thought that theie were goodchances of promotion in their own department while thE corres_ponding percentages were higher at 2l-2g in thc developmentdepartments of the two State Governments, Some fair cbanoesof promotion were reported by 36_49 per cent of ofrcers of thetwo State Governments white 3l-46 per cent officers complainedofpoor chances of promotion. This type of perceptions bymore than one-third of officers. was perhaps due to some stag.oation as a result of low seniority arisini out oi tl, Uuttfecruitment that is periodically made. The chancos of promotionwere quite_ similar in development and non-development dopart.ments of the two State Governments.

If given a chance to work in anothsr office/department thesam€ percentage of oiicers belonging to development depart-ments showed their reluctance

". will ", wi iigness for achange ofoffice. The officers of thc Revenu" Oipurtoruot ofthe two States revealed that a smaller p".""otug, of ii.ortuot,

were prepared for a change. They were ,uprrtad tr-n"*r"

A Study ln Profile and lob Satislactlon 89

attraction for a deputation allowance of Rs. 100/' or Rs' 150/'

p.m. for working in other departments. The percentage ofofrcers in the Department of Revonue willing to join an alter'nativc ofrce/departmeqt for doing similar work were found to

vary betweon 38 and 53. Thus only about half the omceis

were somewhat, but not fully, inclined to chango over.

Thus, on the whole, 60-70 per cent of the officers by apd

large thought that they wore either fully or moderately satisfieilwith their job, while 30-40 per cent of the officers engaged in

both developmental and non developmental activities seemed tobe feeling frustrated and dissatisfie<i with their present job situa-

tions. A feeling of insigni0oant existence and non-prestigious

nature of duties were stated to be the reason for such dissatis-

faction whioh ultimately affected their achievements in theirsphere of activities.

On the issue of the ofrcials' perception of their capabilities tocope up with the environmental situations, identioal typcs ofreplies were received from the oflcers of both the developmental

and non-developrnental departments. One-third of offioers

were of tho view that tboir background achievemelts were only

moderately utilized and half of them wero of the opinion tbat

their cducation, training and experience were properly utilised.

Only one-sixth of the officers thought that their educational

achievements and expcrience were not utilised properly, The

pattern of perception was similar for officers belonging to the

diiferent departments of the two State Governments' If these

facts ,r '€fe considered along wrth the larger percentage of

officers willing for a change of office/department, it naturally

meaos that the seemingly high level ofjob satisfaction concealed

considerable real dissatisfaction of the officials with their work

situations in the organisations they were working for' Obviously'

however, only 15 20 per c€nt of the officers of both the develop'

nrent and non'dovelopment departments of the two State Govern'

ments did not somehow feel that their oducation, training and

work experience were utilised properly'

Regarding the capabilitics to cope up with environmental

90 Bureaucratic /alues in Development

situations about half of the officers were confident that theycould moet the challonging situations of new environments whilea third of them thought that they were fairly capable to oope upwith the environments. On the wholo a large majority ofoflcers reported that they had adequate self.confidence totackle any now situations that were likely to deveiop in thecourse of their work. There was not much difference in thc per-ceptions of the officers of developmontal and non-developmentaldepartments of tho two State Governmentg in this respect.

NOTES

I V.A. Pai Panandiker and S.S. Kshirsagar, Burcaucrac! and Develop-ment Administration (Bombay 1978), p. 34.

2 Kuldeep Mathut i Burecdcrotic Response to Developnent, (Delhi, 1972),p, 24'

3 H,R. Chaturv€di, Burea:ucracy and Local Community : Dynamico ofRural Development, (Delhi, 1977), p, 54,

4 V. Subramaniam, "Hindu Values and Administrative Behaviour',,Indlan Journal of Public Admlnistration, vo/. 13 (Octob€r_Decembsr1967), pp. 695-701.

5 Morroe Berger, B rcaucracy and Society in Modern Egypt, (princeton :University, 1957).

6 Munecr Ahmed, The Civtl Servants ln pakistan, (rondon, OxfordUniversity Press, 1964) p. 64.

7 R.K. Kelsall, Iltgher Civil Senants in Britain, (London, Routledg€ andKegan Paul, 1955) pp. 198-200,

8 Panandikcr and Kshirsagar, n. 1., Mathur, n.2, aod Chaturv€di, n. 3.

4

The Structural Charactelistics ofBureaucracy : An AnalYsis of

Officials, PercePtion

As outlined in Chapter I, the focus of investigation for the studi'

il;; ,he uulo, ,y.** of the bureaucracy at tho grass-root l'evel

in India. This Chapter deals with the analysis of the value

"tf*,"ii"" of the ofdcials on the structural characteristics of

;;;;;;;;;.v' it', id'n is to analvse their responses as to tbe

ffi;;;;i;.t they attached to some of the selected structural

"'iui"a*ri.ri", of a bureaucratic system. The characteristicc

il;-;;" iiera'"hv, nivision ol Labour' Svstem of Rules'

sJ;;;"" rrlorit ana lmpelsonality-sorne of thc weberian

features found in o uor.uo.iuirc organisatson. The analysis of

itlir- r.rpoot"s on each of the characteristic feature would

"-"Jft tt to establish th€ extcnt to which the officials them'

selves value thcse structural characteristics of bureaucracy and

whether their value systrm has any correlation with their pcr-

formance in devotoPmontal work'

A set of five questions was put to the -officials to asc€rtain

tn"ir notfoot on the degree of hierarchy that prevailed in

tho bureaucratic structufe' Two of the question-s' (a) whether

;; *Ji;

;;s guided bv his senior officers. fortakios aqv

O."i*ioo on incrcasing agricultural production or ' revenue

;;;;" ancl (b) whethe-r the ofrcer would be rated high

;;;;-"ifi*tt Li tut som€ status' if throush his efforts

"itrc,irt*"r-p;;duction/rtvonuo colleotion in tbe area increased'

Bureaucratic Values in Development

were positively framed, Thre€ of the queetions were negativelyframed to elicit spontaneous replies from the respondents.Thesd werc (i) whether the respondent could take action at higdiscretio in the best interest or bett€r performance of agri-cultural production/revenue administration (ii) whether therespondent hari a chance to take a decision on his own withregard to day-to.day work without consulting his seniorofficers and (iii) whether the respondent had to do certain thingswhich were performed by his superior officers. The results ofscoring were marked h.igh, Eoderatc a11d low and are summarised by departments and districts in Table 4.1 on p. 93,

The division of respondents into high, moderate and lowgroups along the structural characteristic of hierachy showedthat a high degree of valuc was attached to .hierachy in all thethree departmonts of tho two State Governmets.

In Patiala the highest scores were given by the IrrigationEngineers (58 per cent), and more than balf of the officers ofthe Punjab Electricity Board (51 per cent) showed bigh scoreto the value of hierachy. Curiously enough in the non_dpve.fopmental department of Revenue only 42 per cent officersgave high score. to the value of hierachy, Clubbing together tbehigh and moderate value scores on hierarchy, the percentagcof officers of all the departments in patiala varied betweea83 per cent and 80 per sent. Thus the officials of all thethree departments scored high in their values to hierarchy.The low values to the characteristic of hierarchy wero shownby only l6 and 20 per cent officials.

In Morena the offlcials' attachment to the value of hierarchywas on a lower scale. As in patiala the highest perccntageof high value scores was noticed io tho lrrigation Diparrment(46 per cenr) followed by th€ El€ctricity departmsot. (44 p€rcent) both of which are classificd as devetopment departmeotswhile in the non-developmootal department of Revcnue, onty 39per cent of the officials gavc high seor€ to the value sf hierarcby.8o far as the modcrato scores were concerned, the officials of theDepartmcnt of Irrigation rgcording it were 40 per cent, the

92

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officials ofthe Electricity Department 36 per cent and the offi_cials from the Revenue Departoent 27 per cefi. Consideringtbe high and moderato values together we find that the percen.tage of officials in the Electricity, Irrigation and Revenuedepartments conres to 80 per cent, 76 per cent and 77 per centrespectively which are more or less in descending order of theirattacbment to the value of hierarchy in a bursaucratic system.The position is illustrated by Bar Diagrams No. I on p. 95.

A comparative analysis of the above score in the two Stat€sis an indication of tbe fact that the principle of hierarchy hasbeen less rigidly observed in the dishict of Morena than inPatiala. It seoms that all the departments of Madhya pradeshGovernment in this region did takc decisions on their ownon a comparatively larger number of cases in their day-to-daywork. It was so because the officials in this region secmed tohave been committed to bring about a quicker pace ofdevelopment, Because of certain other considerations, parti-cularly arising out of the lanrpant dacoity menace, thcy hadto adopt a less rigid degree o[ hierarchy in their workprocedures.

Assuming that all the depsrtments of the punjab Governmentare uniformly and highly hierarchic in their structure, we applythe Xz (chi-square) test. The value is found to be assmall as 5.55 which is very insignificant at 5 per cent level ofprobability for 4 degrees of freedom (2 degrees of freerlonfor three departments and 2 degrees of freedom for three scalesof values). Thus it can be concluded that there is no signifi-cant association to the value of the hierarchy as a bureaucraticcharacteristic between the developmental and regulatorydepartments in the State of punjab, The groups of officers inahe three departments of Government of punjab have securedmore or less similar scores to the value of hierarchv. therebvdemonstrating that the rigidity of hierarchy may not necessarilyaffect the accomplishment of development goals.

Similarly in the case of the officials of the Morena districts,the Ir (chi-square) value is onty 1.98 which is very insignifi-

95The Structural Values

High

Mod e roteLow

High

ModeroteLow

HighMo'derole

Low

llighMo dero le

Low

HighModerote

Low

PATIALA OISTRIST

E lectriciiY DePortmrnl

trrigotion DePor lmenl

Revenue Deportnent

ElectricilY DePortrcnt

Irr iEotion Oeportmenl

Revenue DegortmentHighMo det ote

Low

BAR OIAGRAM \g' I

HIERARCHY

Parcento9e

96 Bureaucratic Values in Doelopment

cant for 4 degrees of free dom. Thus there is not much ofassociation betwesn the scores to the value of hierarcby rn thethree departments in the Government "f frA"if,y"'pr"Oesh Thisreinforces the conclusion arrived at .a.tiu in ine lase of theState of Punjab. In fact the scores of the three sets of officers ofthe (iovernment in Madbya- pradesh on tne Jue of hierarchyare similar. The extent of variation arnong the officials ofdifferent departments is only marginal. tt c"an it J.rfore, treobserved that notwithstanding the .need, for oUr"rning t.s,rigidity in the bureaucratic characteristic "f d;;;;; secure aquicker-pace of developmenl there is ,"t .;;h;#;rence in tteofficials'outlook towards hierarchy

", " ;;i;, ;rr;ecrive ofthe fact whether they are ,ogug.d- io arurfoprloiu]-'turt, o,regulatory tasks.

Division of Laboar

Division of duties aod the assigamont of 0xed responsi bilitiesamoDgst its members is an important characteristic of aburealcratic organisation. Two direct questions--ielating tothe division of duties among the senior and luoioioinclut, unAa third related question whether the seni,or officers liked toassume responsibility for the acts of commissions or ommissionsof the junior officers were put to the respondents. The twon€gatively framed questions whether the officers hacr to performthe- duties normally done by. senior officers (vertical Oivision)and whether thc officers had to do ,ort Aon, by theircolleagues at the same lever (horizontar aivisiooiw"r" asked toelicit cross replies in respect of division ui fulou.. Theexistence of vertical aud horizontal division

"f ;;; amongstthe officials obvlously gave some idea of the prevalenr struct-ture of official responsibilities in the departm"nt. it

" ,.pti.*were tabulated and are presented in a summarised form inTable 4.2 on page 97.

- The division of respondent officials securing high, modcrateand-tow value scores in respecr of division ;ai";;:r; is sbswsby the Bar Diagram No. 2

97

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Thf, Structwal Values

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98 Bweaucralic Yalues in Development

HighModerolc

Low

HighMo derole

Low

High

Mo derdleLow

HighModeroleLow

High

ModeroteLow

High

M o dero ieLow

BAR OIAGRAM NO,2

DIVISION OF LABOUR PAIIALA DISIRIC?

Eleclricily DePorttnenl

trrigolion Oepqrlmrnl

Revenue Deporlmrnl

I,IORENA DISTRIC?

Eleciricily Dcportment

lrrigolion Deportmcnl

Revenuc Deportmcnt

Percentoqe

The Struaural Values 99t

In Punjab the pero.ntage of officers with high value scoreson thc oharactoristic of Division of Labour was maximumin the Electricity Board and the Revenue Departmeot(about 5l per cent each) followed by the officers in thi lrriga-tion department (48 per cent). Tbe percentage of ofrcers withmoderate scoro was the highest in the Revenue department(44 per cent) followed by 40 per cent in the Irrigation depart-ment,and 36 per cent in the Electricity department. Clubbingtogether tho high and moderate values, the officials of the-Revenue department with 95 per cent scores gave a highconsideration to tho value of the division of duties leaving.hardly 5 per cont officials who attached a low value to this.characteristic. Within the development departments the irriga*tion engineers indicating 88 per cent score followod by g7per cent of the officers of the punjab Electricity Board attachcdeither high or moderate values to the characteristic of divisionof labour. But the x2 (chi-square) value, being as insignificantas 4.07 for 4 degfces of frcedom, indicated thai so for as thoirattitude to the characteristic of the division of duties wasconcertred, oo the whole there was not much of correlationamongst thc oftcials of three departments in the State ofpunjab_It was, however, noticed that the Class I ofrcers worked undera less rigid system of the division of duties while the Class Ilaqd Class III officers restricted their performance mostly inaccordance with the division of duties. Thus the degree ofbureaucratisation on account ofthe division of duties did notshow much of an inter-departmental correlation.

The same pattern also emerges in Madhya pradesh. Thepercentage of officers in the Revenue department indicatinghigh values to the division of labour was marginally higher at48 per cent compared to 46 per cent of the,Irrijation deparrmeut-Tbe percentage of such officers in the M.p. Electricity Boardrwas, however, 46. The' perc€ntag€ of officers ia the two develop:.ment departments with moderate ocorcs was, however, as high,,as 38 per,cent.and 35 per cent io the Departments of Electricity,and Irrigition r.cspCctivclyr against 29 .per cent ia the ,non-dow-.:lopmental f)cpartment of Revenue. The Xs (chi-square) value.in this caqg,ie alsq aslowas, a83:for.;4 degrees of froedon.-

100 Bureaucratic Values in Development

Thus thcre was not much of inter'departhental corre'latioxship

in the application of the principle of division of labour arDongst

the officiats of the thrce dopartments. This also proves that

the Division of Labour was ao cssential characteristic of any

organisation engaged in aoy kind of aotivity and was not an

obstacle in the process of development.

System of Rules

A prcscription of elaborate rules and procedures govetns the

operations of offices in any system of government. This is an

essontial leature of bureaucratic organisation as rights and

duties of incumbents holding various ofrcial positions are

derived from the sYstem of rules.

Tbe system of rules not only graots the ofrcial powers butalso limits their jurisdictions' Howcver, the same characteristic

becomes dysfunbtional when the rules are observed literally toprevent or obstruct action. A sizeable proportion of respon-

dent officials, both in Patiala and Morena, obscrved that their

responsibilities and powers were highly codified and their

work was rnore or less governed by elaborate prescribed rules'

ln ordcr to measure the valuc scales of the respondent ofrcials

on tbe characteristic of'system of Rulest, a set of five questions

was put to them-three of them were postively keyed questions-'(i) whether tbere were adequate rules and regulations to guide

them in their work, (ii) whether the officer went strictly by. rules which meant more paper work and delay in the implemen-

tation of devclopment programme/revenuc administration, and(iii) whether the superior ofrcers would reprimand, if the rules

were bypassed. The two were negatively keyed qucstions: (i)'whethcr the omcer was in favour of changing the existingrules in th€ interest of development/revenue collection and(ii) whether the ofrcer could cut short the systom of rules andiake porsonal interest for expediting the availability of water/power and postpooing rev€truo colleotion. The replies as{abulsted aro pmocatcd in Tablc 4.3 on pagc l0l.

Fros thc teblc it will be clcar that 79 por ccot of tho

l0t

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Tbe Structwal Values

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'co B-+n'91

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1(a

f 02 Burearoratic Valats in Developuwt.

ofBcials in the Department of lrrigation, 73 per cent of theofficials of the Department of Revenue and 64 per cent ofofficers of the -State Electricity Board in the Government ofPunjab were ofthe opinion that their duties were highly gover-ned by the 'system of rules.' These high percentages of highvalue scores were on account of the fact that tho officials rigidlyfollowed the prescribed irrigation, electricity and revenue codes.

This was so evcn in those cases where a Minister or a Memberof Parliambot or State Legislature wished to havo an irrigationoutlet at a place where his supporters wanted to have it, Theofficers would always look into such cases according to theirmerits and in accordance with the procedures proscribed in thErelated codes as also on the basii of the technical feasibilities..Considering thc bigh and moderate value scores together, wcfind that about 93 per cent of the officers of the Irrigation andRevenue departments preferrcd to rigidly stick to rules. Theattitude of the officers of the Electricity, Board did not signi-ficantly differ. They also closely followed their counterparts inother departments and the percentage of officials having highand moderate scores on this value was 84,

In Morena also the pattern was the same, but the percentagesof offrcials having high value scores were only somewhat lowor'than in Patiala. High values were scored by 64 per cent, 57 percent and 55 per cent erfficers of the Revonue, Irrigation and,Electricity departments respectively. Moderale value score,were given by 32 per cent, 28 p€r cent and 22 per centofficials in the Electricity, Irrigation and Revcnue dcpartmentsrespectively. The low value scores in the two developmentdepartments were hardly different from those in tho RevenuEdepartment which were given by 14 per oent officials only. Tbuait seems that the officers of Madhya Pradesh Government in allthe departments, developmental or non-developmental, observedthe sanctity of rules and procedures for their day.to-day work,even though they were conscious that this often led to avoid-able delays in thcir performance. Dospito this, howcver, theyfelt it necessary t6 stick to rules !g protect themselves againstany possible frivolous complaint.by any p€rson. The positionis illustrated by Bhr Eiagram No;.,3 on page 103.

The Structural Values 103

'High'Modero{e

tow

'High

ModeroteLow

'fiighModerole

,Low

:High

Moderole

. Low

rHigh.Mo deroleiLow

HighlMo deroie!!-ow

. gAR DIAGRAM NO.3

SYSTEM OgRULES PATTALA DTSTRTCT

Electricily Deporlment

lrrigoiion Deporlmenl

Revenue

MORENA

Oep or t men t

DISTRICT

Electrici ty Oepoilment

Irrigotion Oeporlment

Reven ue Dep or tnent

Fer ce nloge

104 Bureaucratic Values in Developmen9

The X2-(chi-sguare) value for officers in Patiala which is 9,69'slightly exceeds 9.488, thg critical value for probability level of'.05 for 4 degrees of freedom. Observations are thus clearlyopposed to the hypothesis that the perc'eptions of officials are-

independent of departments. It seems tbat the observance ofrules in the Depaftments of lrrigation, Electricity and Revenue,of the State of Punjab is significantly correlated. A strictadherence to rules and procedures in tbe development depart'ments in conformity with the practice in the Revenue Depart-ment has not bindered development in Punjab.

The I'?-(chi-square) value for scores on system of rules inMorena on tbe other hand is 2.83 which is insignificant at 5 percent level of probability, It suggests that the observance of thssystem of rules is more or less independent of the development-and non-devetopment character of the departments in MadhyaPradeeh, A comparative analysis of the scales of values onthis characteristic shows that the progress in the electrificationand irrigation projects in Punjab has in p actice been possiblaeven when there was rigid emphasis on thc observance of system"of rules. Thus in developmental work functionality does notseem to be affected by a rigid application of the rules an&procedures,

Selection on Merit

Thc usual selection procedures of officers in the State services.of Punjab and Madbya Pradesh are through (i) competitive testsand interview, (ii) interview only, (iii) references by the em-ployment exchange with final interview by a Selection Board of'the Department/Subordinate Service Commission and (iv) pro-.motion from lowor category posts.

In Patiala it was found that 87 per cent of the officers of tho'State Electricity Board were selected either by the PunjabPublic Service Commission or by the Special Selection Board, a.procedure which is adopted to eosure setection on merit. Theofficers of Class II service are directly recruited by the Public

The Structaral Values 105

Servicc Commission or the Special Selection Board from

amongst the first class engineering graduates who alone are

callecl for interview. After selection and training on probation

they are posted as Assistant Engineers in various ofiic-es' Exe-

ccutiv" Bngineers are usually promotees fron Assistant Eniinocrs

with good record of service and seniority'

The Class I[ engineers in tho Department of Irrigation are

also recruited on a quota basis-(i) l0 per cent from amongst

those having AMtE degree; (ii) 10 per cent from amongst junior

engineers holding diplomas; (iii) l2'5 per cent from non'diploma

holder engineers; and (iv) 5 per cent from the drawing and

design staff. The rest are directly recruited from amongst the

civil engineers holding graduate degree. To ensure selection on

merit, the recruitnrent is done by the State Public Service Com-

mission where First Class graduates are only called lbr inter-

view, Only 65 per cent of posts in Class II service of the

State Electrioity Board are ditect recruits while 35 per

cent of the posts are filled through a promotion from Class IIIpersonnel. Recruitment to Class III posts is dont 9n a quota

6asis; (i) 34 per cent are recruited directly; (ii) 33 per cent

through promotion from amongst the diploma'holder linesmen;

and (iii) 33 per cent through promotion frorn amongst the oon-

diploma holder linesmen' who belong to Class IV service' To

ensure selection on merit, the screening is done by a special

Selection Board constituted for the purpos€.

The Class III officers are selected on the basis of merit by the

Subordinate Setvice Selection Board. At the time of our in-vestigation almost all the officers of the Department of lrriga-

tion were found to be directly recruited through interviews

onlY.

The Punjab Public Service Commission recruits officers insenior and junior class II service for the Department of Revenue'

The Deputy Collectors either get into the I.A.S. in tho pro*

motion quota of State Civil Service or get a selection Grade on

the basis of seniority and good record of service. The junior

106 Bureaucratic Yalues in Development

officers of the Revenue Department usually come eirher directlyor from various categories of State services. Only 1g per cent ofthe respondent officers of the Department of Revenue werefound in our survey to be promotees and the rest were directlvrecruited.

In Madhya Pradesh the pattern of service personnel in all thethree departments resembles the pattern obtaining in punjab.Recruitnent to Class Il posts of the Madhya pradesh StateElectricity Board is made both by direct selection and alsothrough promotion. The quota for direct selection is 75 percent while 20 per cent are rccruiteci from amongst the sub-engineers holding diplomas and 5 per cent from amongst thedrawing and designing staff. The executive engineers are Class Iofficers promoted from Class II, the minimrrm experiencerequirement being 8 years. During the survey, about 92 percent of the respondent officers were found to be selected throughinterriew and 8 per cenl were found to be prornotees.

In the Irrigation Departmcnt of Madhya pradesh the CanalDeputy Collectors and Irrigation Inspectors are of the grade ofa Tehsildar or a Naib Tebsildar respectively. The selection onnerit is ensured through the institution of State public ServiceCommission and the Departmental Selection Board. About8l per cent of the respondent officers were found to hav€ beenselected through interviews and 19 per cent through promotion.

In the Department of Revenue, Deputy Collectors who aresenior State Civil Service Offcers .."ruitrd by the MadhyaPradesh Public Service Commission, are eligible for promotioninto the I.A.S. after 8 years of meritorious service on a 33 percent quota basis. Besides this, l0 per cent of the DeputyCollectors can also get into the selection grade. promotion ofvarious junior grade service personnel is also allowed in thetcrvices of the Department of Revenue. Even the Class IIIofficers including Naib Tehsildars are composed of variouspersons coming from other departments, Only g per cent ofthe officers in this Department were found to be promotees and

'.:The Sfiuctural Values lg7

30 per cent wer€ selected directly through interview and tests.and the remainder through 'interview only.

A negatively keyod question whether there was a feeling thatit was difficult to get a government job without usiog some kiud .

-of influence was put to the fespondents. About 84 per centrespondents in the ReveDue Department of the Punjab Govern-ment shared with the fceling partly, while only 16 per cent of-

'the respondents fully shared it. About 82 per cent of theofficers of the Department of lrrigation shared it partly while

'only 10 prr cent shared it fully. The remaining 8 per ccnt didnot agree at all. The position was more or less the same in the

"'case of the respondents from tbe Punjab State ElectricityBoard where 57 per cent ofthe officers shared the feeling partlyand 3l per cent shared fully with the premise. Only 12 per centof the respondents did not share the feeling at all. The scores.on this value are shown in Table 4.4 on page 108.

In the case of the district of Morena in Madhya Pradeslr, an-overwhelming 75 per cent of officers of the Department ofIrrigation sirared the feeling partly while 12 percent shared

"such a feeling fully and ths rest of the 13 per cent did not sharethe feeling at all. In tho Department of Revenue about 71 per

-cent of tho respondents agreed partly with the idea while only17 per ceot shared the feeling fully and the remaining t2 per

.cent did not agree with it at all, In the case of Madbya PradeshElectrioity Board, 62 per cent of the officers partly shar€d the

'feeling with only 8 per cent believing in it fully. The, remaining30 per cont did not believe it at all' The above findings clearlyindicate that a majority of the respondents have at least a

'partial feeling that the selections are not always made on merit.It seems also clear that even in a bureaucratic system the actualperception of the ofrcials about an essential Weberian characte-

-ristic sho "vs a lot of divergence. The creeping up of a feeling.that the selertions to official positions are not always made on'merit, howsoever vague or biased, hamper the performance of.individual offioials as th€y tend to be less motivated in theirwork performance. It also indirectly casts reflections on the

rimpartiality of the duly constituted Boards for the purpose of

Bur eaucr atic. Value s in Develop ment

s€

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The Structural Values 109.

selection of officials, This may also present some obstacles ipthe accomplishment of developmental activities. Such-a v4lue -

perception of the officials needs to be remoulded for rcposing,:ing their confidence ioto the system.

To carry it a little farther the-respondents were asked a ques-

tion about thc main criterion of selection and advancement.

Here, of course 87, 90 and 100 per cent respondents belonging.:

to the Departments of Electricity, Irrigation and Revenuo res''peotively of the State- of Punjab said that seniority in the'government sorvice either in their own or other departments was..

the sole criterion of promotion provided their confidential'r

records were good. Merit was said to be either immeasurable'

or exprossed in terms of the subjective assessments of their''senior officers and had littlo importance for promotion. Some'

officers did maintain that good and bard work was of some '

consequence in promotion. At the same time, however, accord''ing to them promotions on tho basis of certain extraneoqs con'siderations did not amount to more than 10 per cent ofthe 'cases.

Tho position in Madhya Pradesh was somewhat different''-

Against a high response of the officials in the State of Punjab

only 63 to 67 per cent officers of all the three departments in."

Madhya Pradesh found that seniority in service eitherinthe'parent or other departments was the main criterion for'promotion and advancement of career' At the same time-about 26 to 3l per cent of the officers of the three departments '

maintained that hard and good work di<i merit promotions'

Extraneous considerations or inffuence was oot of any major -

consequence.

In view ofthe above findings, it seems to be surprising tbat'officials in both the States should share a feeling that the'recruitmont and promotions in government scrvices are

not based on merit. An overwhelming majority of cfficers 'partly carried that feeling and a good number of officers even '

fully shared the feeling without any factual basis' Officials''tend to have the feeling that in majority of cases, employment

"1 l0 Bureaucratic Values in DeVeloptnent

"or promotion in the government servioe, irrespective of the;departmeirt . is based on consideration other tfian merit.,Although the olficials could not substantiate their views in thisregard, with concrete instances, but the very fact that theyshare this sort of value perception shows a disturbing trend inthe accomplishmeot of their prescribed responsibilities. The

.existence of such values amongst the officials tend to demoralisethem and comes directly in the way of their work performanceirrespcctive of the fact whether the task was regulatory or'developmental. It is, therefore, necessary that such feelingsamong the officials are mitigated. This would lead to bettirfunctioning of the officials by boosting up their morale fordevelopmental and non-developmental work.

. Impersonality

One of the structural characteristics of a bureaucratic system is',impersonality observed by the officials in their official dealirgs,We tried to examine the extent to which this characteristic was

,upheld by the officials in the three departments of the two"State Governments. In the section of .Impersonality,

we putsix different questions as shown in the officials' Schedule atAppendix IL Two of the questions related to the respondents'

'tendency to become closer and friendly to the people in the.course of their official dealings. In our field investigations, wewere told by the various officers that a large nrajority of the

.Government officers did not have the facility of housing and as

..a result they had to seek the help of private landlords not only

. at the district/sub-divisional headquarters, but also at the blockheadquarters where there was acute shortage of reasonably good.accommodation, The landlords very often preforred to have"officials as their tenants for they thought that they w€re not.only good pay masters but were also in a positiob to help them'in their dealings with various officials. ln such conditions itwas really very difficult for the officials to refuse to entortaintheir requests which were at times unreasonable and impinged

-on the impersonal characteristic of bureaucratic behaviour."kaving aside the replies to these questions on the clopeness to"tho people (Seo Appcndix II) for the time being, replies in

The Structural Values 1l Pr

fespect of other four questions were analysed and tabulated,.Table 4.5 on page I l2 gives the findings.

It will be observed that the officials in the (non-devclopment)'

department of Revenue of the Government of Punjab strictlyfollowed tho principle of impersonality in their official dealings

in as much as 93 per cent omcers said that they followed

this principle scrupulously with only 7 per cent observing itmoderately and none against it. The f)epartment of Irrigation'of the Government of Punjab was the next in order. About:34 per cent offrcers had high scales of values for impersonalityfollowed by 14 per cent omcers with moderate scale of values

and 2 per cent respondents with low value scales. The same

trend was more or less noticdd among the officers of the Punjab'State Electricity Board where 72 per cent officials attached highvalues to impersonatity. Only 25 per cent officers of the Boardsaid that they were following it moderately and 2 per centofficers attached low values to this characteristic.

The same trend is noticed among the officers of theGovernment of Madhya Pradesh. About ?l per.cent officers.

of the Department of Revenue attached bigh values to the

impersonal ways of worlcing, and only 22 per cent officers

attached moderate scales of values to impersonality' The

officers of the Dopartment of Revenue according low values to'impersonality formed only 7 per cent. The trend is similar in,

case of ofrcers of the Department of lrrigation where about.

56 per cent respondents attached high values to impersonality'

followed by 35 per oont observing moderate values' The-

officcrs attaching low valucs were less than 10 per cent. In case

of officers of the Madhya Pradesh Electricity Board' 5'l per

cent attached high values and 23 per cent each attached mode-

rate and low values to impersonality. The Bar Diagram No. 4'

on page I 13 cleatly iilustrates the comparison of thc values.

The X2-(chi-square) value of observations at Patiala for four'

degrees offreedoin was foundlto be very high at 15.13. Thiswas due to very s'ide variations in the high, moderate and lowvalues of porception " .of,all otiEcers especially the officers of the

Rureaucratic Values in Eevelopment

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We Structural Valaes in a Bureautatic System I 13

B3 jlagBAu-lg.g

IMPERSONALITY PATIALA OISTRICT

:HiEh

Modero le

L orv

.High

Electrici ly OePor tmcnt

Moderoie,LOw

,H19h

,Modcr ol e

Low

High.Moderole

Low

HighModerote

Low

'Hi9h

Mo dorofetow

lrrigotion DePortmcnt

Revenue DePcrlment

MORENA DISTRICT

Etec tricilY DePortment

lriigotion DePottmenl

Perccn lo gr

114 . Bureaucratlc Values in Development.

Department of Revenue. The distribution of opinion scales ofofficers of the State Electricity Board and the Department ofIrrigation was also very skew, an overwhelmingly large percen-tage

-of officlrs indicating in favour of high values ior imper_

sonality. The valuc of Xr.(chi-square) is very significant forsuch a skew distribution. It can safely be concluded that theofflcere of the Department of Revenue of the Government of,Punjab observe impersonality in their official behaviour as thesine.qua-non for all official dealings. The officials of the.D€partments of Irrigation and power also closely follow theofficials of tbe Department of Revenue in the observance ofimpersonal dealings with the bencficiaries. Officers of both the.developmcnt and non-development departments of punjab showhighly simitar attitudes in dealing with their clientele on animpersonal basis, Such impersonal attituds on the part of theofficials does not seem to have hampered the pace oi develop*ment in Punjab.

The-X, (chi-square) value for your degrees of freedom for theofficers in tho Morena district was found to be still higher at.41.34 which is very significant at any level of probability. Hereagain we find that the officials of the Departoent of Revenue.strictly follow tho principles of impersonality in tbeir day.to-day dealings. But as compared to the officials in patiala they.are less rigid. More than a quarter (27 per cent) of officers hersattach moderate scale of value to impersonal dealings with the.public. Low values are attached to impersonality

-by onty 13' per cent officers, More than half of the officers in the Electricity

and _ Irrigatioo Dcpartments of the Government of Madhya

Pradesh are also very impersonal in their day-to-day dealings.The officials of the power Board have modlrate and low per.ception about impersonality in 23 per @nt cas€s each. Aboutj35 and 9 pex cent officers respectively of thc Department of lrri-gation attach moderate and low perceptions to this character-,istic. Thc tendency to observe impersonalily in deating with.theclientele in Madhya pradesb seems to Ue nigUty correlated inboth the dovelopment and non-development deiariments.

On tbe whole, it can be said that ,impartonality' as a valua

il5The Struatural Vahes

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1t6 Bureaucratic Yalue s in Developmatt

seems to be deeply imbibed by the officials in all thc different

departments in both the States. At least this is what many ofthese officiats publicly admit. However, as observed earlier

mrny of the officials do become friendly and closet to some

people during the course of their official work and this fact does

affect their:attitudes and actions toward s ti.em. This is clear from

Table No, 4.6 on page l15, based on the officials' replies to

the question relating to their becoming friendly to the people

in course oftheir ofEcial dealings. flowever, tbo above findings

do not explicitly indicatc whether such a tendency on tho part

of the officials affect the developmental activities, and if so, inwhat mann_er and to what consequences. Presumably, in real

lifc situations, non-observance of this bureaucratic characteristicby the officials in some cases helps them to oblige certain oftheir acquaintaoces or friends in expediting official actions butdoss not have major consequences on the achievemonts of large'

scale developmental goals.

SUMMARY

The four structural characteristics of bureaucracy namely

hierarchy, division of labnur, system of rules and impersonality'were tested slatistically in the light of replies given by the

officials belonging to the three departments of the two State

Governments under study. The findings discussed aboveexplain the extent to which tl'e officials in the differentbureaucratic set-ups in India share thesc values. The studyshows that the characteristics exist predominantly in the non-developmental departnrent of revenue administration as also

to somewhat lesser extent in the developmental departmentsof both the States. A comparison of the percentages ofhigh, moderate and low values attached by the officers of theparallel departments in Punjdb and Madhya Pradesh brings tolight some discernible trends. The comparativ€ analysis of suchvalues amongst the officials of the State Elcctricity Boatd inboth Purjab and Madbya Pradesh has been summarised lnTable 4.7 on p. I l?.

The Etructural Yalues tt7

TABLE 4.7

State Eloctricity Boards(Percentage)

Characterlstlcsof Bureaucracy

Patlalu MorenaHigh Mode- Low

raleHigh Mode.

fateLow

l.)

Hicrarchy 5l.l 30.3 18.6 43.8 36.2 20.0

46.2 38.4 15.4Division ofLabour 5l. t 35.9 13.0

63.5 20.3 16.23. System of

Rules 54.6 31.6 13.8

4. Impersonality 72.3 25.3 2.4 53.9 23.1 23.0

Amongst the officers ofthe Governoent of Punjab, out of thecharacteristics studied, impersonality shows the bighestscore (72 per cent), followed by the system of rulos (64 perocnt), and the division of labour and hierarchy (jl per centeach). Moderate scale of perceptions is also very bigh amongthese officers. This means that despite development activities,the officials of the State Electricity Board in punjab value tbebureaucratic characteristics in the order of impersonality,system of rules, hierarchy and division of labour.

More than half of the officers of the Madhya pradesh StateElectricity Board attach high importance to the system of rulcsand impersonality (54 per cent each), followed by division oflabour (46 per cent) and hierarchy (44 per ccnt). It thus seemsthlt somewhat more flexible attitude has been observed by theofficials to the characteristics of hierarchy and division of labour,whioh secm to have led to increase in the tempo of developnreutin the initial.stages.

Regarding the officials engaged in another developmentalactivity -that ofthe lrrigation Department, it cnn be seen fromTable No. 4.8 on page ll8 that officials of both the punjab

Bureauqatic Values in Development

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The Sftuctwal Values I 19

and Madhya Pradesh Government (84 and 56 per centrespectively) give the highest importance to impersonaldoalings towards the beneficiaries followed by the observanceof rules (79 and 5? per cent respectively) as given in theirirrigation codes. The difference is however of degree in boththe cases. It will be further observed that wbile the officersof the Government of Punjab are very rigid in the observance

of these two values, the majority of officers of the Governmentof Madhya Pradesh also attach high values to these character-istics. So far as the other characteristics are concerned,Punjab is somewhat flexible io the case of division of labour.But in Madhya Pradesh the number of officials attachinghigh values given to the division of labour and hicrarcby varybetween 4l per cent to 46 per cent. Nonetheless they conformto the essential oharacteristics of buroaucracy. The lowsrpercentages of low values given to theso two characteristics inMorena may be due to the fact that during the shortperiod of developinent (7-8 years) of Chambal irrigation net-work, the department could not afford to be very rigid in thenew tasks of extending irrigation command areas.

How€ver, a slightly different pattern emerges in the case ofnon-deveiopmental department of Revonuo Administration inthe two States as shown in Table 4.9 on page 120. The

inpersonality and system of rules are the most importaDtguiding principles for rwenue administration in Punjab as

revealed by our respondents while the observance of the division

of labour and hierarchy seems to be somewhat flexible, as

only 42-51 per cent of the officials have scored high on these.

values,

The charact€ristics of impersonality and system ofrules are

also highly valued in the Department of Revenuc of the

Government of 'Madhya Pradesh and emphasised by the.respondent oficials, but tbe extent of'scalo values was less thanin Punjab. Compared to 93 per cent of officials attaching

high values to impersonality in Puojab' the high value inMadhya Pradesh was scored by only 7l per cent' The highvalBos of thc systom of rules was scored by 73 pcr cent officials

120

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Values in Development

7 he Structural l/alues

in Punjab agaiost 64 per cont io Madhya Pradesh. Thedivision of labour and extent of hioraohy showed more flexibFlity in Madhya Pradosh than in Punjab.

It can tius be concluded'that by and large the administra.

tiv6 system showed ao inclination to keep up the Weberianbureaucratic characteristics both in the devclopmcntal and

non-developmental tasks. The element of deviation fromthe strict bureaucratic model was found to be somewhat greater

in tho developoental activities in both tho States-morc inIvladhya Pradesh than in Punjab, but the findings do not

suggest that de-bureaucratization is essential for rapid development. Even for affecting rapid development it was necessary

that a moilicum of bureaucratio characteristics were kept going.

However, findings in the case of Madhya Pradesh do iudicate

the need for flexibility in the system of rules and impersonality

in the initial stages of developmeot. Once the organisationgets going, therc is a tendoocy to absorb more bureaucratio

charactoristios in greater degrees'

r2r

5

Socio-Personal, Socio-Cultural andSocio-Administrative Values

In the earlier chaptcr, an attcmpt was mado to examine the

scales of valucs that the officials attach to some of the Weberian

characteristic of bureaucracy. This chapter is conoerned

with an invostigation of somc of the socio'personal, sccio-

cultural and socio.administrative valuos that the officidls observe

or attach importance to in their official day to day dealings'

The socio-personal values chosen for inquiry aro (a) the integrityof character and (b) the equality of individual, whilo the socio'

cultural valuc investigated is (o) the officers' caste/class biases in

their official dealings, and the socio'administrativc value

enquircd relates to (d) the officials' status consciousness'

Tho post-Woberian titeraturo on 'bureaucracy' has abundaotly

dcmonitrated the tendenoy of the ofrcials to deviate from their

anticipated bureaucratio rational behaviour within the framt'work of their porsonal, social and cultural settings, In tbe

Indian ocology enormous disparities arising out of caste and

cksss structures cxist giving rise to a pattern of administrative

oulture whicb is based on traditional norms and social pressures

While it is generally agrecd that in practice suoh deviations have

an adversc effect on the performance of any type of organisa"

tional goals, it remains to be exmined whether such effcct is fcltmoro in the field of dovelopmental activities than in the non-

dcvobpmc nt al arcas'

Bur eau cratic Valu es in Dev elop men t

Socio-personal Values

Amongst tho various socio-personal values of an oftcial, thetwo important ones, viz, the integrity of character and equalityof individuals were choseo for investigation. To what extentthe officiais engaged in developmental and non-developmentaltasks observe the integrity of their character and treat all indivi-duals with whom they come in official contact act on an equalbasis was the main question. The value scores of the officialswould give an indication of thoir commitment to thcse pres-cribed norms of buraaucratio oooduct in a democratic svstem.

Integrily of Characier

Two direct questions whether the officials agreod with (i) thatno mattor how difficult the oircumstanc€s, the officials nustalways romain above board and (ii) no official can be effective

in his official performaaco, if he constantly tries to accommodate

the requests and wishes of evcrybody were tested along with a

nogatively framed quostion (iii) that administration being wbatit is, one has to compromiso with principles. The replies in res'pect of thesc qucstions relating to integrity of character were

analyscd and are presented in Teble 5,1 on page 125.

From tho table it can be observed that thc majority ofofricors of the Government of Punjab score high on the value ofintegrity of character. More than three-fourths of the officersof the Dopartments of Irrigation (78 per cenl) and Revenue (76per cent) said that the integfity of character was a must for theefricient discharge of their duties. Two-thirds (67 per cent) ofthe officers of the Punjab State Electricity Board were also ofthe samo opinion. Thus, an over-wbelmingly high degree ofconsonsus about a high value to tho. integrity of charactor pre,vailcd amongrt th€ ofricers of the Governmont of Punjab.

Only 18, l7 and 13 por ceot officers of the Revenue, Elocfii.city and Irrigation dopartmolts gave modcrato values to thischaractcristic. Low valuos to the integrity of character wereattachod by 16, 9 and 6 por oent of tho officirle reepocfively in

t24

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Sttclo-Personar, Socio-Cultural and Socio. Adminlstrutive l/oluet

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126 Bureanuatic Values tn Development

the departments of Electricity, Irrigation and Revenue of theGovernment of Punjab.

In case of Madhya Pradesh the distribution of the valuescales was also similar, but the existence of high values weresomewhat less. About 60 per cent officers of the Departmenlof Revenue and 56 per cent officers of the Department ofIrrigation were found to sharo high values for the integrity ofcharacter. However, only 44 per cent officers of tbe StatcEtectricity Board were found to attach high values to integrityof character, Clubbing together high and moderate valuos wefind that in all the three dcpartments, 80 par cent of the omcersattached high and moderate values to the integrity of character.Officials in thc developmental and non-developmental depart-monts did not materially differ in their outlook towards theintegrity of character. The Bar Diagram No. 5 on pago 127showing the differing degress of values for this characteristic ofbureaucracy in the two States illustrates the emphasis given bythe officials to the principle of integrity of character,

It will be seen that the pattern of values shared by officialsiu the two states is similar, Only the percentages of moderateand low values for integrity of character in Morena have gainedat the cost of high values. Nevertheless as many as 60 and56 per cent offic:rs of the Dspartments of Rovenue and lrriga-tion cherised high values of integrity of character whereas44 per cent office rs of the Madhya Pradesh State ElectricityBoatd attached high values to this characteristic. The percen-tage of the officials in the Goverome nt of Madhya pradesh

attaching moderate and low values to integrity of charactervaried between 18 and 6 per c€!t.

In Punjab as many an 78 and ?6 per cent of officers of theDepartments of lrrigation and Revenue resp€ctively cherishedhigh values to the integrity of character while the correspond.ing percentage of officials in the Electricity Departmentwas 67, The percentage of officcrs attaching moderate valueeto this charactertstic varied between 36 and 24, which were

Socio-Per sonal, 8o clo'Cul tural and Socio- Admlnistratlve Values

BAR DIA9RAM N0.5

INTEGRITY OF CHARACTER PNIALAOIS'I8IEI

l.llghModcro leLow

HiClModero teLow

High

Mo deroteLow

HighMo d€roleLow

HighModerole

Low

High

Moderole

Low

Eleslricily Oeportmgn t

lfrigotion O eporl men I

Revenue Deportment.

MORENA DISTRICT

Eleclricity Deportment

Irrigotion Oeportment

Rev enue Deportmenf

Percen logc

Bureauerat ic Volue s in Development

higher than the corresponding percentagcs of the ofrcials ofthe Government of Madhya pradesh.

The l,-(chi-square) values for patiata and Morena in respectof integrity of character are 6.56 and 6.3? respectivcly for4degrces of freedom each, which are insignificant at 5 per centlevel of probability. It suggests that tbe value perceptioni ofthe o$cers of all the departments of the Governments of punjaband Madhya Pradesh are not interrelated. The extent of valueperceptions among officers is independent of the departmentsin both the State Governments. All officerb of the punjabGovernment wcre reported to cherish high values for integrityofcharacter as they thought it essential for development. Theofficers of the Government of Madhya Pradesh did also observethis characteristic of bureaucracy even amidst lot of conflictingand sustained pressures. There is only a slight difference inthe extent of value perceptions among the officers of the twoState Governments, The officers of the Governmcnt of punjabare overwhelmingly in favour of high values of integrity ofcharacter while thc officers in the Government of MadhyaPradesh are very close to their counterparts in punjab in follow-ing the principle. This difforence in inter-State variation seemsto be due to a high degree of development being already achiev-ed in Punjab, while Madhya Pradesh was strll in the thresholdof development.

Equatity of I n ditt idu al s

The practice of treating all citiz€ns uniformly on equal basisnot only prevents any arbitrarioess of behaviour on the part ofadministrators but also protects them against frivolous accusa-tions of favouritisnr by certain aggrievod citizEns.

In order to elicit the offlcials' responses to this value a directquestion whether equality of individuals should be observedwhile implemotrting a developnrent plan and two ncgativelykeyed qucstions*(i) whether the proposals of leaders who enjoysome public support arc favourably considered, even thoughthcir proposals may be unsound and (ii) whcther the richer

128

Socio: Fersonal, Socio-Cul tural and Soc io' A dmini strutive Y alues

farmers get all possible production aids while thc small farmersare generarly ignored wete put to them. The replies were

tabulated according to scales of valucs for the two districts andare prcsonted in Table 5.2 on page 130.

The differences in scales of values attached to the principle

of equality of individuals by tbe officers of the three depart.ments are illustrated by Bar Diagram No. 6 on page l3l. Thepercentage of high values in respect of equality of indi-viduals vary from 57 per cent in Irrigation Dcpartment ofPunjab to 5l per cent in Electricity Department. But in the

last case this percentage is followed by 43 per cent of moderatevalue whereas in the Electricity and lrrigation Department thepercentages of moderate values are 40 and 35 respectively.

When high and moderate values are considered together, tbe

total pcrcentage varies between 92 and 88. Thus it can bo said

that the principle that individuals should be treated equally

is the uppermost consideration of officers of all ths three

departments in the Government of Punjab.

In case of Morena, the highest percentage of high values are

attached by the officers of the MP State Electricity Board

which is 49 per cent High value p€rcentages in the lrrigationand Revenue Departments are 44 and 38 respectively. But

these percentages are followed by fairly high percentages ofmoderate scates of perceptions of the officers of the Revenue (31

per cent) and the Irrigation (28 per cent) departments res-

pectively. In the Revenue and lrrigation departn;ents 3l per

ceot and 28 per cent officers are found to attach low values tothe principle of treating individuals on an equal basis' There

is thus considerable difference in role perceptions of the officers

of the Gov:rnment of Punjab and the Government of Madhya

Pradesh. It was not clear, however, why about one-third ofthe officers of the Government of Madhya Pradesh attached

low values to the principle of equality of individuals. May be

this was due to the fact that the officials beilg constantly underall kinds of pressures felt that it was difficult for them toadhere to this principle in practice. In order to realise theobicctives some occasions for biased treatment of clicnts or

Bureaucratie Valws in Developmcnt

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S oc io-P ersonal, Soc io- C u I t ur al aud S o c io' Ad mini s t aI ive V alue s

BAR DIAGSAU--NO-g

High

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High

Moderote

[ow

HighModerote

Low

High

Moderote

Low

HighModeroteLow

HighModerote

Low

Electrici ty OePortm;tt

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Flevcnue Ocporttnant

MORENA OIS?RICT

Elcctricity Deporlment

lmgofion Oeportmeot

Reven uc Oeportment

Percen to ge

t32 Bureauqatic Values iit Developmmt

citizens might have arisen, and they had to unwillingly sacrificethis principle for the sake of expediency.

There is also some difference in the pattern of their role per-ceptions. The X'z-(chi.square) value is as low as 3.12 for 4degrees of freedom for Punjab whereas it is as bigh as 9.23 forMadhya Pradesh of6cers. The latter is, of course, just statis-tically insignificant at 5 per cent level of probability. The pat-tern of role perceptions about the equality of individuals is,therefore, very muoh alike with the officers of all the threedcpartments of the Governments of Punjab and MadhyaPradesh, and the role perceptions in various departments of thetwo Statc Governments are not correlatcd. In Punjab the lowvalue scales get reduced because the high value percentages are

much higher. In Madhya Pradesh, however, the differences inpercentages of low value scales and moderate value scales andeven the high value scales are much less. Otherwise there is noporceptible difference amongst the development d€partmentsas compared to the non-developmental departments of eitherGovernment.

Scoio-Cultural Values

Amongst the many socio-cultural values which govern an offi-cial's behaviour, caste and class considerations were taken as

the main indices for investigation. Normally the bureaucracyis supposed to be free from all caste, class and parochial con-siderations. But in a developing country like India disparitiesin caste or class structures are very diverse and varied, In vari-ous Five Year P.lans for socio.economic development, ways andmeans have been sought for ren;oval or mitigation of casteand class inequalities. Special provisions have been made fortho development of people belonging to backward classes/cast€sand communities. In many places minimum needs programmeshave been provided for betterment and improvement of peoplebelonging to the poorer sections of the society. Special pro-visions have been made in the Five Year Plans for the uplift-ment of the small and marginal farmers and the weaker sectionsof the society. The officials at various levels are, thereFore.

So c io'P erc o na t, So c lo-C ul t ur al and S o cio- Admlni st rativ e Val uei :.

entrusted with special responsibilities in respect of such develop_ment programmes. It waS, therefore, thought desirabte to puta few questions to the officials about the natur€ oftheir duties.Five questions; (i) whether parochial and caste consideratiofsplayed an important role in development administration in thoofficial's work areas; (ii) whether development plans and poli-cies were often modifidd to suit certain locally dominant castes/classes/religious groups; (iii) ft'hether sites of developmentprogrammes were selected on caste/class considerations; (iv)wbether preferencc was given to small and marginal farmersand economically weaker sections of the society and (v)wbether in respect of developmental work preference was givento different classes, especially the depressed ones in the society,wero put to the respondent offcers. The replies were analysedand are summarised in Table 5,3 on page l3l,

The picture that emerges here in case of caste/ctass consider-ations is somewhat iomplex. The development departments ofthe Government of Punjab attach very low values to theseconsiderations while the non-developmental departmcnt atta-ches some importance to these considerations. The officers ofthe Government of Madhya Pradesh in all the thre€ departm€ntsattach some consideration to these factors. The position isillustrated by Bar Diagram No. 7. on page 1 5.

So far as socio.cultural values are concerned, the of6cers ofthe Government of Punjab belonging to developmental andnon-developmental departments show the samc pattern ofbebaviour. An overwhelrning percentage of officers of theElectricity and lrrigation Deparments, viz 84 per cent each,and 60 per cent of the officers of the Revcnue departmentattach low values to caste and class considerations. In factthe small and marginal farmers and the weakor sections of thesociety cannot afford individually to own an elcctric or dieselpump for augmenting the agricultural production. TheState tubewells have to be constructed by th€ State Govcrn-ments frrr helping them in a collective way. Thc areas oftho district of Patiala surveyed by us did not bavc any statetubewell although thc watcr level is high in that rcgion,

Bureauer atic Yalues ln Development

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Soclo-Personal, Socio'Cuhural and Sxio'Administrati'te Values

HighModerote

Low

High

Moderote

Low

High

Modaro te

Low

HighModerotrLotY

High

Moderote

Low

High

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trngotion DePorlrnent

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Electri citY Oepor tmcnl

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Percentoge

PATIALA OISTRICT

136 Bureaucratic Yalaes ln Developm ent

Thus the officers of the State Electricity Board did not havsmuch opportunity to give high considerations to caste or classfactors. Only 27,16 and 14 per cent ofolficers of the Revenue,Irrigation and Electricity Depart.mgnts attached moderatevalues to this characteristic. The corresponding percentages forlow value perceptioos were very low.

In case ofirrigation, the network of canals in patiala, bothbelonging to lrigation Work Department and Bhakra-Nangalsystem are fairly old. The present irrigation activities aremostly in respect ofstrengthening these canals to bring in morewater that is available from tbe Beas river. There is, hardly,any scop€ at'the present moment to give caste/cldss coqsidera-tions in thc availabrlity of water for irrigation, It was, there-forcn, Snnatural to apportion high valtis for them to theeecgbgidcfdtions. Thus 83 per cent of the officers of rhe lrriga-ation department were stated to have attached low values follo-wcd by 16 p€r cent and only I por cent respectively for mode-rate and higb value to caste/class considerations.

The position of officers belonging to non:devetopmentaldopartment was somewhat different, On account..of tbe cons-tant bammering from the administration the p€rceotage ofofficials attaching low values to caste/class

"oorid.rurroo ,u,

only 50, followed by 27, artd 13 for modorate and high valuesrospectively.

Thc pattern of socio.cultural yalues in Madhya pradesh thatcmerg€s as a result of the enquiry is different, In the.<lepartments,the percentage of officials attaching somewhat nigi values ;grete/class considerations.v1y betwien 15 to 2J pei cent only.In case of the Electricity Department the ieicentage oflow values were held byas large as 5l per ceni offiicials. Itwas gathered during discussions. with the officials that thewiring of the transmission and distribution lines oilpower nadvery littlc to do with weaker section. uoa tn" lines weredrawn strictly according to poteotiality of agriculturalproduction. In case of the Depaitment of irrigatiol tow scalevaluess werc indicated by 4l per cent of the oftleis aeainst l+

Socio-Pdrsonal, socto'Cuhur'al and Socio'Administrotive Valueg ' '

and 51 percent ofrcers of the Departments of Roverue and

Electricity respectively. About one'third of tho officcrs ofall the three departments indicated moderate values for this

characteristic,

The I'-(chi'square) value of distribution of offrcers inPatiala is found to be 29.10 which is very sigoificant at I pcr

cent level of probability. Thus the value scales of the Govern'ment of Punjab in respect of caste/class considerations are notindependent of the departments. The perceptions of tho

officers of the development and non-development departments

in Punjab are highly correlated so far as caste/class considera'

tions are concered.

In Morena the ,(e-(chi'square) value is 4.57 which is very

insignificant. 'It moans that considerations given to caste/class

and weaker section of the society by the of(icers of the develop'

ment departments are not inter-related though attachment ofhigh, moderate and tow values to this characteristic by tho

officers of the three departments of Madhya Pradesh Government

show some variations.

If removal or mitigation of inequalities in levels of development among various castes, classes or sections of the society is

any responsibility of the officials engaged in development and

non-development tasks in the two States, a very pertinent

question that was asked thcm rslated to the kind of attitude

that the beneficiaries had of the official developmental prog'

rammes. The other question prsed to the officials was whether

thebetter off plople were willing to sacrifice for the upliftment

of the pooror section of the community. The views of the

officers of the Government of Punjab differed considerably'

Onty eight per cent of the officers of the Punjab Statc Elec-

tricity Board thought that the rich beneficiaries were seldom

or ncv€r in favour of sacrificing for the pooi, while in the

Irrilation and Revenue De partments, such a fceling was hold

by 92 per cent and 56 per cent ofofficials respectively. However,

39 per cent of officials of the Revenue Department, l0 per ccnf '

ol officials of the Puojab State Electricity Board and 3 per cont

138 Bureaucratic Values in Development

omcers of the Irrigation Departmont thought that the rich werepreparod. to sacrifice for the benefit of the poor.

The percentage varied differently in Madhya Pradesh. Only62 per cent, 44 per cent and 58 per cent officers of the Electri-city, Irrigation and Revenue Departments respectively were ofthe view that the rich were not sacrificing for the weakersections of the society, while 38 per cent, 23 per cent and 6 percent officers respectively of these departments were of the viewthat the rich were willing to sacrifice for the benefit of the poor.Thus, in the absence ofthe feeling of the willingness to sacrificeon the part of the privileged classes the inequalities anddisparities between the richer and poorer sections of the societyare likely to persist for times to come.

A quick paco of developmcnt can be achieved if both theoffcials and beneficiaries of developmental tasks have a strongsense of conviction arrd are inspired by the high values of sacri-fice, public service and dedication to the ideals of developmcnt.The administration cannot be biased in favour of one group oranother but must resort to equitable distributioo ofthe benefitsof development in the larger interest of the nation. Everycitizen needs to be assured that the Government has to be fairto all sections of the community. If the officials are unable todeveiop unanimity of purpose and identity of goals, they arevery ofte;r in trouble in their sphere of activities relating to thewelfare of beneficiaries who are very often heterogeneous incomposition and chalacter. The relationship between officialsand citizens is thus, at times, marked with tensions, Forinstance, if the monsoon is scanty, there is a demand on thcpart of some farmers who do not own pumps, for irrigationwater and electricity for energising pumpsets to save the crops.In case the officials are not responsive to these demands and donot provide the necessary inputs in particular areas and arenot cooperative with the public in meeting their demands, oraro biascd in their dealings with different sectioos of the societythe tensions multiply and conflicts arise, Thus occasions mayarise where the officials are faced with the problem of solvingsuch sless-conflicts within tho community, i,e., to decidc. the

Socio-Persotul, Socio'Cultural and Socio'Admlnistative Values

claims of the well-to'do section owning irrigation pumps against

the genuine demands of the poor or dcpressed classes without

irrigation pumps. Although majority of officials seem to bc freo

from the class'bias in deciding these conflicting claims, yet

even a significant minority showing such biases is disheartening.

So cio- Ad mini s t rct iv e l/ alue s

Ttro officials' sense of status:consciousness, their allegedly

maintaining of distanco from their junior officers and the kind

of freedom that the subordinate officers enjoycd to discuss

official and personal problems with senior officers were taken

as the indices reflecting the socio-administrat ive values' The

two positive questions canvassed were (a) are the senior officers

,onrriout of their status? and (b) do the senior officers maintain

distance from the junior officers? The one negatively keyed

question put to the respondents was whether thejunior officers

of the aepartments had the freedom of discussion about their

official aod personal problems with higher officials' The replies

received wcre tabulated and are summarised in Table 5'4

on page 140'

The table olearly indicates that officers of all the three

a.fu.tro.nt. of both the governments are more or less conscious

oill.i, ,tuto, and keep distance from their junior officors' The

officers of the Revenue Department have the highest value

scales for the socio administrative characteristics' About 64 per

,.nt offrrrrc of the Revenue Department of the Government of

poniuU.otputed to 47 ner cent of those in the Department of

R;;;;;. of ihe Madhva Pradesh Government attach high values

to status consciousness and consequently maintain distance from

ii.iil"oi". officers. If we club together the high and moderate

values scores, the percentages in the Departments. of Revenue

oi in" Cou.tomenis of Punjab and Madhya Pradesh become as

iisil", s+per ceot antl 88 per c€nt respectively'. The extent'

oi?ntot co-nsciousness is somiwhat less in the Electricity and

ii.G"ii"t dePartmeots, in Punjab the perc€ntages of officials

iofiing higb values coming to 42 and 41 pe-r cent respoctively'

ilo, ii upp.nt. that even in development departments a cloar

Bureaucratlc ltalues in Developntent

c.t oo

c.t !t

\o (a(Y) F\ot

q9e{ c{

c.lvi9

oo€O .';\f:f

O(.l.doe{ (\

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a.Et"1 '=Xmtrd:- EarF <-<.9EF9G',iXt- .ts

.EE

E.g

Socio- Personal, So clo-Culrural aad Socio' Admini st rattve V alues

stamp of status-consciousness prevails, if only to a lesser extent

compared to the hard core bureaucracy in the Revenue depart'ment.

The pattcrn in Moiena is also somewhat similar. In Madhya

Pradesh the highest perceotage of thc officers who are status

conscious to a high degre: is 47 in the Department of Revenue

whicb, when clubbed with officers having moderate scale valucs,

comcs to 83 per cent.. About 44 per cent each of the officers ofthc development departments like Electricity and lrrigation have

high values for this characteristic followed by 36 per cent and

35 per cent of officials oFthe respective Departments holding

moderate values. Thus more than three'fourths of the offcers

in these developmental departments do hnve the feeling of being

status-conscious. Bar Diagram No. 8 on page 142 illustrates

the point.

The I2-(chi-square) value of variations in the distribution ofbigh, moderate and low values in the district of Patiala is I9.95

for 4 degrees of freedom which is quite significant at one percent

tevel of probability. The degree of variations in status conrcio-

usness is significantly high in the Departmcnt of Reveuue of the

f unjab Governmirnt compared to the Departments of Flectricity

and lrrigation' The variations in these two developmental

departmcnts are not very large. In other words the ofrcers ofthe Department of ElccFicity are equally status'conscious as the '

offioers of the lrrigation department, but aro less status conscious

than their counter'parts in the department of Revenue'

Status consciousness is seen much less among the oflcr'rs of the

developmcnt departments compared to those in the non-develop-

ment department of the Government of Punjab. But on the

whole this characteristic of bureaucracy has strong association

in all the thfee dePartments.

The main reason for high levels of status'consciousness

amongst the officers can bo traced to the working of the three

departments under study. The centralised system of control pre-

vatent in all the. I)epartments, even those of the departoental

activities of rural electrification and supply of irrigation watel

r42 Bur e aucrat i c Value s in D evelopment

Reve n ue

Hi gh

Moderote

Low

HighModerote

[ow

High

Moderote

Lori,

High

Moderote

Low

HighModeroteLow

HighModerote

Low

gAR DIAGRAM NO.8

Socio - Admrnrstrotive Volues ScolesPATIALA OISTRICT

gectricity Deportmcnt

Irrigolion Deportmrn r

Revenue Depor tment

MOREN-A DISTRICT

Electricity Dep ortment

lrrig otion Depor tmcnt

Depor tment

Percentoge

Socio' Personal, Socio'Cutt;ural and Socio' Administrutive Values

(as also of the work of revenue collection) gave enough discre'

iioou.v po*.* to the various levels of officers in theso depart'

ru"tt. 'g"to after the achievement of Independence' no signi'

i'*"i "n".gt

in the rules and regulations' devolution of powers

""J""it p*.edures of these departments has occurred' The

*oftot, erercisotl by the departments in the Headquarters were

,"r"*i"ii.u.ictivc in nature. Moreover, with the increasing

il;;;t- in developmental projects th-e ofrcers beoame

.""ia"t ""a conservative in the exorcise of power and tbus

ffi;;;" ili. -por..ful.

Status consciousness has, thorefore,

;;il;;;;uct of the power and authoritv that thev had

."*1" irtii"v in the disbursement of various funds for develop'

ment at theit discretion'

The position is somewhat diffcrent among the ofrcers of the

c;;;;"i of Madhva Pradesh' 166 21'r-(chi'square) value

foi variations in status-consciousness amongst these officials of

ii" 4"".**."t of Madhya Pradesh is only 3'86 which is in'

.l*lO.uot even at the proiability level of 5 per cent' There is

ii"* ^"

itr",r*ship in the pattein of status consciousncss of the

omt.t. in the three dopartments' The officers of the non-

dcvelopment Department of Revenue in Madhya Pradesh arc

,orn.*hot more status-conscious than those of the develop'

mentul depurttents. On the whole the officers of the Govern'

*r"i "f Madhya Pradesh are less status-conscious than those

of Gove rnment of Punjab'

SUMMARY

From the above analysis it is clear that comparatively the

ofrcers of the Government of Punjab in all the three depart'

lents give very high values to the characteristic of integrity of

character. The percentage of officers attaching high values

varied between 67 per cent in the caso of the officers in the

O.p".t-"ot of Eleciricity to 78 pcr cent in the Department of

IttL"ti"o while the officers of the Department of Rcvenue fell

in between. Thore is thus no signi0cant di$erence as amongst

these three categories of officers so far as perceptions about

integrity of character is conccrned.

-t44Eureaucratic Values tn Developmenr

The offcers of the Government of Madhya pradesh alsoattached high values t,r integrity of character. The extctrt ofhigh values was, however. somewhat less than those of tbeofficers of the Government of punjab. ln tr,taOfrya fradesh thehighest percentage of officers in ihe Departm#-or Revenuc,namely 60 per cent, attached very high values to integrity ofcharacter followed by 56 per cent officers of the Department ofIrrigation. In the State Electriciry Board only ai p.,

""o,olicers attached high values to it. On inter_departmental com-parison we find some insignificant differenccs among the tbreesets of departmental offcers. The perccntage oi oftcers attach-ing low importance to this socio personal value differed fromdepartment to department. "Ihis percentage was 36, 25 and 2Orespectively for officers of tbe Electricity, Revenue and Irrigationdepartments. On the whole, it can safely be concluded thatall the three departmental officers of the Government of MadhyaPradesh were also keen like those of the punjab Governoent toobserve integrity of character. The difference in inter-Statevariations in.the scales of values attached to the integrity ofcharacter is somewhat marginal.

The officers of the Government of punjab value the principleof equality of individuals as a very important eleme nt in theirperformance. The lrrigation, Electricity and Revenue depart-ment officers (with 57, 5t and 45 per cent respectively) attachedhigh values to adhering the principle of the equality of individuals in the discharge of thsir functions. Altltough thevaluo differences did not signi0cantly vary from departmeot todepartmen., officers of the Revcnue department attachedsomewhat low values to this characteristic. High, mocjerate andlow values were almost equally shared by ttrem- The offfcersattaching moderate and low values were aboiit 50 per cent ofthe total number of the officers.

In Madhya Pradesh the pattern was somewhat d ifferent. Thepercentage of ofricers attaching high, moderate and low valuesdiffered from ctepartment to department, The hetrogeneity ordis-similarity in behaviour was most pronounc€d in case ofdevelopmcntal departments of Electricity and lrrigation. Low

Socio-Personal, Socio'Cultural and Socio' Administative Values

scale values were also found to be comparativoly of differcnt

dimensions in the three departments varying from l3 to 3l pcr

cont. The comparatively low percentages of officers attaching

high importance to equality of individuals indicates their in'capability to absorb the due or undue pressures that they might

havo felt from different quarters in the discharge of their

functions.

Regarding socio'cultural values, castes/class considrations did

not piay any hindrance in the effective discharge of duties in tho

deveiopmental as well as non'developmental departments of the

Government of Punjab. The percentage of officers, however,

attachiog low valucs to caste/class considerations was as bigh

as 84 and 83 in the developrnental departments of Electricity

and lcrigation, wbite it was only 60 per cent in case ofnon'

developmentai departlrent of Revenue' On account of prio'

rities givcn latcty io the developmcnt of the weaker sections ofthe ,oiiety and small and marginal farmers, the Governmcnt is

itself encouraging prefercntial treatment to these classes and the

Dopartment of R"n.oo. is likewise also shaping the new policies

for development. lt is, therefore, somewhat natural that in the

Dcpartment of Revenue, the government will ..bo the first

amongst the agencies to initiate somewhat discriminatory

policils putrr.d in favour of the depresscd and the weaker

sections. This was very much visible in Patiala, but the instal-

lation of electric lines and the irrigation networks in Punjab did

not discriminate between the rich and the poor'

Thc pattern of socio-oultural values in Madhya Pradesh is

somewhat different. The percentage of officers of all the three

depurtments gi:r,ing low values to caste/class conciderations is

large ancl onifot.. The extent of values, are howcvet' low

"oipn.tA to those of the officers of the Government of Punjab'

The low percentages were 5l and 4l for the Departments of

Electricity and Revenuo and onty 4l per cent for tho

Oep rtment of Irrigatioo. Io the Department of lrrigation

t#percentages of officials sharing high values (41) and modc'

iuir'nutu", (il) were lo*er than the perccntagc of low valtes

ii "tl"t

depariocots. Any way the caste/class considoraliong

146 Bureaucratic yalues in Development

had less impact in Madhya pradesh as the l2.value was stati.stically insigniflcant. The ofrcers of the Department oi Revenueindicated extreme cases with 28 per cent for high vatues and44 per cent for low value. There was however, no relationshiobetween the adherence to caste/class. considerations in thedevelopment and non-development departments of the Govern_ment of Madhya Pradesh.

To the question whether the bettcr-off people in the communitywere willing to sacrifice fot the poor, the replies differed. Aboui92 per cent, 78 per cent and 56 per cent respectively of theofficers of the Punjab lrrigation, Electricity and Revenue depart_ments made the observation that the rich beneficiaries ofdevelopment work were not in favour of making sacrificos forthe poor. Only 39 per cent, l0 per cent and 3 per cent officersrespectively of the departments of Revenue, Electricity andIrrigation of the Goveroment of puujab thought that the richwere vzilring to make adjustments for the weaker sections ofthesociety.

The percentages varied in case of the officers of tbe MadhyaPradesb. Only 62 per cent, 50 per cent and 44 per ient officersrespectively of the Electricity, Revenue. and Irrigation depart-ments opined that the rich were not willing to saciifice in favourof the poor, while 38 per cent, 23 per cent and 6 per centofficcrs respectively of the. Etectricity, Irrigation und R"u.ou,department officers thought that the spirit or sacrince did exist,The conclusion was not, therefore, very different from that ofthe officials ofthe Government ofpunjab, except thJ majorityof officials tberedid not feel.that a greater proportion of thebettcr off population was wilting to tretp tneir t'.r,

-

i.orp.rou,brethren.

So far as the socio-administrative values are concerned, statusconsciousness, maintenance of distance fro, ,ufoiJio"ie officersaod the cxtent of freedom enjoyed by junior oin".r, io Oircur,freoly office and personal mattrrs with senior officers were takenasJhc indices refleering rhe-cluster of such

";;;. -

Jignigoantdiffeloncos wcre noticed in paiiala. ffrc n.u"oo" d"purr*.ot

-l

Socio:Pe rson al, Soc'to-€tih u?at iiail Socio- Administ rat lve Yalues

topped the perceptions of status conciousness aud as much as

64 per eent offlcem maintained high values towards status'con$'

ciousness. But in ths Departments of Electricity and Irrigationthe p€rccption of status consciousness was low' Only 42 per

cent and 4l per cent of the officcrs respoctively showed a high

degree of status consciousness' The percentages of ofrcers

with moderate and low perceptions ofthe charatcristic wore

much lower, Tho chi-square value being high, thore is thuesignificant association noticed among the officers of the threcdcpartments of the Government of Punjab,relating to the valu€

of status oonsciousness.

The reason for high levels of status consciousness amongstthe officors was traced to tho working of the departments. Aremote and rcstrictive centralised control of the departmentalauthority and availability of large developmental funds at theirdisposal gave enough discretionery pow€rs to tho officcrs.Their status-consciousness was the result of this power andauthority that they thus came to wield.

In Morena, status consciousness among tho officers was

noticed in all the three departments but to a lcsser cxtent. Thchigh values varied amongst 44 aad 47 por cent of the officers.

Moderate values varied in 35 to 4l per cent of officcrs,

If wc club together high and moderato values, the psroontages

are 84 and 88 respcctively in the Dopartments of Revenue inboth ths State Governments which show that status-conscious-ness in developmental departments of both the govornments islower than what it obtains in the non-developmental depart-ments. On tho whole, status conciousness was independent ofthc departments for which the officers worked as revoalod byths low value of ohi'squarc.

Tho findings in this chaptor clearly dcmonstrate thst despitcthe cmphasis of development in both the States, the achieve-ment of development performance is independent of thesoci.ological-pereonal and socio-administrative values of theof6cials engaged io their tasks. As-thore is little correlation-

148 Burcaucratic Values ln Devclopment

ship" between the value perceptions of the offioials of the deve-lopmental and non-developmental departmonts except in caste/class consciousness and socio-administrative values in Punjab,a couclusion can be drawn that the cbanges in existing socio-logica! and socio-administrativo values may not be easilyaffected to bring about tho desired lcvel of performance in thedevelopment tasks. Status consciousness of the officers of thePunjab had been a byproduct of the power and authoritythat the officers had enjoyed for a long time and because ofvarious historical factors. As the development activities get

established and ingrained, the offcials become mor€ status-conscious than they were in thc beginning.

6

Official Perception ofBehavioural Values

This chapter is concerned with the. examination of somebehavioural charaoteristics of bureaucracy cngaged in devclop.mcntal and non devclopmental activities in the two districts ofPunjab and Madhya Pradesh, The strict Weberian modol ofbureaucracy envisages a rational behaviour on the part of themombers of an organisation. lfowever, in aotual practice,because of the various socio-economic or psychologicalfactors such ratiooality of behaviour is not always possiblo tomaintain. More so is thc situatioo io the contaxt of develop-mcntal activitieg where decision in regard to developmentalprogrammes may not always be based on ratioual considerationsbut on cxpediency or feasibility. Hence in our study it was

thought desirable to examino the extent to which our respon-dents adhered to the priociples of rationality in their behaviour.In a developmental system,.as. the changes in the economic andsdcial fields have to be brought about quickly, the adminis-trator's performance is most ofteo evaluated on the basis ofthe targets/r€sults acbieved. The satisfaction of the citizensis also taken as an important criterion in carryiog out thcdevelopmeotal tasks which sometimes may not be achieved .

on the basis of rational decision-making, Thus in actual workand field situations, the of0cials may be very often obliged todcviate from tho strict norms of rational deoision-making.

150 Burcaucratic Values in Development

Selistion of Behavtoural Characteristics

The purpose of the chapter is, therefore, to analyse some

of the behavioural characteristics of the officials cmergingout of the Weberian notion of a rational authority system.

The deviations sought to be investigated are in respect of,rationality,, exercisc of aut[ority, the extent of officials'change/result - orientation and their attitude to collectivedecGiinrqiaking is officjal ' activities. A comparison of thevalues of the officials in developmental and non-developmentaldepartments is made in these respects in order to enable us toexamine if the nature of activities performed by officials makes

any difference in thoir attitudes and value systems.

Ratlonality

Thrls. section atternots to analvse the extent to which the officialsas decision makers are able to reconcile with the differenttyper of pressure affecting their rational behaviour. TheWeberian model of bureaucracy assumes decision making byofficials on a basis ofstrict rationality but as the writings of mostpost-Weberian scholars on bureaucracy have demonstrated,

this is more of a theoretical assumption than a practical reality,

The issue of'rationality' was examined through the answersreceived to a set of four questions, posed to the respondentofficials. These were (i) whether they would like appointinga known person who is good at work and is readily availablc,even though it may mean deviation from the existing rules ofrecruitment; (ii) would they be influenced by tho pressuregroups and adjust particular programme of action againstthc set rulis and prccedetrts; (iii) would they liketo go out of thenormally prescribed proccdures and take initiative iF they wereconvinctd of the right cause of the case, and (iv) whether theywoiild consider any popular public demands even ifthey rnightnot stand favourably the test of rationality.

The scores of the respondents on lhese questions wer€tabulatcd and the analysis of the high, moderate and low values

Officials' Percepion of Behavioural Values l5l

attached by the officerf to ratiopality is shown in Table 6'l on

p. t52. I :

I

From the Table it will be clear that the. behavioural

nui*, of officers' of all tbe three departments of both the

State Governments are more or less similai' The highest

nutUtt of officers who are neither in favour of compromising

with political leaders and pressure groups and- are not.in favour

of accetling to the pr€$suros and non'rational demands of the

political I'eaders and idterest groups to satisfy them is noticed

in the Irrigation departments of both the State Governnrents-

-ie l"J jip., cent rospectively in Punjab and Madhya Pradesh'

il"il;g.t; alignmeoL oi irrigation channels or- even opening

"" oorir, at a piint exclusively at the request of certain groups

of p.opt. ani not on scientific considerations of elevation'

rfop., *., &re very often not feasible at all' There is no

variation in fhe percentages of officers allocating moderate and

irinit -""i*t

' r"r' rationality iu case of those . belonging to

iriin"tioo department of the Governmont of punjab, while such

;;;;ii;"t itr case of Madbva Pradesb are considerable'

l

The next dighest petcentages of opinion in favour of making

t.f"""ti"" "qideviaiions

are notioed in the other development

Orort*."" of both the gove(nmentst Alout 46 per cent

t-"J*"dt"" pf both the Punjab and Madhya fr.a!e1f Electricity

il"liJ. o" nbt favour makiog compromises wirh the pressure

ir*pVp"fi,rc"f leaders and deviate from usual rational

:#lili"b;t' The remaining percentages ird ^shared

bv the

iigi ""0 low values attached by this.class of officers of both

,tl St"t" Governmcnts, m6re or less in the samq proportions'

In the non-developmental department of Revenue of both

th;-i;; Govdrnments, the largest percentages of officials

i-*iiJ utt lower than their counterparts in: the two deve'

iopt.o,ut departments) i e' 4l and 36 per cent respec'

tioety nan" low perceptions about rationality' These officers

"r" "ot io favoui of making doviations as a rEsult of pressures

ir", ".ri"* soufcos. Thi remaining percontages of officerr

Bureaucratic Values ln Devetoiment

crl 00

O\€ct rriv(a

.t ,r;an a"l

q-:rA c'r6t e.l

so\O -.;

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e'l d

dE6t920d:

dSslI l.I toll{li"I tslsltl$lst$llclllEir*L=I IOtt{4t I

s/$F

llFI

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ll*tt€I l.goIIE

t52

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OfictuN' Pcrceptloi of Eehaviowal Values

have moro or less oqual values for high and modorate

tions in the two States.

The reason for high percontage of offlcerslof both the State

Governments having such values for rationality' partioularly

in the devolopment departments is obvious. After having

assessed the feasibility and potential of rural olocrification inparticular diroction or of flow of irrigation water according 'to

ievels and fertility of soil, there was hardly'any further scope ofohoosing an alternative alignment as a result of pressures or

courpromises. The scopo of change was, in fact, vely limited

in the development departments whereas the officials of the

revenue department had some discretion to depart from the

established norms of revenue collection in cases of low agricul''

tural productions because of natural calamities or other

l53l

percep-

ciroumstancog'

The perceptions of offrocrs of tho various State Govornments

and d-partments on rationality are illustrated by the- Bar

Diagram No. 9 on P. 154.

The ?(2'(chisquare) values for variations in the pattern ofperceptions of officers of the three departments of the Punjab

and Madhya Pradesh Governments in iespect of rationality

come fo 5.3 and 5.8 respectively, which are insigriifi'ant at 5 per

cent level of prabability' This means that there is no significant '

comelation in the perceptions of of0cers of the developmental

and non'devclopmental departments of the Punjab and Madhyapiuaesft Governments so far as the observance of rationality in

the deoision'making process is concerned' The scale values of

rationatity aro thuJ independent of the departments' The be'

havioural pattorn of all officers in the two State Governments

are more or less similar irrespective of the fact whether they are

engagsd in devolopmcntal or non-developmental activities'

Authorlty

Apart froo the structural factors the performance of -of0cos

is

isjfluenced by tbc authority they enjoy and the kind of relation-

154 Bareaircrat lc Values in Devclopmefi

RATIO NALITY

BAR DIAGRAM NO. 9

PATIALA OISTRICT

Electrici ty 0epor tmenl

Irrigotion 0e por tment

Revenue 0eportment

MORENA DISTRICT

-__-Etectrici ty Depoitment

trrigotion Deportfient

Revenue Depor tnent

HighModero teLow

|lighM o derot?Low

High

ModeroleLow

HighModero te

Low

High

M oderote

Low ',

High

Modero tiLow

Oficials' Perceptlon of Behavioural Values 155

ship that consequently follows between the senior and the junior

offcers in the samo deparfment. It is, therefore, noc€8sary to

evaluate the rolationship between the diffsrent strata of officers

as an index of the total efficioncy of thc organisation as also thc

prevailing authority system. In order to get their perceptions

in this respect a number of questions were asked to the respon'

dent offictis of tho concerned depattments. Whether there did

exist a feeling of superiority/inferiority complex in the govern-

ment hierarohy; what was the attitude of senior officcrs towards

their subordinates; whether the senior officers liked to meet

their subordinates; and whether enough authority was del€gated

by the senior officcrs to their subordinates (which is a negativcly

iramed question) formed the nucleus of sucb evaluation' The

,.ptiet rtctiuta were analysed and are presented in Table 6'2 on

p. 156.,

The pattern of authority and superiority/inferiority complex

obtuining in development and non-dcvelopment departments of

the GovJrnment of Punjab is uniform with high value percep'

iioos utongrt 63 and 62 p€rcentages of officials in the develop'

ment departments of lrrigation and Electricity and 57 per cent

in the Revenue department, The moderatc perceptions vary

amongst 30 to 39 per cent officials only' Taking high and

moder-ate vatue perceptions together we 6nd the -perc€ntage

varying betweeo bl und 96 per cont leaving 7 and 4 per cent

onty for low value perceptions. Thus the degree of bureauc'

ratisetion so far as is evid6nt through the existence of an autho-

rity system is quite apparent in the-various departments of the

Government ol' Punjab.

IntbocaseofMadhyaPradosh,thehighvalueporceptionsintn, O."efopttnt depariments vary betwcen l] anA Al per cent

of offioials_the average .f*iog to less than 50 per c€nt of half

of the respondents, The other h-alf of the officers in all the three

i.p"il.itt tuare their perceptions more towards modorate

values than towards' low uutu"* oo the authority ,system' Thc

i"i,ti" "f perceptions does not greatly vary from department to

;il;;il"'ili in. r..ri"e oi t-" periiitv / inferioritv complcx in

iii "ffi.i"f,

in Morena is tiss tuan what optains in Patiala' It

Bt"reaucratic Yalues ln Development

\0 t-c{ t'\ci .';

\nRScooO\d \orat tf,

i*t\c.i ..i\o sr

oo grj'i \e;cA a.l

ooO-: oi\o lr.l

dEqt !a:od

t56

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s

{)uo

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I"t6l{t^IB

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tsl.:pIftrr

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o,l

ti

3s

a:!cF

:.:,3

Oficials' Per ception of 'Behav iour al Yalues

thus se€ms that thc officers in thc Govornment of Punjab display

a greatef buroaucratic authority than their gounterpafts inMadhya Pradesh, Bar diagram No. l0 on p. 158 illustrates the

position.

However it is clear from the analysis that the cxistence ofan authority system is not the close pteserve of a particulardepartment in a particular placc, The general characteristic andpattorn are similar both for the development and non-develop-ment departments in both the govornments. The little variationsthat are observed may reflect the differing attitudes of theofficials to the nature of work performed. The developmentdepartments in Madhya Pradesh being new and in a state ofgrowth,'show less tendency towards bureaucratisation. But as

the oxample of Punjab illustrates, this trend is likely to pick uponce the things get settled on the gr6rind.

169 1l(chFsquare) values of the characteristics of percep-tions of the officials in Punjab aod Madhya Pradesh are foundto bc ouly 2.26 and 3.?7 respectively which are insignificant at5 per cent levcl of probability. There is, therefore, not muchof diffcrenoe in the existence of the authority system either intbo dovelopmental or non-developmental departments of Punjabor Madhya Pradesh. Only the percentag€ of officials giving lowvalues to this characteristic in Madhya Pradesh is slightly higherthan their counterparts in the Puojab in all the threc depart'ments.

Oficials' Perception of the Attltude and Eehapiour of theirClientele

In order to evaluate as to what the officers thought about thoattitudes .of the public and their clientelo towards them aodtheir work, two questions, wbether the citizens who came to seo

the officers for tbeir work were respectful in thoir behaviourwhile making demands and whether the visitors were uonoces-

sarily apprehensive of the officers' attitude and dealings were sim'ultaneously put to tho respondents. Value scales were attached

to the possible degree of replies, whethor the visitors were highly

r57

158 .Bureaueratic l/alues in Develapment

BAR OIAGRAM NO.IO

PATIALA DISTRICT

Electr igity Dtpqrlment

Irrig o ti6 n Deportment

HighM o dero te

Low

High

Mod€ro teLOW

High

Modero te

Low

H igh

Mo dero teLow

HighM0dero te

Low

High

ModeroteLow

Reven ue

MORENA

Dep or tm€n t

DISTR ICT

Electrici ty Deportinent

Irrigo tion Deportment

Revenue Deportmen I

Percentoge

AUTHORITY

Oftcials' Petception of Behalioural Values 159

or mcderatety respectful ot not respectful and whether they

*.r, "* t"Jft or somewhat or not apprehensive of the officials'

The porceptions of the resprndents oiiained were tabulated and

tft -

**f t. ate given in Table 6'3 on p' 160'

The pattern of response is not very much different amongst

,rtJ lini..t Ur"oging to different depattments in the two States'

il r*;',h;i a -ma;ority of visitors showed gr,eater respect to

the officers and at the same time were also apprehensive to meet

;;; ;il;;t; of the various departments of the two Stato govern-

ments. It is somewhat natural in an environmentof an autho'

ttir'tt*ti where the clientele group is dorninated by the feeling

.il ii;;**.t;:ecking favourrirom the officiats and in order to

;;;;; -; done thev should notunnecessarily argue or annov

inJ .ii..ttl' 'p.i*n'

*t'o could afford to be less respectful to

l, "*'i."""fr"iJ

of the officers g:neralll belonged,to the upper

strata of the clientele' ft *as uiso this category ^of

the visitors

il; ili;; contact with ihe officials at an informal level as

#;.-'il" ;;;portion of tle ctientete in this categorv is rather

small'Thefindings,r'o**"',doinawuyindicate.thepersis.tence of the old lraditionui uulot' of th: colonial times when

the officers were mostly tookJ as dispensers of favours and not

the servants of the Public'

The pattern of the attitude of visitors was more or less similar

towards all the officers in the Governm:::jj-1""'ib irrespec'

tive of the neture of the work of the department' .About 40 to

l;";;;;;-;iit" uri"" -of

the Governnont' of Punjab

l*J'i.u'iil",-;';."::l'*J::'-3;?1y,";':ffi :::l;,:3&i?to 33 Per cent repcrted t

to 29 per c:nt officials ttpoii"J to have hardly developed any

informal relationshiP with them'

IntheRevenueandElectricityDepartmentsoftheMadhyaPradesh Government' :o t"J s+ ger ".'"1 "l:L1:T,:*t

reported

; i;', ;;; ":' :, :i:':$1. :J,liiJT:U ;:X Ti ;il:,l;Illtonlv 39 Per cent ot tne o"'at., toararotion' rnt pt*entage of officers.who said that

the visitors were olly tn:."ri.iy *rpectful varied between 33

(\F

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t\c\

F-..t

oi

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Burcaucrutlc Yalues in Dcvelopmeat

!f\oFhq\\o

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3aS

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'., $ i6

RFR

nq.e.r cn iij

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l*l"Il&

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160

tr5bq, .(tcl-EF(lt ],:+ q):o.LJV

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(.)v)

3

Ofipials' Perception.of Behaviaural Taules 16l

to 39 per cent. Only 8 per cent of the officers by the Eleotricity

Department in the district of Morena felt that the visitors

held low respect for them.

Thus on the whole there was no significant difference in the

attitude and behaviour of visitors coming to meet the ofticers

of the three departments of the two Stato Governments and the

pattern was more or less similar, but it appears that the visitors'

uttitod" towards the officials was governed by their own socio'

cconomic brickground as also by the amount of authority

weilded bY the officials.

Officials' Anitude s towards C lient ele

The officiats chosen for tho present study, whether involved in

developmental or non'developmental tasks had frequent contacts

with the citizens, The citizens visited officials with innumerable

complaints, problems and requests. In order to examine the

clientele' orientation ofthe officials, a set of few questions was

put to the respondent officials of thc three dcpartmcnts of thc

iwo 'State Governments about thc fre quency of their meetings

with the members ol the public. An inquiry -was also made

whether the meetings were superfluous so far as the perfor-

mance of the officials was concerned, and whether the officials

thought that they had been hetpful to the visitors' The replies

wcre tabluated and are presented in Table 6.4 on p' 162'

From the Tablo it will be clear that in the State of Punjab a

targer percentage of officials felt that the citizens did come to

the officials with regard to their problems' Tho combined

peroeotage for the offroials who felt that such meetings were very

Lften and occasional came to 92 with respect to electricity

deplrtments against 95 of the irrigation department and 82 of

revenuo department. The corresponding perccntages in Madhya

Pradesh werc 77,71 and 79,

As regards the question whether thc meetings were superflous

the corresponding figures of the officials' perception were 95, 87

and ?8 in the State of Funjab and 71, ?7 and 80 in Madhya'

Bureacratic Valucs in Devsllpfisnl

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ra) O\ ral 0.,.i 'd .f, .-l*$r/)S

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q oo .! oo-5A asru

o

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J - ..1 c! i.l63 oi oi i F-AS\O..\O$

r-.1oo ..;

a.l

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Bo* = Ee:oPhc-.9.rzccE

t;iE;i'Eg"f?

6l

t)l

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162

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Ofiiciald Paceptionof Behavloural Values 163

6l t:d e.l

u r.,

t.rnrn i\

aa ra)

'.aF aa c{

qin!rn

oEEEd

!f v'!\c, F_cn atl

rro\o9

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f,o,&o.-o=j...=eatl=tc,g*":eE.r .= ? !t -';d€93e'=

<';

164 . ,,. . ..,; ;.Bv,ecatarattc Y..plaes ,irt'Q.evelogur*.pt

Pradesh, These figurbs indicate that the majority of of6cials feltthat the meetings with the clido,tele were largely unproductive.HoweVer, when tbe officials were confronted with the questionswhether they thought that they had been helpful to rhevisitors, a majority of them _had indicated that they had beencither very often ol occasionally helpful to the visitors. Thisis indicated by the corresponding official percentages of 96, 95and 82 respectively in the three departments of punjab and g5,73 lnd 87 in Madhya Pradesh - who ttiought that way. In thecase of Punjab the Xz.test gave significant results, which is indi-cative of the faot that the attitude of helpfulness of tho officialswas correlaled and thc officials, whether they belonged to thedevelopmental or non-developmental department, held tho sameataitude towards their visitols. This was not the case inMadhya Pradesh where the l2.value was insignificant.

The meetings of the citizens with the officers of the StateElectricity Board tnostly related to the issue of Dowerconnections for lighting, energising agricul:ural pumps and forother industrial uses, reported over-charging in the bills,unauthorised conneptions, misuse of tbe power points, dis-connections and restoration of electric. connections which werediscounted in accordaace with rules. In case of irrigdtion' water,lhe common complaint was the issue of notices of irrigationdues when the fields .were repoited to have rece,ved no irrigationwater. The ofrcers,, on their part were of the opinion that thefields were irrigated and the beneficiaries denied having receivedany irrigation water supplies. : Irrigation dues were lcvied on allthe beneficiaries simultaneously when water was released for thefields" These disputes wEre very often reported to us during thefield enquiry. In caie of the departmeot of Revenue, althoughprimarily assumed as a noudevelopmental department, theirofficers had to certify the ownersbip'oF land for evcry kind ofassistance, like fertiliiers, pesticides,.. agricultural loans, benefi tsto small and marginal farmers,:1oins, from land mortgagc banksfor agricultural pumps,., machineries, etc. Very often thecitizens were found to be moving after the revenue ofrcials forall types of assistanca in their developmental programmes. Thecliontele of course. oxpccted the officials of the rovenuc

dcpartment to be helpful to them in all the cases. But theofficials bound as they were by thsit rulos and reguiationscould.not 4lways be fully helptul to the citizens. Howdver, byand large-iin cases where there was some scope of flexibility, thcofficers in thc Dopartment of Revenue did adopt a postur€ of.help.towards their clientele.

If the fcrceptioris of officcrs that the numerous mectinssbetween,thc m and th€ clientele were superfluous is acceprei,it s€ems,that a.majority of .the meetings ea4 be done away withI aving more tims for the officers to attend to their workin all the three dbpartments of the two State Governments.However, it is doubtfol whether such an action on the paft

Oficials' Fer cep t ian of Behavioural Values r16J

of the' officials may imbibe a s€nse.of confidence. in thecliontelc that their problems were being looked into and wouldkeep.them satisfied. Sometsort of public relations work thenbooomes neoessary at this: level.'

r The potceptions about the: frequencies of meetings betweenthc officials and pitizerts, tfreir.. su.perfluousness or necessity andhelpfulness werr used as indices forexarnining the extent to whichpeoples' grievances wsfe removed. The relationship between theadministration and citizens in development and non-develop-rr,e nt administration of thc two States over .a numbar of issuesdiscussed .in such meetings revealed the weakness of theinherited systern of administration. In 40 to 50 por cent casesof disputes in,Punjab and 50 to 60 per cent cascsin MadhyaPradesh t-te .grievances of citizens could be removed by suchrirectings. In the remaining cases disputes or problems couldnot be solved to the satisfaction of the eitizens.

:

This was because of the number of references or cross refere-nces that had to be made by the ofrcials and the painfully slowprocess of the:-systgm of accounting and auditing. Proliferationof a large number..of governmental agencies also in some wayscogtributed, to coofusion among the clientele. Lack ofcootdiartidn bctwres these agencies was often responsible fordelays and frurtratibn of citizens.

166 Bureaueratic Yalues in Devehpment

Officiatd O entation to Changeland Target Achletements

In a developing society, it is essential that the o$cialiengaged in the taslc of rapid socio'economic transformation

shoukl develop the necessary orientation for change. In tbc

context of tho present study it was, therefore' coosidered

necessary to put a few questions to the respondents to

analyse their outlook towards chauge. In addition to the

officials of thc departments engagod in the developmental

tasks, evbn the officiats of the so'called non'developrnental

deoartments aro also required to work for new targets of

,"u"oo" collection for frnancing the functions of thc State

Cou.romrnt. As such thosc ofrcials also nee d to have new

outtoot towards their dutics and responsibility' Thereforc

a set of qu€stions was posed to officials of both the categorles

oldepartments in the two aelected States' Six questions in

ihis se.tion : (i) whether the official is coucerned himself with

ionoro.ing the attitudes of unwilling but potentially good

,i r"pr"o*r. for achicving high targets -of devtlopment ;

iiii *t.trr., his initiative and pursuasion for achieving plan

inru.t* it any indcx of thc officiency of his work ; (iii) whether

,i""u.t i.u.t"nt of targets/resultc was considered, important

in nir J.ou.rtent ovcn though it might mean deviation from

.ri*i"g rules of achieving them ; (iv) would he be rated high

if i. -"tftitoea tbe dcsircd targcts/results for which he was

,LrpooriUte; (v) whsther in tho existing set'up a governmebt

,.rir"i,."( much interest in helping oitizens to achieve the

ri..rn.a resultsftatgets ; and (vi) whother he considored his

rJsoonsititity to guide the people with whom ho dealt'. ware put

i""it. "mtitit under study' The respcnses wsrc tabulated and

presented in Tablc 6'5, on P' 167'

Curiously enough it is noticed that thc p€rcentagcs of high

;;; ;i";; to ch-angc/target orientation bv the oftcers of three

iri"uit."" in the two States vary between 41 and 48' Onlv

i" Ii. *t" of the two development departmcnts of Madhya

i;r"A..n the valr.res are 48 per cent i.€.' just lcss than l0 pcr 'Fnt;.;ilt*it. the values vary bctitecn 4t aad 45' This small

variation may be due to an absenoe of clarity about targets

r67

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oo oq

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o'nsE

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IE

}fficials' Perception of Behatiourat Values

se=cl'ECog#bql-v

'.1.: c)(Datdl rr:9EEdbe'9oo.nEts.dEE

,'t .9 .9iAA?;5FRe

"E8EE9cto>EoP:!(addEkgEF'5:

&

168 Bureau eratfe Values In Develoi ment

of developme nt/revdnue collection .and difrculties faced inachieving them, The perfornianc€ qf an individual officialdepends upon the clarity of understanding of the organisationalgoals, not only collectively but also for individual work areasso that enofgies are fully diregted towards realjsation or achieve_ment of the desired goals. Withdut clarity of goals the organi-sations may be in confusion and the iodividual role incumbentmay be in darkness. It may he that the targets for an electr!fication/irigation zone may bave clarity at a highor level, butit might not have been broken up for smalter zoies over whiohthe lower level officialb have their jurisdictions. Moreovcragricultural production prograpnres are the direct responsibitityof the agricultural and extenslon staff in rural areas. powerand irrrgation are th€ only supporting inputs foi achieving thodefined targets of agricultural production. Similarly Revenueofrcials are also given certain. targets, but litigation, court int€r-ference and other difrculties often impede the achievement ofsuch targets.

Another feature of the data in the Table is the uniformity inthe distribution o' moderate and low values of perccptionstowards the change/result orientation. Tbe middle ievel scoresrange between 3l and 37 per cent while the tow scores vary bet-ween 19 to 24 per cent among the three sets of ocfrials ia thetwo States, During our discussions, quite a number of ofrcersconnected with agrioultural development stated that they didnot feel it their duty to inffuence the attitudes of iire people andthat they were not concerned to pursue their clicnteL to cffectthe desired changes in the agricultural pattern, Such an attitudowas also reflective of the fact that the promotion in the servicewas determined mostly by seniority and not by the results/targetsachieved by the.officers. In fact helping a citizen in developmentactivities was nbt an item on whigh aoy scores was to os r€cor-ded in the character role or service record of the officials. ,Thedevelopment programmes werc mostly in tho nature of dictatesfrom above, and the officials had only to comply with theinstructions given to them. It was, ther(fore, natural to exp€cta middle level score from the respondent officials of our studv.Change and rosult oricntation of the o$cials which ir an impor.

Off i et a Ls'' P i r ct p t io h, if Eehai'inili dfV alu e s 1'&i

tant charateristic af developmental bureaucracy for bringingabout successes in development performanco, does not s€em toto be deeply ingrained among the officers of the three depart-ments of the two StatCi

- as the highest a:nd moderate valuesnoticod are only to thd extent of the average of 43, per cent and34 per cent respectivgly. Thus the oommitmeot to the develop-mental work of rhe ofrcers of the development departments thpt.we hpv.e stu{ied, was found to be only partial. Bar DiagramNo. tl oh p. 170 illustrates the position,

For the range of variations of higb, moderate and low valueperoeptions of the officers of the three departments of tbe twoState'r', Golertirnents, .1'-(ehi-square) vatues for-. Patiala andMorena werc insignificant at 0.67 and 1.49 respectl_vely. Thercwas not, therefore, much difference amongst the scale values ofpreceptions amongst the officials of both developmental and,

non-developmental departments towards change orientation..which was independent of the naturo of the departmental work,

Participative Decision M aktng

Most of the development_ plans in a society have to be sitizFn-orienfcdj as it is the citizen who ultimately derives the benefit of .

development, The ofrcials working in thE fields are supposed

to be nearet to the citizens and have, . therefore,. a continuingresponsibility to acquaint the higherro$cials about the problemiat thqir levelg, sinqe they have to initirte policy actions abou{the over-all assessment of the needs of the people. In thedevelopment context, therefore, frequent consultations audparticipative decisions between higherand- lower levels ofofrcials are ioevitable, The administratign dees.well in takingparticipatiyc deuisi6ns where the lower level offcials have theopportunity of bringing to the notice of higher officials thbdesires of a common man. The pay ofl from participative

, decisions may, at times, bring about improved performance of' activities neant to ensure lhe maximum good f,or the maxirnum'number of persons.

Howovor, many a timo thr sonior oficials havc a tendoncy

t70 &neas$atic Values in Development

BAR OAGnAM NO.!l

@Higf.Modero tefo*

HighModero te

Low

HighModero t€LOW

HighMOderote

PATIALA USTRICT

Elcclricity Oeporlrncnl

Irrigoiion Dcportmrnt

Revenua Depor tment

MORENA DISTRICT

Elec?fici ty Deportmsrf

lrri go tion Depor tnient

Rlvenue Oepg nrnt

Lo rv

Hrbh

Modero

L0w

Hrph

Moderota

Low

Ofraiatr' Pe?csplioil of Behavioura! Values l?I

to take policy decisions on their own initiative as they think

iiJt".'n o.iitions are highly techuical and can not be taken

oo tt. busi* of what the people desire as conveyed to them by

i"*.t-tt-t"" of officials. Forinstance, supposing that the high-

yi.iOiog programmeo of paddy, wheat, oilseed.s or pulses are to

l. "J"i,LJt"t

Patiala oi Morena, the officials of the Power

Boards or the lrrigation Department may have the feeling that

it is for them to decide and to challa out programmes to see

whether more power oi water inputs are available for imple-

montitrg the schemes at appropriate times' There. is no forrnal

r""i"-." to consult freld officcrs or others involved in the

decision making process. Thus there is tittle tendency towards

purti"ip"tio. Oecision making amongst the officials of thc various

dpPartments

The incidencc and frequency of partioipative decision-making

abongst tho officials were thus investigated' To the question'

lb* o-ft.o do the officers Deet for taking any participative

decision, the replies that were reoeived from the respondents are

srrrmmarised in Table 6 6 on P' 172'

From the Table it oan seen that only about 20 per cent of the

offioials in the two developmant departrnents of the Government

of Punjab felt that meetings for participative de-cision'making

took piaco occasionally while 16 per ceat of the offioials of tho

Revenue department had similar perception' The percentage

of offioors who observed that meetings for partioipative decision-

making were rarely held 'varied from 74 in the Irrigation

departlent and 69 in the Electricity department to 55 in the

Revenue department'

In the case of Madhya Pradesh the percentage of ofrcers' occa'

sional meetings for participative decision'making who thought

that thcso were important was somewhat larger than in Punjab'

This peroentagc ranged between 38 to 4l while about half of tho

ofrceis belongiog to both the development and non'dovelopmcnt

departments said that meetings for participative dccision'

making wcre rarc.

r.) C\l+.r

rt!\o r\

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This uttimately'means, that littl6 .importbnc€ rh given to tlGholdingof meetings for participltive decision'making in Punjab

wbileitisprevalenttoasmallextentinMadhyaPradesh.

On calculation of Ir we 6nd tbat it is insignificant for both

Marthya Pradesh and Punjab. rThe process of participative

declsion-making is thus independent of developmental and non'

develop.nentril activitios that the officials are engaged in.

A factor which is conducive to good relations betwecn the

senior and tbe junior officers as well as of better role perfor:

mance of the subordinate is the extent to which members ofthe. organisation participate in the decision making process.

The tendency towards divorcing field experience from the deci'slon-mdking authority lends unreality to decisions. Such a

situatio.n can be avoided by encouraging participative decisions

in consultation with the .persons who possess expericnce and

knowledge of the ficld situations simultaneously. But this bas

not been the caso in the Govcrnments of Putrjab and MadhybPradesh, especially in the Electricity and lrrigation departments

of the Government of Punjab.

l"l4 Bureaucratic Values in Deve[opmeni

to be ingrained in the dcvelopmental activities of tho twoStates. For quickeniog the pace of development it is ncccssarythat plrticipativo decision-making should be encouragod bythe offfcials io both the States.

SUMMARY

The findings of this chapter clearly in.licate that the classicalbureaucratic model is at times in conflict with tho tlemandsmade by various pressure groups and other institurions on thedecieion-making process. Thus behavioural cbaracteristiosrevolve around <iecisional and operational situations. Changeorieotation' and result-orientation in the development processhave prosumably necesssitated wide dopartures from structuralcharacteristics. The question as to what extent the officials areable to adhere to the principle of ratiooality without su@umb-ing to situational pressures has been examined. Behaviouralvalues of officers of all the three departments of both theState Governments have been found to be similar, The highestp€rcentage of of6csrs who aro trot in favour of compromisingwith political leaders and pressure groups and mlking devia-tions from existing ruies and procedures is found in the lrrila-tion departments which is 56 aod 5l respectively in punjab andMadhya Pradesh Governments, There is not much difference inthe p€rcentages of moderate and high values towards rationality,

About 46 per cent respondent offcsrs of the punjab and

Y.lalf ;-.:tsh Electricity Boards arc not tn favour ;i;t;;;tnro rne demandc of pressure groups/political leaders and devi-ating from the usual rational pro.rrs. Thc remaining per_

T""",:l.-t. "::. shared by.high and low values attaehed by theseorncers to this value, About 56 and 5l per cent rcspondents .of the Irrigatiou Departments of punjab and M, p. Soara.

"renot.in f.vour of making deviations from the ratioiat-tera*ourunder pressure

Is. coopromise on the par! of oftciars cssetrtiar for deverop.Bcnt ? The answer to thc questioo scems d bc -;;biguous.

Dorclapmont ic orcentiaily cA""g*rirot6d.- i; ;'dynamic

l

lfictals' Perceptlon of Behavlourul Values r?5

situation of change ths decision-making has to be situational

;;;;;;;"*it. tJ the needs of changing situations' Tho dcvelop

**i"f Ltf. has to be accomplished with a senee.of service'

Thus in the percent eontext thore may occasionally arisc thc

n..a of flexiUility in the application of rules and- Procedures for

r"otA ilrl, of agriculturai proiluction through adequate and

tlmely inputs of power and water rogourc€s'

In the non-developmeotal Revenue departmext of -both the

Stntr- Co"rrotents of Puojab and Madhya Pradesh' 56 and

5l por cent of officers respeclively attach low values to ratiooal:'

;;.*il;; *nort tuttt is no significant association among

oin.urc or the development as well as non-development dopart-

;.",.;iil;oStaio Govetnme ts in thelr valucs towards

."ir"""ii, ""0 all ssts of officers seem to bobavo independently

so far as rationality is concerned'

In matters of the exercise of authority' again' tho pattcrn

"f'l.;;;i;;; of all offrcers in the three departments of both

ti, li"r" g*..nments is uniform and similar' Compared to

;i;; ;"i"-. perccptions of 63 and 62 por c€rrc of officials

respEctively of the lrrrgation and Electricity departments of

iorta"ri"dc";.rn..ot, int corresponding percentage in thc

Revenue Department was 57' The moderatc perceptions were

.-"".r.1 Uy 3O to 39 per cent officers while thc perc€ntage

;;iflilt *irtt to'" value perceptioos about authority raoged

from4toTonlY'

IocaseofMadhyaPiadeshthopercentageof-officialswithhi;; ;;i;" perceptioos to authority and stalus varied between

;I""J';, '"g"i"tt the pcrcentag; of officcr-owith modcrate'

values ranging from 26 to iq' fno percentage of -9nce11

wi'th

low porceptions to autioiiiv 'ooqtd btt*o"l l9-*

27 only'

The percepticns did not nu'y *o"n Lt department to depart'

ment. The feeling of seniority/infcriority .complox amongst

ofrcials in Morena *u' tt" than that in-the- Patiala district'

il;;;;i;;itt'n ot-p"'"tptions of authoritv is' howeveeo

similar for officers ot'atuifopttot and ^ non'developmcnt"a'"p"ii*.i

t pr both th€-state -Governments'

{76 , ' ' Durcaueratic ltclues in Developrterrt

. The reason for this type of distribution of value scales toauthority pari be traced to,the fact that massive .investments ini*igation and elecrrification over " ";;b; ; years ha\iecreat€d oumerous new units at the fie{d tevel., iie functionalagoncios"dealing with irrigation una p*, l*l U.,"o in their

:11q r:rL

.and complexity ;and have carved Jot inriepcndentareas of their operation. In the abscnce "f *"0., hofizontalcoordinatiou with other agencies, the farmers huu, ,o ,uoabout for the fulfilment of theirneedsiril'ooJo.pu.rran,

:: an:the.r" Each department is an empire by itself andconcentration of such authority within tt. nigfr.,liu.f officialsobviously reflect the value -percept.",

""'ri*j- curing thefield survey. Decentralisatio. fr ""ii"ri y i, i-,i uppropriuteremcdy to diluto the authority. oriented outl-ook olihe offisials,

Along with the authority orientation of officers, theirperceptions of ths attitudes and behaviour of the beneficiarieswho come and meet them- were also studied. ihe patternseemed to be alike. About 40-44 per cent oiil. uirimru to U.offcials of Punjab Government were iiighly respectful towarrls.tbem white 30-33 per cenr visitors ,";;;il;;;ii respectfuland 22.28 per cenr visirors had d.;;;-;;;l infor.oarcontacts with the officials.

In Madhya pradesh 50 and 5i per cent visitors to theofficers in the Revenue and Etectriciry ;.0;;.;;;";r Morcnahad highly respectable auitude ;"*"idr'il;;" *tit" onty39 per cent of the visirors ro, the Irrigation Oepariment fraahigh respect for its officers, Ih" il;;"";"J" o'r""rilrro,, "irnmoderate respect for officars for

"ff tnu-1.U.Jr"ir,of ofn".ovaried between 33 to 39 ot

ui,ito,s wrtn ll; ;**;; #"' #:l;, lt":';ff ::rr:f .

ff :-:Jjof Etectrical Engineois of the district .f M.;;.- '-

_. About one.tbird of the visitors to th€ three departments ofthe two State Gcvernments uncler study were fouad to bemoderately respectful ,o

. :h.. offi.ers." il. 'iJrcentagesof citizens meeting the officials io tt.

-Cou.rni."ii, ,oo;ubvarying between 38 to 40,, were hidt

-';;;;,. only

26.ts 29 per cent of the vidtors to the. ofrcials in Punjab showed

lcss respect towards them against 15 to 20 per c(nt of Madfrya

Pradesh. It se€ms that the porc€ntagos of visitors attaching

hi!h, modium ot less degrees of respect for the o$cials was in

coirespbndenco .with the p;rcentages of the visitors who *ere

hiehly, moderatply and less apprehcnsive of the 4ttitude and

beiaviour of tne officers of the two State governments towaids

thom. On tho whole there was no significant inter'departmgntal

aimur"o*, in thc attitude and behaviour of the visitors coming

io meet the officers of the two State Governments in tho threa

departments under studY.

In all. the three departments, the citizeo'clientele had often to

visit the officials for their problems' On an average io Put$ab

64-69 per cent of visitors came to meet tbe ofrcials of the

development department while the corresponding percentags

;;;i.dl;**" 46 and 39 in case of Madhva Pradesh' About

Si-OZ p"t centof the officials of the developmeot depa ments

"i,t*'C"o.toment of Punjab thought that th€y^were occasion'

aifv'iJprui to their clientele nhile in the Governmeftl of

i,flaftv" Pradesh 45-50 per cent ofrcers tho-lclt- that'fhey

*".. 'o""rtionally helpful to them' About 27'36 per cent

officers of the Govetnment of Punjab and 3l'33 per cent

officets of the Government of Madhya Pradesh felt that visitors

""r.'i, ,". in.m very often while only a small percentage of

;ffi;i"it thought that the clientele seldom visited them' About

;;:;;il;;, "f the officials thousht thev were helprul to the

Dersons who visited them very often' -Officers

belonging to tbe

;.fiil;'a'ip*,t*" of tbe Government of Punjab'

however, showed greater diversity in -

their^ attitude of help-

fulness. There wis sttong association of helpfulness with officers'

aI LJn the development and non-development departmetrts

;i;; c;"tent of Punjab whilo it was not so in Madhva

il"J"tn as revealed by the Xe test of significance'

Oficisls' Perccption of Eehauioural Values r77

It was also felt by 26'39 per cent and 46'6.2 pcr cent of the

"d;;;;;;t-ttr! visitott very often and.occasiontllv that

ifr...;ri"gt were superfluous' li tbese meetings could bc done

l?8 Bareaacr atlc Yalues ln Develapriteat

away with, tbe officers would be left with moro time for theirwork.

Regarding the offcials' orientation towards change/orachieving targets, the highest percentage of officers belongedto the two development departments of Madhya pradesh whogave high scores to this characteristic (48 per cent). Ia case ofPunjab, the pcrcen tage ofthe officers working in thc develop.ment dcpartments giving high values to this charactcristic variedbetween 4l and 45, This small variation, was, .at times, foundto be due to the absence of clarity amongst them about thetargets of development/revenue collcctiou and practical difrcul-ties id achieviog these targets. While tbe targets for theelectrification and irrigation programme may have been drawnup at a higher level in consultation with the AgricultureDepartmcnt, which is responsiblc for inoeasing agriculturalproduction, such an orientation, does not seem to havepercolated down to the lower level officers. Similarly manydifficulties like litigation and court interference, ctc. haveimpeded the achievdment of new targets laid for the Departmenr .

of Revenue.

A sort. of uniformity in the distribution of moderate andlow values of perceptions about change/result oriqntation hAsbeen noticed in the case of ofrcers under study. The middlelevel scores range between 3l and 3? per cent, while the lowscores vary between 19 and 24 per cent among all the officialsof the three types of Departments in the two States. euite anumber of officers were of the opinion that they had nothing todo with changing the attitudes of the people,and pursuadinglhem to change the pattern of agricultural practices wasnot theirresponsibility. They placed it squarely on the omcials responsi_ble for integrated agricultural proiluction programmes. Apossible reason why the officials did not develop a rightattitude towards change oricntation was due to the lack ofmotivation as their promotion in service was largely .governedby the principle of seniority. Some officers were even of theopinion that their role was only to carry out orders lrom theabove and it was not for them to pursuade tho peoplo in adopting

OffciaPs Perception of Behavioural Values 179

new methods of agricultral prod.uction. Tbere was, however,notmuch difference amongst the officers belonging to dcvelopmentor non-development departments as is characterised by the lowand insignificant values of X,s. This is true both for Punjab andMadhya Pradesh. In fact the developmental activities in ruralelectrification and irrigatiol works seemed to bavc been carriedon without the involvement of the people. Tho traditionaladministrative cfforts to provide nec€ssary support to develop-mett of agriculture codtioue to function.

Whether the officials believed in participative decision-making was the other aspect of bureaucratic behaviourthat was examined. It was found that the iocidence of themeotings of thc ofrcials taking place very often for participativedccisions werc thc lowest and varied botween 5 and 12 percentonly. Occasional mectings were reported only by 20 per cent ofthc ofrcers of thc development departmcnts of the PunjabGovcrnment and 39-41 p€r cent of the officials of dcri'elopmcntdepartments of the Madhya Pradesh Govcrnment, and 36 perccnt of ths non-development department of Punjab. In good

majority of cases, meetings wcre seldom held in the dcpartmantsfor taking partioipative decisions.

A study of tho officials' perccption about decision makingproc€sses in the two States leads to believe that the, process ofindividual deoision-making at. higher lovels of bureaucracy byindividuals aloae has not yct given place to partioipativcdecision making. A comparison of the perccption of theofficials in the Statc of Punjab and Madhya Pradesh does notsupport thc hypothesis that development in the statc of Putrjabwas in any case the consequence of participativo decisionmaking process .

7

Clientele's Perception of theOfficials' Performance

Rural and agricultural development is essentially an iutegratodprocess of change. It is a cooperative ventute between thepeople desiring change and the members of the official machi.nery who bear the responsibility to briog about change. Ahealthy relationship between the people and the ofrcials is thusnecessary for ojrtimum returns in the developmental activities.As it is ultimately the peopte who are in th.e true sense thejudge of the performance of the offcials in developmentadministration, it was considered neccssary to ask the bene-fciaries about their perceptions of the officials' actipns, thsirrole performance and capabilities. For this purpose, in each ofthe tbree blocks, three villages were selected, and interviews an{,discussions on these issuos were held with the people includingbeneficiaries and r on-beneficiaries (but knowledgeable persongIike teachers, traders, gram panchayat officers, office.bearers ofthe co-operative societies etc.). Structured questionnaires andunstructured questions were used in the field survey for notingtheir reactions about the process of development thtough thegovernmental set up.

The Gbnerat Problems of the Villagers in the Two States

It will, however, be appropriate to first look at some gcneralptoblems of the villagers in the areas of our study in the

Bureaueratic Values in Development

two states, Thc main problem in the irrigated villages whereprogrammes of high-yielding wheat and rice, oilseeds and pulsesand sugarcane have bcen taken up rvas thc seepage of irrigatiocwater and waterlogging, which tended to damage the crop onboth sides of the canals. Thus considerable areas were lost foragricultural production. Anti-seepage actions were alreadybeing taken by tbe State Govornments and further actions ofother kinds also needed to be taken to enable tbe farmers tomako the b€st use of the land adjoining the canals and thedistributories. In Punjab the laying of pucca water courses,which can save upto 20-30 per cent loss of water through seep-

age had already been undertaken in the Bhakra canal systemsand is continuing on a phased basis. In Morena, the positionwas different and lining of the Chambal Irrigation networkwas not under consideration, although Kumari Drainage Pro-gramme was in operation for a year. As a result of the inaugu-ration of the iotegrated rural development programme as animportant step aiming at the transformation of the rural eco-nomy, the farm growth rate has risen considerably lately in boththe districts under survey,

In Patiaia a new boom in agricultural producrion was inevidence. Programmes of .high yielding varieties of wheat,paddy, cotton (long and medium staple) groundnut, sugarcane(moetly for loc4l consumption of gur), maize, bajra, gram andoilseeds were intensively operated which brought all round pro-sperity to the farmers. The scramble for land ovcn at thoexhorbitant prices intensified quarrels in the families and created.disparities in the incomes of land-owners and landless cultiva-tors. The canals in this area supplied water for 8 days at astretch and irrigation was allowed upto 110 days in a year. Afarmer had to take his weekly turn in 168 hours of watering ata stretch, The easy availability of agricultural loans, mechani-sation of oultivation and harvesting, strong marketing andwarehousing arrangements, etc. have all oontributed to the,spectacular growth of agricultural production. Although about80 per cent of the water pumps were reported to be dioseloperated, which in a way increased thc input cost of agricul-

182

Cllentele's Perceptton of the Officials' Performance 183

tural products; but even thon the farmers mado substantialprofits from the agricultural products.

in Morena, on the other hand, the ptogrammes for paddy

development had not taken roots and people were thinking ofalternative Kharif crops like jowar, maize and bajra. Ground-nut cultivation was not popular and sugarcane production was

only picking up in Jaura Block. The only sugar mill in the

coopcrative sector at Jaura had its own problems relatiDg toproduction, marketing and prices. In the Rabi sowing season

Mexican wheat was irrigated thrice, mustard and gram crops

wcrc irrigated twice and once respectively. Arhar was widelygrown in unirrigated areas, and available pesticides were trct

applied to mustard crop unless it was badly damaged. The

warehousing and marketing organisations were weak to meet

the needs of tho farmers. The Central Cooperativc Bank

having 65,000 ntembers in 140 cooporative socioties and 8

marketing societies had its problem of recoveries which was as

high as 52 per oent. In spite of the lead bank (Central Bank

of India) advanccs and public financing societies having pro-

grammes of Rs. 44.5 crores, private money lenders werc having

good lending business, financing mostly oilseeds and pulses ofthe srnall producers, while the Food Corporation of India was

found to be mostly dealing with the large and medium farm'producers.

The innovative outlook reflecting the farmer's readiness totreat agriculture as a commercial enterprise and their prepared-ness to evaluate relative costs and benefrts of alternativeinputs and profitability of different outputs constituted the

most important variables in Punjab but not in Madhya Pradesb.

The willingness of farmers to conduct practical experiments and

take risks for arriving at a better combination, of inputs was

noticed more in Punjab than in Madhya Pradesh. The scarcityof capital, information gap in agricultural production and host

of other factors did not altow the farmers in Madhya Pradesh

to be as progressive as the farmers in Punjab. Only a minori8of farmers in Madhya Pradesh were progressive enough toaccept changes in agricultural production technology' Thus the

184 Bureaucrutic l/alues in Develooment

development offioials in this gector had a continuing responsiibility to render technicat advice, make availabli requisitosupplies aud credit facilities to the farmers, leading to highagricultural income for them.

The lrrigation Faciltties

The performance of the officials engaged in the developmentaltasks in the present study related mainly to thc sectors of ruralelectrification and canal irrigation while the offcials engagedin non-developmdntal tasks related to the Department- ofRevenue, which in many ways assisted tbe citizens lor securingvarious agricultural inputs in addition to the performance oftheir normdl revenue duties. Some of the beneficiaries of thecanal water irrigation system in the selected nine villages each inPunjab and Madhya Pradesh were canvassed three q-uestions inrespect ofthe water input, They were: (i) whether the peoplewere able to get timely supply of water from the canals;(ii) whether the canals had adequate supply of water whenirrigation was needed; and (iii) how well were the canals main.tained. It may, however, be noted that the villages with poorperformance did not have any canal system and the villages withmedium performanco had usually the benefit of irrigation canalsonly in certain peripheral corners of the viilages which meantonly partial benefit to them from irrigation. The villages at thetail end of the canals did not havc adequate supply of irrigatlonwater as the supply depended on enough availability ofwater. Villages with good performance that were selected hadusually the benefit of canal water irrigation. The replies aboutthe availability of water for irrigation purposes ,.r. tubulut.dand are shown in Table Z.l on p. 185.

_ Tho replies are highly corr€lated. About 45 per cent of tho

villagers in Patiala seemed to have the f€;ling thal theyteceived timely supply of water and the samo percentage ofpeoplo said that the canal system bad adequate water whenirigation was oe€ded, while a little bigher percentage ofpeople (54) said that the canals were well-maintained. About37 per cent of the people held the other extreme view that rhc

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186 .. Bureau$atic Values in' Dcvelagnent

aaDals had rarely adequate supply of water for irrigation. Alittle lower pcrcentage of people, viz., 28 pcr cont ob,servedthat the canals were poorly maintained, Thus one thingseemed certain, that if the canals had adequate wat€r, thesupply was regular. In the years of the scarcity of rainfall,the engiueers of the Department o[ Irrigation admitted thatthe supply of water was inadequate and very little could bedone about it. In the district of Patiala 54 pcrcent ofthevillager respondents were of the opinion that canals wcre well-maintained, In Punjab the current i igation programoesconsisted of strengthening the prosent canal system so thatwith the availability of more water from the Beas, the avail- .ability and water discharge oight be furtbcr augmented.

In Morena the situation was not very much different. Aslightly higher percentage of people viz., 50 and 58 per c.entof the villagers respectively were of the bpinion that theyrcceived timely supply of water and that the canals were well-maintained; but only 44 per cent peoptc thought tbat the canalshad adequate supply of water. The Madhya pradesh Governmentwas trying to make more water available from the Chambalto

-the people. About 26.27 per cont of the respondentsin Morena district thought thet the canils hardly gavc timelysupply of water as they did not .have enough water and thatthe canals werc poorly meintained. This extromo view washeld consistently by 26-27 per cetrt of the respondcnts. Amiddle view that canals generally supplied enough water, andhad adequate irrigation watei and that the canals were adequa-tely maintained was shared by 22,29, & lTper cent of thepeoplc respectively. But the trend of replies in this areaclosely resembled thc pattern noticed in Patiala,

, The engineers of the Department of Irrigation of both theState Governments were found to be satisfied with tbe workingof the canal systems. But they had to worlc under certainlimitations. Firstly, the availability of water in the canalsvaricd from year to year. Thus io some years tbey coutd notsatisfy the beneficiaries fully. Secondly, the fields situatedfurther away from tho canale and distributaries naturallycould not get as much watcr as the fields situated closo to the

canals/distributaries could receive. These factors werc reported

to be responsible for the wide fluctuations iu the pcrceptions

of villagers about the performaoce of the officials of the

irrigation dePartment.

Power SupPIY in the Rwal Ateas

Almost similar questions were put to the villagcr respondents

regarding the supply of power and its interruption and utilisa-

tioln for- development of agriculture. Replies to the thrte

questions: (i) whether the supply of electricity -was regular;

('ii) wtrether'there were frequent interruptions in the- supply ofpo*rr;

"oO (iii) whether po*". wu. utilised by the farmers for

ioti#J"gii"ultural production as it should be, wcre analysed

and are presented in Table 7.2 on p. 188'

It seemod that the supply of power was more regular in

Patiala than in Morena. About 46 per cent and 26 per cent

ofthe villagers had the two extreme perceptions of the supply

u.G..goiu. and irregular respectiv€ly wnite l+ per cent and

+O p"tt "iot

of the villagcrs of Mot"ou respectively said that

the power supply was regutar and irregular. The power supply

was, however, fourd to be somewhat more irregular in Morena'

Three processes-the generation oi electricity, its transmission

and distiibution are involved before thc supply reach€s tbe

uillug.rr. The greater the distance of the power transmitted' the

gr""i"t *ut thJ transmission loss'and more was the interruption

in transmission on account of the rains, storms' etc' Thus' thc '

availability of power was more continuous in the villages- of the

,district oaPatiolu tuuo in thc villages of thc district of Morena'

Clientete's Perception of the Affeials' Performance r87

of power 5l and

io Patiala gave the

and rarelY erratic'villagers holditig36 and 44 resPec-

Regarding the interruption in the supply

24 per cent rcspeotively of tbe villagers

.impression that the power supply was often

while the corresponding percentages ofsimilar views io the districJ of Morena were

eively. On the whole, the supply of power was more regular

Bilteauerdtic l/alues in Development

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Cltentele's Perceptio:n of the Oftcials' Performance 189

in Patiala than in Morena and the breakdowns were less

frequent in Patiala compared to that in Morena.

The utilisation of power for agricultural production wa$

more popular in Patiala than in Morena. In Patiala multiplecropping praetices had already taken roots. Thcrefore,

tho land was never allowed to remain fallow. In Patiala 5lp€r c€nt of half the respondent villagers used power for agricul'tural production while it Morena only 29 per cent or a littlemole than a quarter of villagers utilised power for increased

agricultural production. However, 38 per cent of the villageriespo4dcnts in Patiala and 45 per cent of the villaget respon'dents in Morena thought that power supply was not beingproperly utilised, as it sbruld be for increased agriculturalproduction. This made considerable differences in the percep-

tions of the villagers of the two States about the performance

of the officials.

Villagers' Percbptions rabout the Copabilities of the Oficials

Thc capability of the ofrcials in planning, energizing and

stimulating developmbntal efforts in the fictd are on trial today.

The obligation of the officials to serve and not to rule has by

necessity brougbt them closer to the people and has broken

the past traditional isolation of the ruling class. An attempt

was, tberefore, made to find out the perceptions of the benefr'

ciaries about tbe working of the officials both in the policy'

making areas and the day-to-day administration.

The perceptions of villagers about the functioning of the

officials, both in developmental and non'developmental depart'ments . of the State Governmentd of Punjab and MadhyaPradesh were recorded duting our field visits to the villages'The answers to negatively keyed questions like (i) do you

agree that the, planners and policy-makers wcre not well'informed about the real probiems in villages and set unrealistictargets; (ii) do you agree whether there is delay in the decision-

making at highet lcvels; and (iii) whether it was true that thcoffcials were not well-trained for developmental activities were

190 Bureaucrutic Values in Development

tabulated and are presented in Table 7,3 on p. l9l. The nega-tively toned queetions were put to the villagers because it wasthought that they came nearer to the impressions of illiteratoand semiliterate villagers.

From Table 17.3 it will bc seen tbat about 40.42 per centof villagers thought that the planners and policy makers werewell'informed about their real problems and the targets aimadat were not all that unrealistic. Such perception about theofficials prevailed both in Punjab and Madhya Pradesh. About35 and 38 per cent villagers thought that the planners andpolicy makers of Punjab and Madhya Pradesh rospoctively wereignoraot oftbe problemc that the villagers faced and set deve.lopmental targets.

Only 20-25 per cent respondents took the middle course bysaying that the statement was only sometimes true. There waspractically no large difrerence in the perccptions about theofficers of the two State Governments. Of course a largemajority of the villagers were themselves ignorant about thekind of education, training and experience of the officials thatwerc required of the developmeotat ofrcials.

Regarding perceptions about delay in decision-makingat higher levels, 55 per c€nt of the villagers in puojab and49 per cent of the villagers in Madhya pradesh thought thatthere was avoidable delay in taking decision. For. instance theymentioned that on occasions where there was no fain aod thecrops were in need of irrigation water there was considerabledelay in the decision to release the water in canals. In sucbcases the villagers had to approach the local politicians forputting pressure on the officials to have the irrigation waterreleased from the canals. About 2? per cent of the villagers

-both in Punjab and Madhya Pradesh reported oceasionaldelays in taking such decisions. Only 18 per cent of thcvillagers of Punjab and 24 per cent ofthe villagers of MadhyaPradesh believed that ofrcers did not delay in taking decisions.Thus it would be seen that only a quarter of the respondentshad good perceptions about the ofrcials so far as the decision-

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If this perception of vilagers about the officiars is read withthe perceptiou of the officers on participative decision_making(Tables 66 in Chapter VI); we find that ooly g unJ-:l per centof the oftcers (on an average belonging to tfr. a.u.foprnent andnon-development departments) of the Governinents of e,foluU

1,11_YI,OO* Pradesh respectivety felt that decisions were veryolten taken quickly after due consultations. This was against

18. per cent ofthe villagers in punjab and 24 per cent of theviltagers in Madhya pridesh u'no inoolr,t ;ha;;le ;fficers didnot delay in taking decisions. Thus the iifl"g".r, "piri"n

aboutthe officers in respect of decision.mating wa"s *ori Urtt., tnuothe perceptions of the officers thems;ru., Jool ,h"i, o*odecision-making process.

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, with many probtims and rhe ,oa;Liiiy of themsult dtsplay an element of distrust againsi

-administrators.

The perceptions of vilragers about the odciars' education and

lt:,totT might,have grown out of the general distrust theynold towards the oftcials, The conflict between the,slowbureaucratic pr.ocess and the rapid requirement of developmentmight have also distressed the viflagers anO iuir.a-aooUt, uOoottheir.administrative competenco and capabilities. Neverthe-rsss rt seemed that the full utilisation of education, trainingand experience of the ofrciat, *... il ;;;1il ;rceptibte.1 lh", ljl]f"rs^ of

. punjab and Madhya pradssh.' A gap inrne perception of villagers about officials and the latterns,ownperceptions was, therefore, found to cxist.

The Behaviour of the Officials

We have already examinod thethe attitude and behaviour ofChapter VI (vide Table No. 6.3).

perception of fhe ofrcials onthe clientele towards them in

Thsir peroeptions whether

elienlclei s Perceplia:E ofthe Africiats' Performance :l'93

they were apprehensive of the officials behaviour bave also been

discussed in this Chapter.

It will be deshable at this stage to examine the reciprocal

expectations of the villagers about the behaviour of the

officials. To know the perceptions of the villagers about the

behaviour and helpfulness of the ofrcials, we put two simple

questions to the respondent villagers. They wero (i) did the

Government servants behave with beneficiarics and non-bene'

ficiaries politely and (ii) were the officials belpful to them? The

replies were analysed acd are presented in Table 1.4 onp, 194'

It is siguificant that only about 13 and 14 per ceut of the

villagers in Punjab and Madhya Pradesh respectively thought

that the ofrcials behaved impolitely with beneficiaries and non'bene0oiaries. About 4l per cent of the villagers in Punjab and

45 per cent in Madhya Pradesh stated that tho officials bohaved

politely with villagers while 46 per cent and 41 per.cent of tbe

villagers of Punjab and Madbya Pradesh respectively were

r"poited to have said that the ofrcials behaved indifferently with

them. There was, therefore, not much difrerenoe in the

behavioural pattern of tho officers of the two States'in the

eyes of the villagers' Let us now examine the reciprocal state'

ment of the ofrcials about villager's behaviour which was given

in Table 6.3 of Chapter VI. Hero it was noticed that about

24 per cent olEcials iu Punjab stated that tho villagers w€re flotrespectful to them. This was against l3 per ocnt of the villagers'

impolite perceptions about the officers of the Punjab Government'The perceptions wcre not, therefore, exactly reciprocal. There

were also some gaps in the reciprocal perceptions of villagers and

officials so far as the middle values were concerned. As against

32 per cent of the officials in Punjab claiming moderate levels

of respect from visitors, 46 per cent of villagers found indiffe'rent levcls of behaviour from the ofrcials. Here again the villa'gers suffered from reciprocal treatment' The unhealthy citizen'

"driorrt."tot relationship in a developing society like India

has, pcrhaps; been responsible for this imbalance in th€ two sets

of perceptions and diference in the reciprocal perception levels

of tho higher values. Against 42 per cont of the ofrcials of the

Eureateatlc llalues ia Development

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Cliente.le's Perception of the Ofictals' Performance t95

Governmcnt of Punjab who thought that they got high respects-from the visitors; 4l per cent ofthe villagcrs in Punjab thought

that the officers were polite aod reccptive in dealing with them.On the wholc however this did not point to good community-administrator relationship, in the absence of which the devolop.meotal work is likely to sufer.

In Madhya Pradesh, while 14 per cent of tho vitlagcrs feltthat tho officers whom they approacbed were impolite, 15 percent of omcers felt that villagers were not respectful. Here theabsence of courtesy at both ends neutralised each othar. Againstthe 4l per cent of villagers flnding tbe ofrcials indifferent, 37per oent of officials found the villagers moderately rospectful.,There is not much differcnce in the reciprocal percoptioos.Against 45 per cent of the villagcrs in Madhya Pradesh whofound the officers polite in their dealirgs, 48 per cent of theofrcials founrl that thcir visitors wero respectful. So in MadhyaPradesh, it was generally a case of the same reciprocal perceptions between tho villagers and the ofrcials. Yet another aspoctof the villagers' outlook of the ofrcials' bohaviour $tudied wasthe pefception they held about their being helpful to them.Reciprocal perceptions of both the clientele and the officials

\ were obtaioed. Acoording to th€ statements of the ofrcertthsmselves (see Table 6.4, Chapter VI) in tbe Department ofRcvenue in the Government of Punjab, l8 per cent of the officersTesre stated to be seldom helpful to the people, while only 4.5per cent ofroers ofthe dovelopment departments were seldomhelpful. The average of the three percentages was 10. Againstthese 10 per cen! average of the officers in Punjab that thcycould not be helpful to the villagers as their requests were veryofteo uoroasonable, 34 per cent of villagers maintained thattho officcre wero unhelpful. Thus there seemed to be a big gapin tho porceptions of ofrcers and the villagers in this regard.

Against an average ofl 54 per cent of the officers in Punjabsaying that they oould be helpful to the people only occasion-ally, 38 per ceot of the villagers in Punjab found the officerssometimes helpful. Ilere again, a large gap existed betweenthc perceptions of the officers and the villagers. Such weak

196 Bureaucratic Yalues in Development

linkages impede the goal achievements and ,ol" prrfortuuc"of various incumbents engaged in developmental work. [low'ever in Punjab 37 per cent of the officials considered that theywere often helpful to the people while 29 per ceut of thc people

thought that the officers werc 'often' he'lpful. Here again, a

small gap existed in the perceptions of the officials and their. clientelc.

In Madhya Fradesh on the other hand, 18 per cent of theofficers, on an average, thought that they could not bo helpfulto the people who scught their help, but 24 per cent peoplethought thal the officers were rarely helpful. There is, thus, aconfidencc gap of 6 per cent" Similarly, 44 per ccut of theofficers in Madhya Pradesh, on an average, thought that theywere sometimes helpful to their clientele, while 38 per cent ofthe people found them neither helpful nor unhelpful. Here'again, there was a confidence gap of 6 per cent, but this was

a confidence gap in the reverse direction. While 35 per centofrcers, on an avetage, considered themselves helpful to thepeople, 39 per c€ot of people thought that the offioials wer€helpful. These cross tabulations of perception reveal considor-able gap in the relationship of the officials and tho poople.But tho gap is narrower io Madhya Pradosh compared to that ,

in Punjab.

Thc existence of such a confdencc gap could possibly beexplained by the fact that in order to be belpful,.the officialshad to distinguish between the just and legitimato demands ofthe viilagers from their unjust and illegitimate demands. Everwhile meeting their genuine and legitimate demands, the officials.had to follow a certain set of rules and procedures, which oftenled to dolays, thus giviog the impression in the minds of tbcvillagers that the officials w€rc not doliberatoly helpful towardsthem.

Villagers' Perceptions of the Officials' Aptitude for DevelopmentWork.

We have aheady analysed the perceptions of the officials about

Cllentele's Perception of the Officials, perfonnance t97

their wlrk. [t was considered necessary to know from thevillagcrs as to h)w they felt about ths aptitude of the officialsfor doveloprnent work. There is no doubt that the structura-l€omponents of bureaucracy considerably shaped the nature ofaptitude for development work. How far the old attitude ofmaintaining the statu$ qdo has given place to the lotion ofservice to the people was investigated and assossed by a sirrplequestioo put to the villagers-do the ofrcials in your opinionhave the aptitude for development work? The replies are pre-sented in the following table,

TABLE 7.5

(Percentage)

Questions Patiala MorenuUsually Some- Rars- . (Jsyq- Some- Rare-

times ly lly times lyDo the officials,.in your opinion,have the aptitudefor developmentwork?

25.6 32.8 4t.6 30.5 33,9 35.6

Aicording to the percEptions of the beneficiaries about thcaptitude of the officials towards development work, only about30 per cent of them in Madhya Praclesh felt that the oftcialsusually had such an aptitude as against 26 per cent in punjab,tlowever, the perceotage of beneficiaries who did not thinkthat the officials had that aptitude was 36 in Madhya Pradeshas agarnst 42 per cent in. Punjab. Thus the perception of thevillagers in Punjab was at divergence with that of the bene-ficiaries in Madhya Pradesh, although the stage of developmeotwas much higher in Punjab thao that in Madhya Pradesh. Wasit due to the lack of oommunioation between the ofrcials andtho villagers or due to some oth€r reasons? This can partly beexplainod by the fact that after an initial success, the develop-mental work in Punjab has lost some momentum. It may alsobe duo to the fact that io Punjab many of the farmers were not

198 Bureaucralic Yalues in Development

dependent on the small favours of the ofrcials in relation to

eloctricity or water supprles' Being somewhat well off and

"ir".Jin"v could acquiie a pump set to serve their own needs

;;;;;i;;ptnding on the official obligation' It was not'

tU.t"iot., wiihout riason that the farmers in Punjab had low

o-rr*otioo, about the development aptitude of the officials as

"otpar.C to what obtained in Madhya Pradesh'

The Villagers, the Officials and the Political Leaders'

After having analysed the villagers' perception of the, officials'

perfor.anc!, behaviour and capabilities,'it was thought proper

io investigate another aspect of theii outlook and attitude to'

warCs tne'officiats' This related to their perceptions about the

*-Lp.rutioo that they rendered to tho officials, their commonly

held belief that the officials were indifferent towards the villagersl

needs, and the kind of pressures they could exercise over toem

through the local political leaders'

Villagers' Perception of their Coopetatlon with the Officials

Institutional arrangements in energising and directing develop-

ment programmes require an effective cooperative participation

of the beienciaries in the effotts of the bureaucracy' A rapport

between the officials and the benefioiaries has thus to be created

for securing good performance on tho devevelopmental front'

Failure to foresee the needs of the people not only has

adverse effect on administrator'clientele relationship' but

also causes set'back in the achievements of developmental

targets, 0fficials often complain that they do not get ready

coJperation of the people iu their developmental efforts' Inordir to test the validity of this outlook of the ofrcials a ques-.

tion was put to tho villagers whethsr they felt. that they were

not generally cooperative with the offcials in theirde volopmcntal

effoits. The negatively framed question was asked because the

oflcials of th? Irrigatiqn Department generatly found the bene-

fioiaries whose fields were situated near the distributory canals

drawing more water for their fields before the fields situated

at a distance could be irrigated. The officers of th€ Department

Clientele's Perception of the Officials' Performmce 199

of Etectricity also found that many persons did not cooperate

witb them to have the electricity poles for rural electrification

installed in thcir fields' Thus thc negatively framed question was

,asked as some of the ofrcials reported that the people were not

coop:rative. The replies, however, were as follows:

TABLE 7.6' Villagers' porception of their cooperarion with the officials

(Percentage)

Question Districts Perceptions

A general complaint ofthe officials has been thatthe people are not co-operative with them intheir development efforts.Do you agree?

Patiala 5.6

Morena 4.6

l l.l 83.3

4.6 90.8

The respoadents very often resented this question, They

maintaincd that people were always prepared to oooperate atrd

it was the officials themselves who were mostly indifrerent to th€

people. In Patiala 83por cent of the respondents said that it*ut oot true that the people were not cooperative' In Morena

also 9l per cent of the respondents replied in the .same way'

Only veiy small percentage of people of both the districts

genorally and partly agreed with the statcment'

Officials' Apathy

If it is assumed that th€ people were on the whole, co-operative,

how was it that th€y were not getting their legitimato needs ful-fllled througb the ofloial channels? Wer€ the ofrcials indifferent

and cut off from the people and tbus igndred popular demandi?

The replios received from the rcspondonts io this respoct aro

tabulated below.

200 Bureaucratic Yalues in Development

TABLE 7.7

Aloofness of the Officials from the Villagers(Percentage)

Question

PercepttonsDistrict Yes Perhaps No

Do you feel that the patialaoffcials are cut offfrom the people and Morenaignore popular demands?

34.4

38.5 29.3 32.2

. It would be clear from the above Table that the perceotionsof the villagers about the indifferent attitude of the oificers werealmost equally divided among the three value scales in the dis-tricts ol Patiala. Tho picture of Morona was not also very muchditrerent, There was only a little weightage towards the firstscale of value at the cost of the middle scale. The villagers feltthat many ofrcers were inaccessible to them, According tothem, the officials thought themselves to be different from thepublic whom they were actually supposed to serve. Even whenthey were on field visits in the villages to assess and uDderstandsome Iocal problems they tried to maintain distance from tbevillagcrs and rcmained aloof. The pool section of the villagerscould never mix with them. The officials were seen movingmore with the ir own circlc of administrators either of equal orof higher ranks. In such cases the villagers thought that thegeneral attitude of the officials towards them was one of indif-ference and aloofness.

Political Leaders and the Officials-Their Inter-relaiiont

For studying the inter-retations betwcen the polltical leadersand tho officials we put a question to the offioials whether theyfelt that pressufe sas put to thom through the political leadersin the discharge of their duties. Thb rcplies as tabulated wereas follows :

Clientele's Perceplion of the Officials' Perfumance

TABLE 7.8

Political Ptessure on Officials

201

(Percentage)

Question

Perce?tions

District Mostl )' Sometimes Seldom

Do you feel that Poli' Patiala 8.5

tical leaders often Putpressures on you in the Morena 14.8

discharge of 1'our officialduties?

40.6

39.I

50.9

46.1

As is clear ltom the above table, only about 9 and 15 per c€nt

of the offieials in Patiala and Madhya Pradesh seemed to be of

the opinion that pressure was brougbt upon them through the

political leaders in msst of the cases. This meant tlrat the

offcials, on the whole, were not under great political pressure'

But 4l and 39 per cent of the officials thought that political

leaders did sometinres put pressure on them. Thus, about 5O

per cent of the officials thought they were somewhat or fullypressurised to take decisions on tho basis of political considera-

tions. In such cases very often the officials found themselves in

a dilemma to distinguish betw€cn the legitimate and the unjust

demands accompanied by such pressures. The officials had tocope up with a difrcult situation where they had eithcr to face

the wrath of the superior officiers if they took inappropriatcdecisions under political pressure or annoy the political Ieaders iF

they bypassed tieir rcquests as being unsound and inapplicable

tothe local situation, At least a section of the political leaders

did cxpect the ofrcials to heed to their instructions and even

circumvsnt the usual norms, procedures and the supcrior

officers' instructions in order to carry them out. Many a time

this created difficulties and stalcmate in the implemeDtation ofdevelopment policies' The only rcdeeming feature was that

atleast 50 per cent of the officials thought that political leaders

hardly dabbled io the administrative activities both in Punjab

and Mddbya Pradesh.

2O2 Burcaucratic yalucs in Development

Simultaneously, we also oxamined tho villagers' perception oforientation towards the effectiveness of tbeir poiitical leaders

TABLE 7.9

Villagers: Perception of the Influence ofPolitical Leaders on Bureaucracy

(percentage)

Perceptions

Questionsoften times

l. Do you have to takehelp of politicalleaders in meetingyour demands foragricultural needs

fulfilled through theofficials ?

2. Do you find admini-' strators more accom-qodative to politicalleaders?

Patiala 11.2 37.8 51.0

Morena 9.2 37.4 53.4

Patiata 12.8 4A.6 46.6

Morena 17.3 35.6 47 .l

in getting their work done. Two questions were put to tho

Itjlig-tT: These were, (i) Do you have to take the helpor porrtrcal teaders in getting your demands for agricultur;idevolopmcnt needs fulfilled by the ofrcials ; and

" (ii) Doyou find that the administrators are morc accommodative to thepolitical lcaders. The replios were expected to give the recipro.cal

-perceptions of people about thi influenie of politicalleaders on the officials. The result of theso questions is shownin Tablc 7.9 above.

It was noticed that in both patiala and Morcna districts onlya small percentage of the respondcnts, I I per cent and 9 peicent respcctively felt that thcy had to take the help of politicalleaders to get thcir devclopmcntal needs fulfillcd, ibout g8 and.

Cltentele's Perieption o.f the O.fficials' Performance )n7

37 por cent of the respoadents in Patiala and Morena furtheraddod that th! peoplc had sometimss to takc holp of politicalleadcrs for mecting their needs for agricultural pfoduction ful'trlled through the o6cial chanoels. On the whole, in about 50 per

€ent oascs, the peoplc very often and sometimes ap'proachcd the

political leadors with rcgard to the fulfilment of their needs and'yet in thc other 50 per c:nt of cases the villagers did not necd touse political leverage to get their work done. This perception oflillagers was patallel to the pcrceptions of ofrcers towards their'use of political in8uence in bcth the States. However, on the

'basis of p:rsonal discussions with the officials, it was noticed{hat a majority of them were negatively disposed towards them.

{o this context the natural follow.up was to determino'whether the adminietrators were rtrore a@ommodative to thepolitieal leadcrs, Thc trend of perceptions was similar to ths'carlier qucstions. About 13 and 17 per cent respectivoly of tbe,rrillagers in Patiala and Morena thought that the officers were,usually accoomodative to politioal leaders because they had the:apprehension that they migbt try to spoil their sorvicE records or

€et them transferred through thoir influence with the Minister€.This type of fear sooetimes compelled the ofic€rs to complyingwith thc requests of the villagers in Patiala and Morena political{eadors. It seems, as thc findings in Patiala and Morena reveal

that only 13 and l? por ceot of the ofrcers felt it necessary toteep the potitical lcaders satisfied. The number of villagers who,

believed that administrators werc sometimes favourably disposed

to political leaders wsre only 4l and 36 per ceot ofthe total,respondents in Patiala and Morena respectively' About half ofthe people, therefore, thought that the administrators were rarely

,.accommodativo to political leadsrs and acted on their own

dismetion or in accordance with the guidelines of the rules and

'regulations. These observationg were quite in agreement with the

peiceptions of the officials as given out by them (vide QuestionNo. 10.4 of ths Ofrcers' Schedule in Appsndix lI)-

SUMMARY

'This chapter has been coocernod with an analysis of the

204 Eireaucrati c Values in Developmenl

villagers' porception of the officials' performance, behavioursand capabilities aod their own cooperation with them. Wehave secn that villagers are generally faced with diflerent typesof problems both deveiopmental as well as regulatory in relationto agriculturil production. Tbeir. response, to tho officials'behaviour are very much determined in the way they get theseproblems solved at the hands of the ofrcials.

The two big problems for irrigation in both Patiala andMorena districts are the watdr-logging on account of seepage ofcanal water and high water level. Rice, pulses and groundnutare fast replacing bajra as the principal kharif crop. Nursery'raising and transplantation of paddy on staggering basis hashelped production of paddy in both the districts. In Patialathe Food Corporation of India has an efficient organisation forlifting paddy and wheat while the marketing and warehousingarrangements for paddy are vcry weak in Morena. The market-ing of ipulses an(l oilseeds are mostly in the bands ofprivate traders, The price incentives have lately given a push

to the cultivation of crops in both the districts. Higbyielding wheat has made tremendous progress in both the dis'trics and as a consequence the farm growth rate has consider-ably risen. While the farrners in Punjab are very progressive

with multiple cropping practices after evaluation of relativccosts and benefits of different crops, the scarcity of capital . andinformation gap in agricultural production has prevented thefarmers in Madhya Pradesh from taking risks ' for better com-bination of inputs to yield greater outputs. Only a small sectionof the farmers of Madhya Pradesh has seen influence of thetechnological changes taking place in the country and is willingto experiment rvith new techniques of agricultural productionwith the help of the concerned officials.

The present study relates to the role of development officialsbelonging to the sectors of canal irrigation and power andthe Revenue Departments of the Punjab and Madhya PradeshGovernments. Although the Revcnue department has beenassumed to be non.developmcntal, it is significant that theoffieers of this Department are also indirectly promoting develop-

Clientele's Perception of the Oficials' Performance 205

mental activities in many ways. But for the cooperation ren-

dered by the omcers of this supposedly non-developmentaldepartment many developmental activities could not have been

accomplished.

In the district of Fatiala 45 per cent of the villagers main-tained that canal water was available whenever irrigation was

needed aod the canals were certainly well'maintained, But atthe same time quite a good section of beneficiaries viz.,37 per

cent of them held that water was not available to them in times

of their irrigation needs and the canals did not have enough

supply of water. This difference in villagers' perceptions was on

account of the fact that all 6elds could not be irrigated at the

farthcst end of the canal system. This' was also admitted by the

irrigation ofrcers. Only l? pei cent of tho villagers took a

middle stance that water was generally available ior irrigationpurposes.

In the district of Morena about half the villager respondents

said that water was:ivailable for irrigation needs, alhough only44 per ccnt ofl them held that adequate supply of water was

available from the canals. The suptly of power was more

regular in Patiala tban in Morena. About 46 per cent of the

replies indicated that power supply was good although 5l per

cent of the people held that there were interruptions when

power was needed. About 24-26 per cent people held theopposito view that power'supply was not available when they

needed it and there were interruptions of power supply. Only26-28 per cent replies followed the middle perceptions.

Irregularity in power supply was more evident from the

replios of respondents in Morena, About 44 per cent of the

people said that power was not available when they needed itand 36 per cent peoplo said that interruption in power supplywas frequent. Opposite views were also expressed by quite a

good proportion of the people. Forty per cent and 44 per cen tof the people respectively said that power supply was not regu'lar and that interruption in power supply was vqry frequent-

Bureaucratic Values ln Development

Tho middle course of perceptions wasper ceDt of the people.

With regard to the perceptions of

expressed by only l6-20

villagers of the officials'knowledge of developmental targets, about 40-42 per cent ofihern thought that the ptanners and policy-makers were notwell-informed of the problems of villages and the targets aimcdat were not all realistic. Such a perception about the officialsprevailed both in Punjab and Madhya Pradesh. About 35 and38 per

,cent villagers in Punjab and Madhya pradesh respectivelywere of the opinion tbat planners and policy makers wereignorant of the problems which the villagers faced and conce-quently set unroalistic targets of development. Only 20-25 percent respondents took the middle course by saying that thiswas only'sometimes' true. Thero was practically no inter-Statc variation in this perception.

Regarding the villagers' perceptions about delay in decision-making at higher lovels, 55 per cent of the villagers in punjaband 49 per cent villagers of Madhya pradesh thought thatthere was def nite delay in taking decisiq$. Occasional dclaywas reported by 27 pet cent villagers of both th€ States. Ontyl8 and 24 per cent villagers respectivcly of punjab and MadhyaPradesh did not notice any delay in making decisions.- We havcalready seen that only 8 and 9 per cent officers, on an average,in the Governmcnts of Punjab and Madhya Pradesh rcspectivalymet very often for taking participative.decisions. The divergencein the two sets of perceptions was considerable. That tberewas occasional delay io taking decisions at higher levels is clearfrom the fact that 20 and 29 per cent respectively of the officersin Punjab and Madhya Pradesh reported to have occasionallytaken decisions individually without any consultation, agreeingmore or less with 26 and 39 per cent of the officials of thetwo Statc Government who thought that decisions.were takenon participative basis. Thc perccption of villagers about theofficers and those of the ofticers about lhemselves did not differmuch.

The villagers have a tendency to consider all their needs to bc

206

C I ient ele's Perce pt ion of the Officials' Performanc e 207

urgent. When their erpectations of tho early fulfilment of thcir

de-mands are belied by ihe delay on the part of the ofrcials'

they become restive. The dclays ocourred becauee the man on

the spot was unable to take decisions on his own initiative'

Consultation witb the higher ofrcials involved delays' Even

when thore was atr opportunity for the higher o{Fciale on visit

to the field ofrces to iake on the spot decisions, there decisions

were more frequently deferred. Thus the occurrence of delay'

mainly on ur"ooot oi conceotration of decision'making at the

highei levels had an adverse effect on the perceptior s oi the

citizens about the bureaucratic method of work'

Although the villagers could not possibly be fully. awalo of

tu. lJo""ioo, trainiig and oxperience of the officers' but in tho

oerception of about 80 and ?0 per cent of the villagers ia

Foo;"U uoA Madhya Pradesh respectively the oftce^rs wer€ not

"iiili*i*o for the development work' However' 80 per cent of

iil'"in.r$ r" roth the State Governments thought that €irher

iu.iiJor"tioo, trainiog and experience was fully utilised or

ooiv -oa.tutufy utilisetl. Thus there was a good gap between

iu.i"" *.t. oiperceptions' The reason is not difrcult to find'

il. i;;;;; io'uotn'tte states, in general' are industrious and

;;il;; improve thoir economic conditions' They have manv

;;;il;;1$solved bv the officials' when their expectationg

li. L.ftta, they develop anil display an eleoent of distrust

;;;;; ;i. ofror,. In the absenoe of anv closeness bctween

ilu na*ioirr."tors aod their cliontela' the growing distrust

aioungst the latter raiscs tliubts about the education'

ir"i"iii""O""perience of the officials' although on thcir part

il" "m""r"G

thdk that their qualifications and training are not

ilJ"g-pt"p.irv utilise<t. The two perceptions ate. seemingly

"o"tlilotiry,- but uoless there is closer integration of the

"ati"ltit",iii organisation with tbe realisation and implement'

,ioo oi,n. devslopmental needs of the citizens' this gap in

ilt *ttot of reciprooal p€rceptions will continue to exist' ifnot exPand.

With regard to thc villagers' perception- about the officials'

behaviqur, 13-14 per cent of thc villagers thought tbat offieers

208 Bureauerctlc Yalues in Devektpment

of the two State Governments behaved impolitely in theirofficials dealing with them against af ""A

af plr-".n, of ,1"villagers respectively in punjab anO lUuaiyn pr'uA"J *f,o ,uiathat.ofrcials behaved politely with the p*plr.- i" addition,another .16 and 4l per cent of the villagers i" ,1" 3r"i" of punjaband Madhya pradesh rsspectively thought that ihe officialsbebaved indifferently with the people. it.r, *u, irlu, nurOtyany.inter-state variation in this respect.

.-About 24 per cent of ihe officials in punjab had stated thatvillagers were not rcspectful to then ug.i"riii.'lj per cent ofthe villagers' percep{ions of tbe omcers"", U.f"g irpJtt". Theperceptions were not, therefore, reciprocal io-puriiaU. Therewas also some gap in the middle vah,es of perc.piion, of tn"villagers anC the officials. Against 3Z'p", 'cent of tfuofficials in^Funjab claiming moderate r.rp."t'f-nr:uisitors, 46per cent of villagers found indifferent levets of behaviour fromthe o6cials. Here again, the villagers suffered froni reciprocaltreatment. The unhealthv citizen_administrator relationship, theinherited tegacy of the pasr administration,;;;il;. some ofthe reasons for this imbaLnce in the *"ipi""ity- "f

Luhaviorr..There was, however, no appreciable aifere'oce iri tie reciprocalI1?,i"ltr::t of the high order in runiaU wrrere 42 and 4lper cent ofrcials and thc oeople respectively showed reciprocityof polite behaviour.

^"1:y^.93r.1,Pradesh, 'againsl 15 per cent of the officers per.

::1 1"J: that the vi[agers werc nor respectful, 14 pcr cent ofrne omcers were reported to be impolite by the villageis. Thereseems-t9. be some rcciprocity in this respect. Aiainst 4t percent.of the villagers who-found ofrcials ioiin r"otliz per centofficials_found the villagers modcrately respe"ttut. wlich is notmuch of a difference in reciprocity. H";;;;;;'"fie 45 pcrcont of

^the villagers in Madhya pradesh foundlle omcerepolite, 48 per cent of the ofrcials found the visitors respeotfut,In Madhya pradesh, therefore, the perceptions were reciprocal.

_Ilr"O:t* to the Department of Revenue abour 18 percetrt ot ths oftcers in the Governmen of punjab worc rcporied

Clieitele's Perception of the Off cials' Performance 209

to be seldom helpfrrl to the people, while 4 to 5 per c€nt of the

officers of the development departments only were rcported to

be unhelpful and 34 per cent of villagers held that the ofrcers

were unhelpful, Thus tFere was a wide divergence in Punjab

between thi two perceptions' llowever, agalnst 54 per cent of

the omcers in Punjab reportiog that they could occasionally be

helpful, 38 per cent of the villagcrs in Punjab found the offcers

only sometimes helpful. Here again a large gap existed. Against

37 per cent of the officers considering themselves helpful to the

people, only 29 per cent of the citizen respondents thought thatthey were helpful. . Such perceptions certainly weakened the

relationship between the officials and the people. Although the

findings on the whole do not support the hypothesis that the

developmental bureauoracy is indifferent to the citizens' develop'

mental needs butit clearly indicatos none too happy at citizen-

administrator r'elationsbip lvhich results in an attitude of distruet

towards the officers and produces unfavourable perceptions

amongst citizens about tho officers.

In Madhya Pradesh 18 per cent of the officers p€rceived tbat

they werc helpful to the people' -but 24 per cent of the people

thought that officers were rarely helpful' Similarly 44 per crnt ofthe officers of Madhya Pradesh Govornment' on aD averago'

felt that they wcre helpful to the people occasionally while 3!per cent oi peoplo found them neither belpful nor unhelpful'

There was, however, a small confrdence gap in tho roverso

direction as 35 per cent ofrcers, on an averag€, considered

themselv€s helpful to the people, while 39 per cent of the people

thought that the officials wcre hclpful.

Acoording to the porceptions of th e villagers in MadhyaPradesh, the percentage of thc officcrs who had aptitude fordevelopment work did not have aptitude and showed occa-

sional aptitudc were divided in the ratio of one'third each' InPunjab 42 per cent officers were reported to have no aptitude

for dev,:lopment work whrl: only 26 per cent officers seemed tohave showed their aptitudc tor dovelopment work. One-thirdof the officers, however, showed only occasional aptitude' Com'paring this with the capability (although aptituda and capability

2lO Burecucratic Valuet in Development

are not identicalt weifind a different pattern except in the middlcvalues of perceptions, tlalf of the officcrs in both the Govern-ments of Punjab and Madhya pradesh thougLt tbat they had

-

enough capabilities. This gives a divergent pattern in boih theextrem€ cases of good and poor capability.

In Punjab many citizens are not dependent on the governmenrfor small favours wbile in Madhya pradesh the citizens cxpectthe government to do everything for them and thus seemto be dependent on tbe govcrnment channels. ln punjab, ifa few persons werc afruent enough to have their water-pumps,they were independent ofthe offcials ofthe Irrigation Depart-ment. It was not, therefore, unnatural for them to developlow perceptions about the aptitude and capabilities of the ofrcerswho were generally taken to be apathetic to the needs of thepeople. The gap between the perciptions of tb€ citizens andthe officials in Punjab was, therefore, wide. But it was not aswide as in Madhya Pradesh where they had to depend upon theofficers for their developmental needs.

In respect of the often repeated complaints of the officialsthat the people arc not generally cooperative, thc villagersboth in Patiala and Morena did not admit that they were notcooperative with thc offioials in the developmental work, About83 and 9l per cent of the villagers in patiala and Morena res-pectively werg of the opinion that the villagers were vcrycooperative while the administrators were indifferent. A verysmall percentage of villagers of the two States thought that thoywerc not generally or sometimes not cooperative. people ingeneral seemed to be quite enthusiastic in development projectsand were willing to cooperate with the offcials in these venturss.The perceptions of villagers in .patiala and Morena about theapathy of the officials werc eventually divided among thc valuoscales ofyes, probably and no. Thc isolation of the officials,they said, was responsibli for their incffective role pcrformancoin developmont work, Sincc the findines about thi villaeors,perception about the officials in both the States onc of whilh isdeveloped and the other not-oo-dcvctoped are almost the same,it follows that tbc psychotogical hiatus betwecn tbc admiais-

Cljentele's Perception of the Offictats, performance Zlltrators and the citizens is very much present in both the States.There is, therefore, the nced for brushing up the image of theadministration tbrough eliciting citizens' cioperation and con-scious effort on the part of the officials towards enlightcoing thepublic on developmental programmes and their role andrnvolvemeDt in them.

Regarding tbe villagers' perceptions about the use ofplolltlcal leaders for putting pr€ssurcs on the officials for gettingtnerr work done, it was observed that both in the districts ofPatiala and Morona balf thc rerpood"otsiJraJti" officialshad to be pressurised through political teaa"r, to grt tl.i, .iortdemands fulfilled. This percepion of th€ vilageri agreed withtbe reciprocal perception oftho ofrcials regarding the-prcssuresput by the political.lcadors for mecting iublic ueeds, Thepeople in general believed that the officiali r,r,r.. ,or. accommo_dative towards the

_requests of politicat leaders. In many casesthe officials were afraid to ignore the requests of the politicalleaders, because they were apprehonsive oi the punitive actionsin the shape of transfers, etc. that might flow as a result ofthc complaints, genuine or otherwise, *hi.h might bo made bythe influential potitical leaders to the ministe-rs at the StateleYcl,

The findings of the chapter arc important rn as much asthese indicate tbe kind of perccptions that tho ofrcials holdabout their performaoce and achievements in the developmontalactivities and tho way they react with the peoplc. The rcci-procal perc€ption of the viitagcrs towards their behaviour andcapabilities shows the divergonce ic their own conception of tlosituation, These dcviations should be helpful in planningsomc proposals for socuring a more harmonious relationshipbetwecn the officials and thc citizons for better performance indevolopmcnt worh.

8

Relationship Between BureaucraticCharacteristics and Develop-

mentfil Orientation

In Chapters lV, V and VI, we examined th6 structural, socio-personal, socio-administrativc and behavioural cbaractcristiceof burcaucracy engaged in dovelopmental and non-devolopmental activities in th€ Statcs of Punjab and Madhya pradcshwith the hclp of data collected in eelected btocks of patiala andMorena districts respcctively. . In Chapter Vl wo also oxamincdthc orientations of these ofrcials towards development. Inparticular w€ tried to discuss the extent to whioh tboofficials workiog in the different departmcnts wero moti-vated by the goals of dcvelopment as rcwaled thrqugban analysis of their value systems and attitudes reflccted in.the answers to sone of the questions canvassed in thisrespect.

In this chapter, it is proposed to cstablish'a correlatioashipbetween tho averagc composite attitudes of the ofrcials engogedin the devclopmcnt tasks towards their devclopment orientationas rovealed in our frndings in Chapter VI witb the yarlousstructural characteristics of the Weberian model of burcaucrary.Since in the findings of many of the earlier studies on thcsubjcctn it has clcarly been established that the bureaucracy inIndia by and latge sharcs thc same Wcberian structuralchargcteristiog it wquld be intercsting to note in tho prcsentcontef,t as to the way cach.of thc charactcristics ir cqrrclatcd

214 Bureauuatlc Talues in Development

.',fuitn tn. officials' development orientations. Since in our study'we have siade an assumption that the ofricials working in theRevenue departments in both the States are primarily engaged

in non"developmental activities, we are at present only takinginto consideration the results of the averages of the develop-

mont orientation of the officials of the Stpte Electrlcity .Boardsiatrd. thg -Irrigation Dcpartments (engagod -in develop('entalactivitios) in the two Statos ,avhave. !ee4.wqtted out in the

tablcs outJined in Chaptet Vl of this study.

It is proposed to test statbtically if the average perceptions ofdovelopment pcrsonnel towards selocted bureaucratic characteri.estics and values in the two States is consistent with the averag€perc€ptions of development eipressed in terms of thelr change/result/target orientations, Let us first examine the correlation-ship in between the offcial's perception of hierarchy and theirdevolopment orientation, Table 8ll oir page 215 gives the

, oorresponding figurcs of the ofrcials'value scoro on hierarchy:as a characteristic of buroaucracy and their orientations towardsdevolopmont in the States of Punjab and Madhya Pradesh

Thile Table 8.1 gives an' indication that high per-.bcptions attached by the officials to hierarchy as a burs-Cucratlc value in botb the states correspond to the higherdevelopment values of the ofrcials, the figures when plottedon a bar diagram give a differont correlationship especially inrelation to the moderate and low values of perceltions of theofrcials.:

.-'From the Bar Diagram No. 12 on page 216, it is evidcnt that'ofricials having higher scorc on thi value of hicrarchy in the StateofPunjab havc somewhat lower scores on their perctption aboutdevclopment, IVhilc the oficials having moderate and lowscotcs on the same stfuc,tural valuc tend. ts havc higher scores

16f : +h€ir ,orientation towsrds developmcnt; ' it follows that.thixir officials wliro assftia' .a .big&el - +elild to hiorarehy mry

(\

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a.l

c.|ciC\N

3xq9s$

v?qt\ (\l

e.l

o6od+e{ cn

rrt ol+d

B

tri:oEETEloo

Eureaucra+c Characte$$ies and.Developmental Orientation att

Irtell\l

-ll

SlsIr:

slBst><l{

t.slll.{

(Dao

lDah'o a)

' ., rs

()(iloo€t(a

o.=€ !:6r'l(DE

c gA4F FE0)c)FgE*

^lD,=-EO!!)

,r6 Bureauctatic Yitlues ln Eevelopment

PUNJAA

BAR OAGRAT r{o.12

HAOI{VA FRADESTI

f=Perecn iogc

Hbrorchy

0avcloprnenl

Mo derole LoI High Modirote

HIERARCHY AND OEVELOPMEN T

Etneaucrattc Chancterlstics & Developmental Orientation 217

rtoaia behind their developmentel orientation than thosc whoassign hierarchy a moderate or low perception score. Fromthe corrclationship thus cstablished in Punjab, it may bc

ouggeetcd that too much altachment to hierarchy.as value acts

as a ncgative factor in thc proccss of development. The same

corrolationship is, however, marginally ofthc reverse ofder incase of Madhya Prade sh. Here it seems that the officialshaving high perceptions of bierarchy as a value have also largerorientations towards dcvelopmcnt while thc ofrcials havingmiddle and low perceptions about hierarchy as a valuc

correspondingly show less orieotation towards thc developmentgoals. 'fhe divergence ia tbe fndings in the two States may

' possibly be cxplained by the fact that developmental activitiesbsing comparatively ncw in Madhya Pradesh, therc was moroinitial enthusiasm amongst the officials towards dcvelopmentgoals despite their high attachment to hierarcby as a value. Atthe same timc the officials baving moderate and low score per'ceptions on hlerarchy did not seem to be much oriented towards

dcvelopmont goals. To some extent this reflects the scepticism

of the bfficials wbo dcspite their low attachment to the value

of hicrarohy could not orient themselves to larger goals ofdevelopment.

The x2 values for Punjab and Madhya Pradesh for 2 degrees'

of freedom are 2.56 and 0.20 respectively which are statisticallyinsignifcant at 5 per cent level of probability. Tbus the scale'

values of perceptions about hicrarchy arc indcp:ndent of-thosc of delelopmental activities and there seems' to be

divergence betwcco values of hierarchy and value orientation.towards devclopmcnt, But thc value system of the officials in.the State of Puojab clearly supports the view that in the longterm developmcot&l goals, too much adherence to hierarchy may

not bc a factor promoting development goals. It also showsthat 'hierarchy'a$ a value cannot altogetbcr be done away withoither.

Division of Labour and Development

We now examins the correlatiaoship of another : 1 "

. ' 84gpqss761Sa YalueE itt Developxent

cbaraoteristic of bureaucracy thcr.division of labour drr wsrk itrclation ro the development orisntation. Tabls g2 on pago 219division gives the scalc vglues of Berceptions of the ofrciale aboutthc division of duties in the two Staets and tbeir devclopmentoricntations. As the division of duties. among the ofrcials is anfmportant characteristic of any burcaucratic organisation, whatis proposed to bc examined in this con,text. is whether th€ Exis-ting value system of the officiats to the division of dutiesencodrrages or impedes the orientation of officials towardsdevelopr,nent in the two States.

Here again it will be noticed that high perception oftheofficials on division of duties both in punjab and Madhya ,

Pradesh are usually associated with reqpeotively high pcr.ceptions of deyelopment, and modcrate pcrccptions oftheqfficials on division of duties are similarly associated with theirmoderate developmental orientations, However tow valuoscores of oflcials on the division . of duties are accompanied bygreat€r scores on developmental orientations. The trends ofscores on division of duties and development seem to b€ alikeboth in Puajab and Madhya pradesh.

From the Bar Diagram No. 13 on page 220 it is clear that inPunjab, oftcials who have high and moderato value soores onthe bureaucratic characteristic of division of duties also havecorrespondingly high development orientations.' However thoseoffcials who ascribe low values (only 12.4 per cent) havcstill higher orientation towards developmcnt (22.0 per cent).

In.Madhya Pradesh, however, the oftcials attaching both.high and low values to the division of duties show grearerorientation towards devcloparent. Whil€ those having moderatevalue ecores attach correspondingly lass value preference todevelopment. The difforence is, howover, marginal only.

The I, values for division of duties and developua.c ;orientation in Punjab and Madhya pradesh are 3,30 and 0.4respectively which are statistically insigdifieant at 5 per centlevel of probability for two degrees of freedom, This meansthat thc officiols' scoree 60, divieioa of duti€s aild d€vetopmlr t

218

t

(q(a

-(\ll

(I)

ql

x

ra, ooioc.l

€svi c'i

F\Ot.; F-s{tr

soa.l C.l

o€oo <l

\o c.lO\ .o

.995qr\ E-

=- aE

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&r''au&atk Charaderistict &,Dettelopmental Orientation 219

t

*,P9

l=lsi

l

Rl$t.*\o

loIt*I .30

6

tt

€s

!)oo

tal<a9g6dAr

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220 Burcoucratic Vafues in Dcvelopment

High

6AR OIAGRAM NO, 13

Mo derote Low

OVISION OF OUTTES AND

Pergentoge

MAOHA PRAOESH

High Moderote

DEVELOPMENT

Bareaaeratlc Charucteristics & Developmental Orientation Z2l

oriontation aro trot correlated. However the percentage ofofrcials with low perceptions of division of dutics in tbc Stateof Punjab having a correspondingly bigher orientation towardsdcvelopment is very small, giving an impression that once thedsvelopmetrt programmes have got rootod in the system,adherencc to tho division of duties becomes essentialfor their cootinuance and efrcient implementation. The highand low p€rceptions of such valucs in Madhya pradesb

on division of duties with correspondingly higher orient.ation on development may be an indication of thc desireon the part of a larger number of offcials to achieve thedcvelopment targets without being muoh influenced by a rigidpattern of division of duties in the initial steps of tbe develop-mcnt work. It also follows that by and targe, on an average,adherencs to division of duties as a bureaucratic value is incorrespondencc with dovelopmeot orientation in both tbe Staies.It is only when too inuch stress is laid or when there is nostr€ss on this characteristic that developmental goals scem tosuffer. It can also be inferred that a strict adherence todivision of duties in dovelopment organisations in the initialstages may not be vcry feasiblo.

Syuem of Rules and Development

A bureaucratic organisation depends upon an elaborate pre-scription of rules and proccdures. In both Punjab and MadhyaPradcsh the officials of the Electricity and lrrigation departmentshave been no exception to this principle. The activities ofthodcvelopmeotal ofrcials arE necessarity governed by €laboratecodes which while' protecting them against criticism fromarbitrary action simultaneously furnish them some guidclines toenable them discharge thcir development functions. Ih practice,howcver, the adherence to rulos often means frequent delays inthe accomplishment of goals,

Table 8.3 on page 222 givesthe pcrccptions of officials engagedin devclopmental activities abo'irt the system of rules and theiroricntation towards development. Tbc comparative figurcsgcet to establish a correlation betsrcen the bureaucratic

222 Bureaucratic Ye.lUes in Develapman

eharacteristic of the system of rules and thc oficials dovelOp.-mental orientation,

. The data indicates that the developmental offcials, parti-cularly in Punjab observe very high values for systcm of rules.During .the field visits it has been observed that th€ ofrcers ofthe .higher levels were more rigid in the application of therujes. They do not see the necessity to deviate frqm the codeswhich prescribe their methods of work. This higb.rigidityabout following rules and procedures, frequently causing dolays

TABLE.8,3

Officials' perception on systom of Rules and theirorientation to Development by States

(Percentage)

Characteristics Punjab

Higt-M;Aiate-nw

S1'stem of Rules 1 1.2

Development 43,2

12.5 55.6 30.0 t4.422.0 47.6 32.4 20.0

16.3

34.8

X,2-value (d.f.:2) l6.l 5*x 1.62

in performance, seems to bo very much ingrained in thc miadgof officers. Thus it can be construed that although the officialsshow a high value preference to the system of rules arenot really development orientpd. This is very much clear frodrthe Bar Diagram No. 14 on page 223. At the same tioe ofrcialswho have moderate and low pelceptions on the system ofrulesseem to be having correspondingly higher scores on Jevclopm€nt.. Almost a similar situation obtains in Madhya Pradesh where

ofrcials attaching higher values to systen of rules atc lesle

development orientad, while those attaching moderate and low

m Sysremot R ulci

| | Developm€nl

Percentoge

Hgh $iodcrote Lo*

. .SYSIEI{ OF RULES AI{O

- Hign Moderote

T}EVELOPTIENT \

224 Barearrrqtlc lalues tn Dewlopment

1n Puajab is 16.15 which is vcry significant even at one per ccntlcvcl of probability for 2 d€gro6 of freedom. Tbere is thusa good .association betwel thc values attached to the systemof rules ae observed in punjab and thc orientation of theofficiale. towards dcvelopmcnt. .ddherence to thc system ofrules not only scem to protect tbe individual ofrcials agaiastuaduc criticism fiom the public quarters, but in punjabit does not secm to be ilconsistant with their developmentorientation.

In case of Madhya Pradesh the difrerences in value scales ofthe two variablcs are very much less with the result that the Itvaluc of thc tcst of significance of the two variables is only 1.62which is vcry insignificant at 5 per cent level of probability for2 dcgrees of freedom. Thus thore is no correlation between theoffiicale adbering to tbe systcm of rulcs and their devetopmentoricntation in Madhya Pradesh. Although the pattern ofindividual valuo system is the same both in punjab and MadhyaPradesh, but the low Xe value indicatqe that the ofrcials,development orientation is irrcspcctivc of their attitude toadherc to tho systcm of rulcs.

Impersonallty and Developmmt

For an ofrcial, one person is just more or less the sas€ :ul aoyother pcrson in his official dealings. The ofrcials are not undulvcoaccrned about the satisfaction of their clientcle, if they havcobscrved the prescribed rulee and procedures and principlcsof impersonality in their dealings with thcm. Wc havs tricdto examinc the relationship of thc bureaucratic characteristicof impersonality and the ofrcials' oricntation towards development in both the Statos of punjab and Madhya pradesh. Thc1grc1 of devclopmcnt officials of both thc Staies of puojab andMadhya Pradesh oa both thesc valucs are given in ?ablc g.4on pagc 225 and illuetrated tbrough thc Barbiogram No. 15 onp_age 226. From the bar diagram, it.may be ,roi th"t in casc ofPunjab tlo perccntagc of ofroiats atticning iJg-l oJo. to i.-pe-rcoqality in thcir dcaliogs seern to te oucn-niiler thatr thoewho tend to indicate tho samo lcvcl of oriontrtioi toryardr dcv+

Sureaucratic Chatacteqsrict & Devplopnental Ofientatton 225

lopmetrl. While the perccntagc of officials ehowing moderate andlow value to imporsonality is vcry smallr the correspoading per'ccntagc of ofrcials sharing the same lcvels of values towerds

dovolopment oricntation is much higher. It can, thorofore, bc

infemed that observancc of a high degree of impersonality in thcbchaviour of ofrcialg ie not vcry much associated with devolop'ment odentatioo, while moderate and low degrces of values

attacbcd to this characteristic may be associatcd with corres'pondilgly bigber orientation towards developmcnt. The patternof perceptiors of tho officials in Madhya Pradeeh is similar' butwith little variations in high, moderate and low value scores incontrast to Punjab where tho variations are high.

TABLB 8.4

Impcrsonality and Devetopment by States

(Percentage)

Pmjabc har act er is t i c fii-u o de- tow

tale

Madhya Pradesh

Hlgh Mode- Lowrute

Iop€rsonality

Development

78.1 t9.7

43.2 34.8

2.2 54.9 29.0

22.O 47.6 32.4

16.1

20.1

x'z'value ('l'f':2) 30.42*'

The le-value of impersonality vis-a-vis developmcnt inPunjab is 30.42 which ir vcry significant satistically at one

per ccnt level of probability for 2 dcgrees of freedom. It can

thcrefore be concludcd that the scorcs on impersonality follo-wcd by the ofrcials of the development dopartments of Punjab

and tbcir dovolopmont orientation have high association.

In Punjrb the offcials connectcd with the developoental workhad obrcrwd grestcr imporsonality in thcir bchaviour tow ds

2.48

BAR-- DIACRAM NO. 15

Percenicge

Moderote Low High Moderote .

IMPE RSONALITY ANO DEVELOPMEI{I

Bweauerifr ic Charoct 2 ri stlc s &. D evelopm ent al O I ient ation 2n

their clieotcle but this has not significantly hampered the pro-grrss of devclopmcnt.

The position is different in Madhya Pradesh where the highvalues given to imp€rsonality- ma-rgiqally €xceed thosg given todcvelopmcnt. .The moderate and low values given to imperso-ratttrffirc.rEargtf'dlly fall short of the levels of their devetop-ment orientation. As the xe-value in Madhya Pradesh showsthat there seems to be no association between the value of im:personality and officials' development orientation. It is possible

that in Madhya Pradesb tbe observance of impersonality bythe officials in their behaviour towards their clientele has boen

conduciva to some progress in the field of developmental acti-vities.

3ut,as-th€ ease of Punjab illuskates, the observence of imper'sonal behaviour of the officials has not produced the dcsireddovelopment orientations amongst the officials in the long run.Thus impersooality as a characteristic in the behavioural patternof thc oficials may be hclpful to some cxtent, but a high degree

of its observance may not always produce the desired resultein developmental activities. In other words it follows that thedevelopmental activities would have to be ultimately geared totuit the Civcrsified rieeds of the heterogenous elements of theclientelo.

Relattonship of Offi.ctals' Combtned Perception of StucturalChalacte stics of Bureaucracy on their Orientation to Develop-ment

We have so far examined the relationship of offcials' orientationtowards individual characteristics of bureaucracy like hierarchy,division of duties, impersonality and system of rules and

their orientation towards devolopmontal activities in Punjaband Madhya Pradesh, We now propose to examine therelationship betweeo thc ofrcials clubbed perception to the

combined bureaucratic characteristic and their ofientation todevelopment. Table 8.5 on page 228 gfues the figures relating tothe officials' tot.rl si.:ore on their pcrception of hierarchy,

228 Bureaucr atic Values in Development

TABLE 8.5

Relationship of Officials' combincd pcrception of Structural

Characteristics of Bureaucracy and their Developmentorientation bv States.

Madhva Prailesh

Characteristics High Low Eigh Mode- Lowratetarc

All Structural 63.3

oharacteristics

'Oricntation 43.2

towards deve-lopment .

25.2

34.8

I 1.5

22.0

49.8 32.2 r8.O

47.6 32.4 20,0

Xt value (d.f.:2) 9.6* 0.15

divieion of duties, system of rules and impersonality orientationto developmont in the two Stat€s.

It will be seen from thc Bat Diagrau No. 16 on page 229 thatthe ofrcials in Punjab who have high perceptions about allstructural charateristics of bureaucracy aro in higher percentage

than their corresponding pcrcentage with orientation to develop-ment while the pprcentage of the officials with moderate aod lowp€rceptions towards the structural characteristics of bureaucracyfall short of the percontage of the ofrcials with similar orienta-tions towards development.

The ?t2-value of .porcoptions of thc struotural characteristic ofbureaucracy in Punjab vis-a-vis development is 8.6 for 2 degreesof freedom, It is significiant at 5 per csnt level of probabilityfor 2 degrees of freedom. To sum up, the I'z-test sbows thatthe data would lead us to helieve that in Punjab there is goodassociation betwoen the officials' perccption towards their club-bed values of bureaucratic characteristics and their orientation to

Eweeucratic Characterlstics & Dewlopmental Orlentation 2Zg

gAR DTAGRAM NO.16

MADHYA PRAOESH

n Att sfructurot chorocteristict

Percenfoge

High Mod€ro ie Low

AU STRUCTURAL C HARACTERISTICSDEVELOPMENT

High Moderote Low

OF BUREAUCRACY AND

2r0 Buritauqallc Values ln Development"

development, and that the stractural charactoristics of bureau-

cracy in Punjab are not in dissonance with development'

In Madhya Pradesh the position is different. The percentage

of officials having high levels of perceptions about buroaucratic

characteristics are marginally higher than the corresponding

percentage of officers with high perceptions on development-

it i, .ruttt. in the case of moderate and low perceptions of the

two variables. The differences'in the variables are so little that

ihe valuo of 1,2 is only 0'15 which is insignificant' Thus, itcan be concluded that in Madhya Pradesh, tho officials' orienta-

tion towards bureaucratic values has no correlationship witb

their develoPment oricntation.

Inter-State Variations

So far as the structural characteristics of tbe bureaucracy in thc

two States are concerned, there is diversity in the value percep'

tions of the officials. The ofrcials of Punjab Government attacb

higher values to the structural characteristics of bureaucracy than

their counterparts in Madhya Pradesh'

On the whole, the above findings clearly indicate that the

pace of development cannot be accelerated through a very rigid

udhatao." to the Weberian bureaucratic oharactcristics; nor itseems possible for development to proceed in the organisations

having iow values with regard to structural characteristics' Thus

it may seem essential to consffuct a bureaucratic oraganisa'

tion even for achievement of developmental goals but without

making the organisation as an end in itself' This also disproves

tho hypothesis that in India there is any significant difference

in the value perceptions of the ofrcials whether belonging to

devolopment or non'development departments towards thc

Weberian characteristics of bureauoracy'

S oclo - Per sonal V alue s and Deve lopment

The relative importance that tho officials attach to some

socio-personal values deeply affocts thelr performanceof thein the

Bareaacratic Characarlstics & Developmenlal Orientation 23f- :.

organisation. In ao earlier Chapter we examined the respcctivevalue perceptions of the development officials in Punjab andMadhya Pradesh towards two of such characteristics, namely,tbc integrity of charactor and the equality of individuals, In thissection we propose to establish the correlationsbip between the

official perception of such values and their devclopment orien-tation.

Integrity of Character

lntegrity of character is an essential socio-personal value whichis *oquired of all.Government officials. No ofrcial can be efiectivein his activities if he succumbs to undue pressures of all kindsand begins to compromise the principle of integrity with expe-diency. As revealed through their statements, it has alreadybeen noticed that the ofrcials both in Punjab and MadhyaFradesh attach high values to the quality of integrity of chara-cter. Table 8.6 gives the comparative perceptions of the officialsabout intorgrity of character and its relationship to the develop-mental orientations.

TABLE 8.6

Relationship bctween Integrity of Character and DevelopmentOricntation by Statos

(Percentage)

Punjab

Characteristlc High Mode- Lowrale

Madhya Pradesh

tate

Integrity of 72,4Chara:ter

Development 43.2

15.0

34.8

12.6

22.O

49.5

47.6

30.0 20.5

32.4 . 20.0

X?-Value (d.f.:2) 17 ;19** 0.r3

From the Bar diagram No. 17 on page 232, it will b€ seon that

,,7',Bweaucratic Value s in Deveilopment

BAR DIAGRAM NO:.!7

FUNJAB MAptlYA PREDEF}I

@ Integrlty of Chargstel

furcentogg

trbderote Low HE[- ModerGINTEORITY OF cHARACTSR AND DEvErrRtENt

Bareaucratic Characteristics & Developmental Orientation 233

thc ofrcials attaching high values to integrity of character inPunjab. seem to have a lower orientation towards development,whil€ those attaching moderate and low values seem to behaving greater oricntatioo towards development. Thus in punjabofrcials seem to have attached much higher emphasis to the' intogrity of character than dgvelopment. About 72 per cent ofthc officers ofPunjab government attached high importance tointegrity of character while only 43 per cent of tbe respondentofficers gave high values to development, Compared to 15 and13 per cent of the officers attaching moderate aad low valu€srespectivoly to the iategrity of character, 34 and,22 per cent ofthe officers had moderate and low perceptions about develop-mont.

Thc Xs.value for perceptions of th€ integrity of character ofthe developmental bureaucracy in Punjab was very hrgh at17.79 wnich is very significant statistically even at I per centlevel of probability for 2 degrees of freedom. Thus, association.between p€rceptions of integritv of character and orientationtowards development is significant. The two variablos are.interrelated in Punjab, suggesting tbat integrity of character is.fundamcntal for any program.of development.

In Madhya Pradesh it is observed (Bar Diagram No,l7) that:the percentage of officials attaching high values to the intcgrityof character is marginally higher than tbe correeponding per-centage of ofrcials attaching the same value to development-The saEe observation can also be made in the case of ofrcialsattaching low values to integrity of character and corresponding.low orientation to development. But the percentage of officialsattaching modcrate valuc is marginally lowei than the officialshaving moderate orientation to development.

The Xr-value is only 0.13 which is very insignrficant statisti-cally at 5 per osnt level of probability. Thero is thus no correla-

. tioo betwc€n the two sete of valub scales. The aciherence toprinciples of the integrity of character and the progress ofdevelopment soems to be indepcndent of each other. A com-parison batwecn the scorcs of officials in Punjab and Madhya

234 Bureaucratic Valses h Devebpment

Pradesb officials' score on this value and their relstionsbip withdevelopment orientation, on the whole, gives an imprcssion thatwhile there is .good association b€tween the p€rceptions on

integrity of character and officials orientation to development inPunjab, there is no such relationship between the trryo in the caso

of the officcrs in Madhya Pradesh.

Equality of Individuals and Detelopment

The officials' treatment to individuals on an equal basis is theother socio-personal value which was sought to be correlatedwith their development orientation. It would be observed fiomTable 8.7 that the percentage of ofrcials in Punjab attacbing

TABLE 8.7

Equally of Individuals and Development by States

(Percentage)

Characrcristics Punjab

EtsE --M;A;---Lowrate

Madhya Pradesh

EUE--MoA;---XowfaI e

Equality ofIndividuals 53.9

Development 43.2

'37.3 8.8

34 8 22.0

33.3 20.3

32.4 20.0

46.4

47.6

I2-Values(d.f.:2) 6.94" 0.04

high valuos to this eharacteristic exceeds those who have highorientation to devclopment. Similar is the case with the officialeattaching moderate value to this charaoteristic who correspon-dingly have moderate orientation to development. But thenumber of offcials attaching low value to this cbaracteristic,though very small, has corrcspoudingly larger percentago ofofficials having such orientation to devcloprnent. It, thereforo,follows that officials who nay not attaoh high value to equalityof individual may stilt be oriented towardo development.

Bur eaatr xtlc Ch arac te r tittcs & Developpent al O rientat ion 235

In respect of Madhya Pradesh, there is no signifrcant diffe'retrce between the percentage of officials attaching high' moderate

and low values to the cquality of individuals and their corres'ponding orientation towards development.

From the Bar Diagram No. 18 it may been seen that high and

modorate values of perceptions of the offi:ials in Punjab Govern'meot in respect of equality of individuals exceeds their high and

moderate orientation towards development. The low values

attached to the equality of individual is very small compared to

those of development.

The X2-valuo of the charactristic of equal treatment of indivi-duals vis-a-vis development performance of Punjab is 6'94

which is significant at 5 per cent level of probability' Thus itsoems tbat there is good association between the principle of'equality of individuals and development orientation.

In Madhya Pradesh, on the other hand, the percentage of'officials with high value perceptions to the equality of indivi'duals is marginally lower lhan the peroentage of officials'showing high values to development. The percentage of offi-,cers with moderate and low valus perceptions on equality ofindividuals are marginally higher than their correspondiuglpercentage of ofrcials having developmsnt orientation.

The X'z-valuo of equality of iodividuals vis'a-vis development

'is oniy 0,04 which is very insignlficant for 2 degreos of freedom

at 5 per cent level of probability. Thus the principles ofequalityof individuals followed by the officials engaged in developmen'

'tal activities in Madhya Pradesh is independent oftheir orienta'tion towards develop;nent. The two perceptions are notcorrelatcd although the ofrcials whilo remaining conscious

drwards dovelopment goals were also fouod to be inclined toobserve the principle of equality in their doalings with their

*tentele.

.- Euicancratlc Values ln Devel6polsns

gAR OAGiAM NO.I8

RNJAS MADHYA PRAO€SH

Fercen tgge

High Moderote Low ttigh Moderorc Low

EOUATITY OF INDIUq.|ALS AIIO TEVELOPTI|ENT

236

Bw e aucratic Characteristics & Developmental Or lentatlon

Socio. administrative Valucs and Develooment

237

In an carlicr Chapter, an examination was made about thep€rception of the ofrcials engaged in development tasks in boththe States of Punjab and Madhya Pradesh with regard to theirsocio-administrative values. The socio.administrative valuechosen was tho officials' status-consciousness along with theirsenior ofrcials' attitude of keepibg their junior officers as adistance and the extent of freedom enjoyed by the junior officersto discuss freely their official and persooal problems with tb6senior ofrcers etc.

An attempt is being made here to determine any associatioothat exists between these value perceptions and orientationtowards development.

TABLB 8.8

Socio- Administrative Values and Development by States

(Percentagc)

Characteristics Punjab __High Moderate Low

Madhya Pradesh

High Moderate Low

Socio.administra-tive Values

Development

41.4 35,6 23.0

43.2 34.8 22.O

43.8 35.2 2t.0

47.6 32.4 20.0

12-Value (d.f.-2) 0.07 0.29

As can be seen from the Bar Diagram No. 19, tbat thepattern of association between thsse two values is similar itr boththe States of Punjab and Madhya Pradesh. With regard to thchigh value perceptions, the orientation towards developmentseem to be slightly higher than the high values on the socio-administrative axis, while for both the moderate and low values,orientation towards development is slightly lower than theirperception of the socio-adminisfiative values.

238 Burdaucratic Vq.lues in Development

EAR AAGhMI NOl9

MAOHYA P.RADESH

Soc io- odminislro tiv? Votues

Develogrnenl

Frrcenroge

High Mod.rote .Lor ffiSOCIO- AOMINI STRAIIVE VALUE9 ANO OEVELOPMENT

v7-'

Bureaucrtiibl Charaeterieties & Developmental Orientation 239

The lC2-values for socio'administrative characteristics vis-a-vis

a.nJ"ptg"l u* verylow both for Punjab and Madhya Pradesh

om;i;i" They are b.07 and 0'29 respoctivelv which. are verv

;;;;i-6.""; for 2 degrces of" freedom at 5 per cent level of

otr"U"Lifiry. Thus the present socio'administrativo valucs of the'

iil"l"itl" u*u the states are not correlated with their orienta'

tion towards development' From both the Bar Diagram No'

19 and Tablc 8.8 it seems to be clear that there is a tendency

;;;;; il-;m;als in both the states to be conscious about

ln"i, .-ru*, as administrators' Ilowever this factor has treither

ilffi;il ""t ntrpia their orientation towards development'

'il;;';;t ,;; ioferred that officials whether engaged in deve-

;;;;-;;t*t or non'dovelopmental, tasks share the same

type of perceptions towards the socio'atlministrative values and

the fact that they are engaged in developmental activities does

;-r';;;-;;v difference in their feeling about their status

coosciousness'

Combined C ort elations of Socio' P ers onal antl Socio-Administr a-

tive Values with Duelapment Oientation

Wehaveeraminedtheindividualrelationship...betweensocio-oersonal values of tn. om.iuts' peiceptions

-like.integrity of

ffi;il; ""J.q*litv of individuals and socio'administrative

""i,ir, iit" .,*us consciousncss' etc' with development perfor-

.""""i",n. States of Punjab and Madhya Pradesh' Let ue

."-t*. ,n combine'l relationship of those values with thoir

;:;il; orieqtation' Tablo 8'9 gives these valuo com'

parisons.

From.the Bar Diagram No' 20 on p'241 showing the combined

association of sooio-personal and socio-administrative values on

iririlp*J iiisclear that in punjab only the high perceptions

uioot .o"io-p"rsonal and socio-administrative values far excecds'

;f" fiti fttitntions of development'whilo the picturc is revcrse

il;;;i."d.rate and low values' Thus it seems possible to

infer that in Punjab although the pcrcentage of officials having

ilgi p"i*pai"ns of socio'-personal and - socio'adminidrative

uof".t i. vory high, the percentagp of officials having correspon-

Bureaucr atic Values in Development

TABLE 8.9

Socio.personat and Socio-administrativo Values andDevelopment by States

(Percertage)

Characterlsics PunjabHlgh Modc- Low

fare

Madhya PradeshHigh Mode- Low

aate

Socio-persooaland socio.adm-inistrativevalues

Development55.9 29.3 14.8

43.2 34.S 22,0

46.6 32.8 20.6

47.4 32.4 20.0

X'z Value (d.f :2) 3.s3 o.02

dingly high orientation to deveropment is srighdy lower while thepercentage ofofrqials having moderate and low value perccp-tions on.socio-pers6n2l nad sss;o.admioistiative ,.Jtl, ..., ,obe associated with a liute n:gle. perceni;g"li-.inliuj, ha";oethe same orientation towaras aevelop*."tl li ,Ii]'nn"r"rorr,be concluded that the existence of ievelopmentlrientation ioindividual offcial is more or .less pereonal to him and sucha^n orientation is not. likely to be atrected Uy tne-Oidereo"", iosocro-personal or socio-administrative values as thc officers onthe whole tend to share thc same value perc€ptions.

rn Madhya Pradesh high perceptions of socio_personat andso:io-administrative values margioalty falr Joii 'oi tnu nignpT:ellio,ns of development functions inif. ,n. f"r_* is margi-nally higher than its counterparts in casc of moderate and lowvalues of development.

The X,2-values for thc two characteristics are 3.53 and 0.02respectively for Punjab and Madbya pradcsh which are statisti-cally insignificant at 5 per cent levil of proUabitity for 2 d"gr*uof freedom. Thus thcrj scems to be no signincaai assooiation

Eueaucratic Cha,roctefisttcs & Devclop'nental Orlentation 241'

BAR OAGRAM NO.2(l

MAOHYA PRAOESH

Soco F?rsonol e Soco- o dminislraliwVOlues

OevelOgment

Percentogc

High Modemie

50c10 PERSONAL ANO SOCIO AOMINTS1RATIVE VALUES AND

OEVELOPMENT

PUNJAS

@

212 i, . ' I ' Buieditcratli; Vdlues in Devildprcni

between the combined socio-personal and rocioadministrativevalues ofthe administrators with th€ir development oilrotufiooin both the States of punjab and Madbya peradesh.

Ratlonality and Development

Let us now examine the correlationship between thc value ofrationality observed by the ofrcials both in punjab and MadhyaP-radesh with respect to their dcvelopment o.i.*uiioo. TablcNo. 8.10 gives the statistical scores on both the dimensions.

TABLE 8.IO

Rationality and Development by States(Percentage)

Characteristics PunjabFdf tAA-a

rate

Madhya PradeshIqtsh-fr;Ae--Zow

rute

Rationality

Development

22,7 25.8 51.5

43.2 31.8 22.0

19.1 32.3 48.6

47.6 32.4 20.0

Iz-Value (d.f.:2; 19.55** 24.14**

while Bar Diagram No. 2[ prescnts a graphic illustration of thesame inter-relationship. It will bc noticod that in tbe State ofPunjab the high and moderate scores on the observancc ofrationality are given by 23 and, 26 per cent of ofrcers whilemore than half of the officers gave tow scores on the samecharacteristic. In Madhya pradcsh scores are similar to thosein Punjab. On the other band, tho corresponding scores ondevelopment orientation at high lovols far exceed ih. ,"oru utthe same level in the same dimension both in punjab andMadhya Pradesh namely 43 and 48 per cont respectively. Itcan, therefore, bc scen that thc officials attaching low perceptionto observance of rationality in their doalings with the public andclientele and in discharge of thcir duties are. proportionallylarger, but have lcss orientation towards dcvclopmcnt. At the

Bureadcratic Characteristies & Developmental Orientafion 243

PUNJAB

BAR DIAGRAM N0.21

A Rotionotity

furcen toge

MAOHYA PRAID€gH

44 1.7)lModerote Lo$,

RATIONALITY ANO DEVELOPMEN T

244 Bureaucratic Values in De elopmenl

same time a larger percentage of officialsorientation towards development but thenot have higher perception about rationalitv

The l2-values of the characteristic of rationality aod devo-lopment orientation which are as high and significant as 19.55and 24.14 respectively in the two States however, show a greatdeal ofassociation between the two characteristics. lt canlhusbe suggested that the officials engaged in development work inboth the States would have to depict a greatei rationality intheir behaviour if the goals of development are to be realizedto the greatest extcnt. The present situation of somewbatlow or moderate emphasis on rationality by the officials con-cerned might be a reason for a partial achievement in therealisation of developmental goals.

Authority and Development

The second behavioural value that is sought to be corralatedwith development orientation of the officials is the authodtythat they exercise in the organlsational situation, This isreflected in their behaviour towards the different Ievels of ihcofficials that they work with. The value scores had alrcadybeen examined in an earlier Chapter. Table 8.ll and BarDiagram No. 22 give rho statistical analysis and the grapbic

TABLE 8.1IAuthority and Development by States

may have highersamc numbet mayin their behaviour.

Characte-ristics

Punjab

(Percentago)

Madhya Pradesh

High Mode- Low High Mode;-' rAle rate

Low

Authority

Development

62.3 31,9

43.2 34.8

45.3 28.7 26.0

47.6 32.4 20.0

5.8

22.0

X,2-Value (d.f.:2) 13.03** 1.57

Bureawcratlc Chatacteristics & Develepmental Ofientation 215'

ALL BEHAVIOI.'RAL CHARACTERISTICS AND OEVELOPMENI

BAR oTAGBAM NO.22

MAOHYA PRADESI{

ZZ rAuthoritY

PUNJAB

Percentoge

lbderotq Low

AUT HORITY ATO

High Moderote

DEVELOPMEN T

246 Bureaucrutlc ltalues ln Development

reproduction of the correlationship of this value with devcloo-ment orientation.

From both the Table and the Bar Dagram, it wilt be observedthat in Punjab, only a small proportion of the officials havelow score on the behavioural value rclating to authority andthe combined proportion of officials having high and mode -rate valuos on this characteristic is-as high as 94 per cent.Ifowever the percentage of ofrcials havin! correspondinglyhigh and moderate degree of orientation toward developmentis 78 per cent, while the low degree of orientation towarddevelopment is shared by correspondingly higher percsnmgeof officials i.e. 22 per cent as against 6 per cent of thi officialsattaching low value to the authority aspect of their behaviour.

In Madhya Pradesh, however, the percentages. of officialssharing high and modcrate perceptions of the behaviouralvalue of authority are only marginally lower than their percen-tages showing the same degree of orientation towards develop-ment. It is marginally in the opposite direction for the lowvalue.

The Ie.values of these characteristics namely authority anddevelopment orientation in punjab, is B.O wnich is statisti_cally significant at I per cent level of probability for 2 dsglssgof freedom. This means that there is a high degree of agsocia-tion between authority and developmcnt oricntation while inMadhya Pradesh authority of offcials is not related to deve-

logsenl-as revealed by the insignificant value of Xs, namely1.57, The exercise of authority has no influence on develop-ment orientation of the officials, The differences between thetwo States could possibly be explained by the fact that inPunjab, the authority system is morc or less siablized 4fter aoinitial progress in development, while in Madbya pradesh, thedevclopment organizations being only io their critical stagos ofgrowth, the authority system is not that ingrained. It thusproves that for a programmo of achieving rapid development,a rigid authonty system may not be helpful in the initial stage$until the development organisations, ggt stabilized. After the

Bureoucratlc Characteristies & Developmental Orientation 24t

process of stablization, bowever, the authority system thatdevelops may not necessarily hinder the proccse ofdevelop-ment.

Conbined aorrelationship of all the Behavioural Values ofBureaucracy and Development

We have io far examined the relationship between tho individualbebavioural characteristics of developmental buroaucracy inPunjab and Madya Pradesh in relation to their developmcntalorientations. We now examine the inter'relationship of the

clubbled perceptions of all bohavioural oharacteristics. of thedevelopmental ofrcials in these two States in respeet of theirdevelopmental orientation. Table 8.12 gives the average scotes

of tbe officials on all behavioural characteristics aod their deve-

lopment orientation by States.

TABLE 8.I Z

Alt Behavioural Characteristics and Development by States

(Percentage)

Charccter- Punjab

E@--MA;--6v'rate

Madhya Fradesh

istics Highrue

All Behav-ioural charac' 42.8

teristics deve'lopment 42,2

3 r.8

34.8

25.4

22.O

39,8

47.5

31.4 28.8

32.4 20.0

X2-Value

(d.f.:2) 1.50 8.t2

It will be clear from the Bar Diagram No. 23 that in Punjab,

scores on high valucs of all behavioural characteristics almortequals the scores on high levels of development while the scoreg

248 Bureaucratic Yolues ln Development

gAR ,DIAGRAM NO. ?3

PUNJAB

tZ Atl gehoviou ror

f-] oevetop ment

Perce ntoge

MADHYA FRADESH

Bureaucratlc Characteristics & Developmental Orientatlon 249

on moderate and low valuefl arc lower thao the scores ofcorresponding values on development. Development oricntatiolonly erceeds marginally in case of scores on high and moderate

values of all behavioural characteristics. On tbe whole the

association of the combined behavioural characteristics like

authority and rationality in Punjab is not associated with the

officials' development orientation.

In Madhya Pradesh scores on high and moderate orientation

towards devclopment exceeC the scores on high and moderate

values of all behavioural characteristics while tho scores on low

values on development falls far short of corresponding valires

of all bahavioural characteristics of the bureaucracy. Thus

there is association between the existing levels of combined

values of rationality and authority and the ofrcials' develop-

mental orientation in Madaya Pradesh.

The X,z.values are 1.50 and 8.12 respectively for Punjab and

Madhya Pradesh. lt is insignificant at 5 p€r cent level ofprobability for 2 degrees of freedom in Punjab, but significant

in Madhya Pradesh. It meam that the oflficials' combined

perception of their behavioural characteristics of rationality

and authority has correlationship with their development

orientation in Madhya Pradesh. In Punjab the combined

effect of all behavioural characteristics has no relationship with

their development orientation.

SUMMARY

This chapter has been concerned with an aoalysis of the

relationship ofthe perception of aspects on bureaucratic values

with their development orientation. It has been not€d that

the scale values of perceptions of the officials about hierarchy

are independent ofthose on orientation towards developmcnt

in both the States of Punjab and Madbya Pradcsh, although

high values of pcroeptions of hierarchy exceed the high values

of perceptions about orientation towards development and

moderate and low values of perception of hierarchy fall short

230 Bweaucratic Talucs in Development

of the eorresponding values of perceptions on dovolopmentorientation in Punjab,

In Madlya Pradesh the scores of the officials on hierarchywere marginally higher or lower than the corresponding scoreson dcvelopment orientation and the low insignificant valuc ofX2 explained the independence of thc two variablos namely thebureaucratic characteristic of hierachy and orientation towardsdevclopment.

The scores of the officials of both the Governments ofPunjab and Madhya Pradssh on their perception of divisionofduties-one of the structural oharacteristic of bureaucracy andtheir orientation towards development were not also iutcrrelatedas the X2-values of the structural characteristics of divisionof duties and developmental oricntaiion are statistically in-significant. Thus the present structurc of division of dutiesamotrgst the oficials of Madhya pradesh, eogaged in develop.mental activities noither impedes nor helps the dovclopmentactivities.

Thc ofrc-ials of Punjab are very particular about the oboer-vance of prescribed rules and procedures. High values givcn tothc_ system of rules by the ofrcials engaged ia dwelofmentaltasks excccds the high scores on orientation towards develop-ment u,hereas on moderate and lower valucs attaehed to thosystem of rules fall far short of the corresponding scores onorientation towards development with thc result that thc ?("-value is very significant. Thus the present system of strict::a^T:::" lo,tul:r a.nd procedures also serves as a corretatingtactor towards devclopment in punjab.

In Madhya pradesh the scoros on the observanco of rulesand procedures by the officers engaged in dcvetopmeatat acti-vities are cither greater or smaller thatr thc correspondirgscorcs on orientation towards devclopment and tho lz-vatueis very insignificant. Thus there i. no .orr.iuti-onrh-i-p b.t*.rothe officials' observance of rules uoO pr*.Ouiu, 'and

theirorientation towards develooment.

Bur eauer atic C haracteris tics & Developnental Ot ient atio n 251

Examining the relationship of the perceptions of officials

engaged in developmental tasks in Punjab on impersonal treatment of thcir clientelc and their orientation towards develop'

ment, we fnd very high values attached to impersonality far.exoeeding the high perception on development orientation witha sharp reverse picture for modefate and low values attacbed

do the two characteristics. The result is that the I,s-'ialue is

30.42 which is signifioant at I per cent level of probability for2 degrees of freedoo. The ofrcials' perception of impersonali$

{n Punjab is, thus, strongly associated rriith their developrnent

orientation. The same situation docs not exist in Madhya

Pradesh. The observance of the principle of impersonaiity by

the ofrcials is not related to their orjentation towards develop'

Inent.

It is possible that in Madhya Pradesh, the observanco of the

principle of impetsonality by the officials might not have been

a hiodrance towards their corrosponding developmcnt

orientation, but as the caso of Punjab .illus atcs, a too strict

an observance of impersonality by ofrcials in their -d€alings has

not proctuoed the righi development orientation in the values

of the officials, The orientation of ofrcials towards dcvelop'

'ment has thus to be conditioned by the diversifred requirement

of different clientele grouPs.

The combincd perceptions of the officials ' of the structural

charcteristics of bureaucraoy, hierarchy, division of dutiss'

system of rules and impersonality has correlatioo with their

devclopment orientation in Punjab but not in Madhya Pradesh'

In respect of strirctural characteristics of bureaucracy and its

inter-relationship with development orientation of the officials

there is some inter'state difference in the perceptions of officials

in the two states' The officials of the Goverument of Punjab

attach higher values to thc structural characteristics of bureau-

cracy tban their counterparts in Madhya Pradesh' The percep'

tion of the officials about impersonality in Punjab are correlated

with their perception about development' The trend of high'

ooderatc and low vsluos about the sttuctutal characteristics of

Bureaacra c Values in Development

bureaucracy in the two States is, however, somewhat similar,On the whole it can be eaid that the pace of deveroprnent isnot impeded tbrough an adherence to the weuerian bureuucrati"characteristics of adherence to rules anti procedures as in thecase of Punjab.

On socio-personal values, a very high emphasis was given tothe integrity of character by the devclopment officials ofpunjabcornpared to their orientation towards development white themoderate and low values given to integrity of character weremuch smaller than their orientation to development. Thisresulted in large increase in the Xr-value which became verysignificant at 17.'79 for 2 degrees of freedonr at 5 per cent levelof probability. The integrity of character of the officials ofPunjab has therefore strong association with tbeir orientationtowards development.

In Madhya Pradesh the high, moderate and low valuesattached by the officials to integrity of character are more orless equal to those given to orientation towards development.This gave very low and insignificant value of X,z at 0.13. Tbusthe present level of the integrity of character of the officialsengaged in developmental activities has no relationship withtheir orientation towards devetopment.

In Punjab high values of perceptions in respect of equaltreatment of individuals were indicated by 53.9 per cent of therespondent officials and low valuos of perceptions by g.g percent ofthe offlcials compared to high and low values of43.2 and22.0 per cent of the officials respectively in favour of orientationtowards development giving the Xz-value as 6.94 which is statis.tically significant. There is, therefore, good association betweenthe observarc€-of principles of equality of individuals bytheofficials in Punjab and thoir orientation towardi development.

In Madhya Pradesh, however, the high, moderate and lowvalues attached by development officials to the principle ofequality of individuals. were either marginally higher or lrwerthan the values attached to devclopmeni oriintatlon. The X,r_

2s2

Bureaucratic Characteristics & Developmental Orientation 25t

value is insignificant at 0.04 indicating no relationship between

inu oOtttuui.. of principles of equality of treatment by lbe

om"iats of Madhya Pradesh and their dovelopment orientation"

The two variables are independent in that State'

As regards socio'administrative values like status conscious'

o.s.1"], vis" a-vis. development oriEntation; there is no associa'

tion between the officials, scale values and those on developmen-

iul otit","rioo either in Punjab or Madhya Pradesh.' There is a

;il;;;;""gst the officials in both the States to be conscious

"U"ltitt "ii stat-us as administrators, alrd this factor bas neither

irop*ait.a nor helped their orientation towards development'

in aoutyriog the combined relationship of socio'personal and

so"io-admiJirtrative values with the development orientatiotr'

we find that there is no associaton between the perception of

ffi; ";;;;;;;;t-

socio-personal and socio-administrative

uu1o". una these on developmental orientation in the two States'

It may be conciuded, however, that.the existence,of'Jevelopment

orieniation in individual officials is more or less persotral to

;;; ;;; *".t uo o,i.ntutioi it not likelv to be affected bv the

differences in socio'personal or socio'administrat ive values as

thc off&cers tend to share the same valuc percepttons'

As regards tbe perc'eptions of officials in tbe Governments of

Punjab and Madhya P;;J with regard to the principle of

LiiJi"ritt and its correlation wittr their dev:toprent orlsntatioc

; fi";'*td" divergence il values attached to these two

variables, €specially in extreme cases of high and low values

there i, a gooct coirelation between rationality and-developmeLt

orientation in both the States as indicated by signiflcant values'

ofx3 at 19,55 and 24.14 for Punjab and Madnya Pradesh

respectively. It can further be inferred that the officials

"ti""ti"g io* perceptions to obsorv&oce of rationality in their

dealiogs with the public and clicntele and in discharge of their

duties-may be proportionally larger' But- they have no cot-

respondinily largei orientaiion towards development' At the

same time a larger percsntage of officials in,both the States ofp""pU

"ta Uianya Pradesh may have higher orientation

towlrds developmont but the same number may not have higber

254 Bureaucratic Values in Development

perception about rationarity in tbeir behaviour. It can, therc-fore, be suggested that observance of rationatity as a behaviouralvalue is associated with developnrental orientaiion.

,In Punjab only a small proportion, viz.6 per cent of thcofrciars have tow score on -th;

beha;io;;;i ;i;r' rElatins toauthority against 22 'per cent ofthe officials hauiog tow dogr.,of orientation towards development. fnr.or-Ui'"j proportiongf gmcia! having high and moderate *f".,

"r-'"*lority is ashigi as 94 p€r cent against 7g per cent ot ofrcers fiaving highand moderate scores on develsprnsnl orientation, 1n MadhyaPradesh the percentages of officlals sbaring n*n

""0 moderateperceptions of the behavioural value of aut-noriiy are marginallylower than their percentage showing the same degrees oforientation towards development. It i, *urginuity io the

opposite direction for the low value.

The Xs-test shows correlationship between the values of3tlh:tily and devetopment in the 3tate of punjab, bur notin Madhya Pradcsh. The results howcver, demonstrate that lbra programme of achieving rapid development, a rigid authoritysystem may not be helpful in the initial stages of ievelopment,but once the system is stabilized aDd esb;ished the authoritvsystem that comes into being may not necessarily hinder theprocess of development.

, While examining the relationship of the clubbed behaviouralcharacteristics of tbe bureaucracy and its developmentorientation, we find low and insignificant values of Xr inPunjab and significant values in Madhya pradesh. The com_bined effect of the bchavioural characteristics like rationalityand authority has thus not hindered the oftcials, developmentorientation in Madhya pradesh but not so in punjab. Thefindings in this chapter should be helpful in the valid-

atlon or otherwise of our hypolfreses that had been constructedin the beginning of the study.

9

Bureaucratic Values andDeveloPment : An overview

A fundamsntal assumption that has prevailed throughout

tho prcsent study has been the acceptaocc of the concept ofdevelopment as an aspect of change "that is desirable broadlypredicted, or planned and administored or at least influenced

by developmentalactioo."i Development adminishationhas'

therefore, bson takan to be synonymous with the carrying outqf planoed chango in the €conomy (in agriculturg, or industry'o'r the capital infra.structure supporting either of theso), and

to a lesscr extont, io the sooial services of the State (especially

eduoation and public health). The most direct forms ofgovernmental action are influenoed and executed through its

bureaucratio apparatus, and in turn the bureaucracy atso influ'enc€s th€ actions of othcr groups and agcnts as well as lhe

efforts of the eotire community. The whole pfocoss, howover'

presuppo$es a system of bureaucracy-comprising a band ofcivil servants, who nsoessarily accept devclopmont as their

paramount goal. Tho issue of using oxisting bureaucratlc

uppurutu, for development purposes is. linked with tho ways

of romoving what most civil servants porccive as thrcats to

their personal or institutiond survival and of encouraging

more productive attitudes and behaviour. Thc bureaucratio

approval of dcvelopmcntal goals may be possible,only through

ohuogot in their social, administrativo and political valucs'

256 Bureaucratic Vatues in Development

The basio proposition underlying the present study outlinedin great detail in the first chapter tnut tn" old traditional valuesof the Weberian and Colonial bureaucracy place impe di.ments in the achievement of developmental goals had been thetheme of many learned work in this 6eld. Anv mean nefulanalysis o[ an administrative system requires a deeper insightinto the value.orientations of the administrators. bur investi_gations in this study have focussed attention on some of theadministrative and behavioural values of the civil services atthe grass root level with a view to enquire into the impactof the bureaucratic values on the adnrinistrative performanceand to discern wbether ao anti.Weberian moclel of the admini-strative system and the process of de-bureaucratization can holpmeet the requiremeots ofachieving the developmental goals ofa developing society.

We began this study with the consideration of the valueperceptions of the officials ol' the Srate Ele ctricity Boards whoare engaged in the development of the rural slectrificationprogrammes and of the Irrigation Dcpartment who are res-ponsiblc for agricultural irrigation work iepresenting the twodevelopmental activities as also of the Rivelue D-epartment,responsible for revenue collection representing the non-deve-lopmental activity of the government for the puiposee of thisproject. Although the Departmont of Revenue is treated eventoday as a non.plan department and has ostensibly no develop-mental tasks to pertbrm, the officials' responsibilities haveperoeated greatly into developnrental endeavours. A tehsildar,the most important man in the so.called non-developmentaldepartment, is now very activeiy engaged in developmentalplanning, arranging for loans, agricultu;al inputs and a hostof other developmental inputs. In fact no'progr"ss in ruraldevelopment is possible without his active suppiit-.vro tnougt!e laf be generally regarded as an ofrcial unconnccted withthe developmental tasks of a devefoping country, in" Oi.tlo"-tion between the dovelopmental and

"oo-O.ojopnrrotal tasksis

. made in this study solely with tne purpose ii compars thevalue systems of offcials performiug t*o aiif*.Jtur*r.

Buresucratic Valubs anil Development : An Overview

T.HE VALIDATION OF HYPOTHESES

257

Several hypotheses were raised in the beginning of this study'

fufor, of ihrs" hau" found support in its findings' while others

Lave revealed marginal nuiiutioot' The most important of

those hypotheses that the bureaucracy in India whcther enga-

g"a in ' dtuatopmental or non'developmental tasks share tbe

s-a.e role perceptions and values has been truly proved' The

lr.eptioo oi officials of their bureaucratic values shows the same

;;ii";t pattorn in all the three depattments irrespective of tho

r",",. ofiasks assigned to them' The structural characteristics

oi uurruo"tu"v, viz. bierarchy, division of labour' system of

rrf"r ""J imiersonality are predominant in both segments of

adninistration and in different territorial areas' The inter-

departmental difierences, if any, are only marginal' and these

at.t out not because of any organisational reasons' but from

p"r*onut value considerations of the o{ffcials concerned' How'

in.r, differences have been noticed in the order of high values

utt*trca by tho officials to those characteristics' While the

officials engaged in developmental tasks attach high values to

impersonality, system of rules, hierarchy and division of

duiies in that order, the officials engaged in the non'develop-

mental tasks also attach high values to impersonality' system of

,of.t, alnirion of duties and bierarchy in that order' Inother words ths value positions for Division of Duties and

hierarchy get interchanged io tht two activities' demonstrating

that impersonality and system of rules are still tho most

importani guiding values for the officials irrespective of the tasks

performed.

The inter-State variations in this respect also follow the

same pattern. Curiously enough while a greater- percentage of

officiais in Punjab, a moie developed state tban Madhya Pradesh

show high atiachment to these structural chatacteristics' the

o..o"n,# of officials in Madhya Pradesh attaching same levcl

ii t"r"ti it gomewhat less, suggesting that in the initial stages

oi Jrnutopt"ot, a littls neifuitiry in the existing systcm of

burcaucraiiaation is pcrhaps desirable and necessary; but once

258 Bureaucratlc Yalues in Developmenf

a- programme gets going thcrc ie evcry tendency on th€ partof the ofrcials towards increased Uur.uuoratiraiioir.

amongst the socio-personal valucs, a greater proportion ofofficials attached high value to integrity of character (at leasfostensibly) followed by equality of individuals. The valueperceptions do not reveal any significant inter.departgenlaldifferencos.

.Thus it appears that the nature oftask performcdby the officials has had no impact on sbaring these valuoperceptions. Howcver, with respect to socio-iultural ardsocio"adminisirativs .values of caste/class considerations and .

stalus-consciousncss, there were significant intcr_depart-mental as well as intcr-State variations. While a greater per-c€ntage of offcials engaged in tleveloping activilies in puniabshowed less attachments to these value ofientatioor.

" grautff

percentage of ofrcials engaged in non-devetopmental activitiesshowed greater attacbment to these vatues. The intcr.statedifferences also reflect the some patt€rn -more- officiats inMadhya Pradesh showing less orieniation tolf,.r" values thanin Punjab.

' . The.officials- of the Department engaged in non-devclopmenttas&s drsplayed greater status.consciousness thao the ofrcialsengaged in developmental tasks in both the states. Thissupports the largely held view that the officials in the tradi-tional departmcnts arc bound to bo more bureaucractic thanin the newly established dcvclopmental agencies.

. Similarly with respect to the behavioural values, the findingsindicato tbat tho offcials of the so.called non-developmentdepartment tend to be more rule-oriented, authori ty-consc-ious and rationat than the officials .og"g.d in Cwetoprentattasks. The inter-Statc variations aie'sigoincaot. Grcaterpefcentage of officials in Madhya pradesh had low attachmcntsto these bohavioural values comparcd to that of nun;af, wn.rcjl: i""iO.."T of.devolopment was higher. This again supporrstne conclusion that in the initial stagcs of thc estiblishment ofofan organization, when tho rolo-eipectations ana goal-percep.tions of the officials ere not quito cliar, thcy i;d-;, demon-

Bureaucr'otic Values and Development : An Overview 259

Etatc grester flexibility in tbeir behaviour than in the obsor-vanco of bureaucratic values in the agcncies whicb havccxisted over a period of time. This oonclusion is also evidentfrom th-c fact that the value-perception of ofrcials cngagcd in atraditional activity likc that of revcnue collection remains

more or less identical and on the same pattern in the two States

irespective of their geographical locations and the nature ofwork performed. On tho wholo, thus, the first hypothesis thatthe bureaucracy in India whether engaged in devolopmentalor non-developmental tasks share the same values and role-perceptions, is truly proved.

The sccond hypothcsis whether a different sst of values,orientations and attitudes is necessaty for the officials cngagingin developmental tasks also gets good support from the findingsof the study. The analysis of empirical data in both the States

clearly show that the percentage of ofrcials engaged ia develop-

mental tasks who could be regarded as having the right typeof developmeot oricntation varies only between 4l to 48 per-c,cnt. It follows that a larget proportion of the ofrcials havea more bureaucatic attitude, which hinders the procosses ofchange and dovelopment. There is thus a need to inculcate aconst€llation of a different value systems otber than the strictlybureaucratic ono amongst all officials, but particularly a&ongstthosc engaged in acbieving dovelopmont targets. An ofrcialhaving grcater dcvelopment orientation is likely to be one whocould show more flexibility in the intcrpretation of system ofrulcs, and less rigidity in the observancs of thc principlos ofhicrarchy, and impersonality. Amongst the behavioural values

which secm to be most cherished amongst the officials have been

the strict observanco of codos, rules and regulations and adhering

to tbc principlo of rationality in decision-making. While from the

ofrcials' poiot of view such valucs ensure thcm protection fromunnccessary public criticism, the dovelopmental work which is

most often situational, docs need some flexibility in the strictobservance of the letterr of rules and rogulations. It thusscems desirable that for developmcnt purposes, the group ofofficials shr;uld be imbibed with different burcauoratic valucs

than those who are eogaged in the non-developmental work.

260 Bureaucratic Values in Developtnent

Apart from the bureaucratic charactcristics, the study atso

reveals that the developmental ofrcials must po$ess a definitiveattitude towards the decentralization of authority as well as

encourage participative decision-making. The ofrcials engaged

in developmental tasks do need to poss€ss a different attitudeof change and dovelopment orientation rather than ao attitude.of the maintenance of status-quo alone.

The third hypothesis whether the value orientations ofthe Indian bureaucracy are in dissonance with the developmental.goals and are ambivalent, complex and contradictory is only'partly supported by the findings of the study. As the conclu-'sions in the earlier chapters sbow, the degrea of bureaucrati-'zation of the developmental or non'developmental d€partmcnts

is almost on the same par in both the statos, although one of

the states is wetl developed while the other is still in the process

.of devolopment. This follows that the officials' attachment to"the structural characteristics of bureaucracy aro not entirely

incompatiblc with the processes of development. Thc frndirgs

€ven go to illustrate that a burcaucratic organization is some''what ossential to the processes of devolopment.

However, some of the socio'administfative and bchavioural.characteristics that the officials sbarc do come in conflict witb'their developmental orientation. Whilc the pattern of values

attached.to the 'integrity of cbaractot' and'equality ofindi-viduals'is more or lcss the same in the two States under study,

the compatativcty low percentage of officials attaching high

importance to 'equality of individuals' in both the States andparticularly in tho dcvelopment dcpartments indicatos their

incapability to absorb the due or undue pressures tbat arc often

brought over thcm from difrerent guarters in the dischargc of'their functions. Although the ompirical data does not reveal

"any significant variations on the attitudo of ofrcials to caste/claes

considerations in their decision-making, it does not also showany sigoificant correlationship between the adherenco to caste/

class considerations , in the development and non.developmertdepartmonls of both thg Statos. Even the kind of preferential.treatBent that is constitulionally requirod to be shown towards

Bureaucratlc Values and Development t An Overuiew 261

of

the weaker soctions of the community gets bogged down io

actual practice. Some significant percentage of officials of tho

Department of Irrigation in both the States s€em to attach high

imiortance to this value as compared to'that in the Electricity

or the Reveoue department. This clearly supports thc welF

prevalent belief that in the matter of opening of irrigation-d ucts-or

water channels, caste/class considerations docome into play,

especially in a less developed State like that of Madhya Pradesb

in comparision to that of Punjab' Interestingly the findings

also indicate that the officials have a feeling that a greater pro'

portion of the bettor'of population is not. prepared to give

appropriate consideratioDs to the needs of the less prosperous

oiti""*y, and on thcir own part they seem to be quite helpless

in showing preference to the needy sections of the society'

Amongst the socir'administrative values, a high incidence

of statuJ-conciousn:ss has been noticed both amongst the

ofrcials working in all the three departments in both the States'

Whilo this sort of perception is understandable to certain .

€xtent amongst the ofrcials engaged in the non'dovolopmontal

activity of Rivenue collection, the same is imperceptible in the

casc oi officials engaged in development work, wbere the various

classes of ofrcials have to work as a team' Although on the

whole incidence of status consciousness tends to be lowpr in the

developmental departments in both the Statos' the proportion

of omtiutt stickin! to this colonial trait is still very high' If a

spirit of team-w;rk ig to be inculcated amongst the ofrcials',ii i, neccssry that such a value gets low priority and sooe

institutional doviccs to secure participative decision'making and

team-work be introduced in the system. Howovor, it must

also bo remembered that thc ofrcials' perception of status'

consciousness tends to inctease in relation to the pow€r and

authority that the ofrcials come to enjoy as a consequence ofthe growth in their developmental programmes and activities'

Caro has to be tak€n to see that the influence of such growing

authority is. not avetse either to the processes of decision-

.rnaking or to the accomplishment of developmontal objectives'

The fndiogs haw also indicated that a majority

262 Bureaucratic Valaes tn Development

officials in the development department show less orienta-tion towards change and achievemeat of development tar-gcts, A possiblo reason why the officials are trot able todevelop a right orientation towards change and development.is the lack ofany motivation on their part to do so. Since theoffcials' promotion policies aro largely governed by seniority,their performance has tess rclevance to their achieving thedesired developmental goals and targets. Similarly tho data alsoreveals that the authority-oriented outlook of the ofrcials doescome into conflict with the achicvement of developmental goals.Thus. the citizen.clientele relationship would have to be basedon diferent value-pattcrn other than the authority and status-consctousness.

The fourth hypothesis that the value constellation of thebureaucracy reflects the ethos of the social system from whichthe ofrcials are recruited gets a major support from the findingsof the study. Although the majority of officials belonging toClass I and Class II services engaged in devolopment tasks arecomparatively young in age, but a majority of these have anurban or a big town and a 'service.class' background. How-ever,. in terms of economic factors such officials cannot bedescribed to havs come from afluent classes, but they tendgenerally to come from the middle-class families. It is only inthe Class III services, that a major shift is noticed in respcct oftheir socio-economic background, wherc majority of officialstend to come from lower or lower-middle class families in thesociety. Although thc findings do not attempt to provo thatthe officials belonging to a particular constellation of socioreconomic back-ground tend to carry the same attitude in theirwork-environment and thereby Condition their decisions oractions in the performance of particular tasks, but these doreflect a correlationship botween the valuc systems of theofficials and their socio-economic bactground. Thc tcndencyon the part of Class I and Class II officials to attach high valuesto hierarchy, authority and status-conciousnesg are in a wayroflective of their socio.economic status that they onjoy in thcsociety. . Even the majority of Class III officials, who comcfrom a rclatively lower socio-economic background do show

Bureaucratlc llalues and Development : An Overview 263

greater regard for the bureaucratic values once they dig theirfeet in tho bureaucratic jungle irrespective ofthe fact whetherthey are engaged in developmental or non-developmental tasks.Further, although the marital status ofthe officials does notbave any significant correlationship with their behaviour on thejob but therr having to maintain a larger or loss number ofdependents does have some bearing on their attitude towardsthe bureaucratic characteristics. The kind of hierarcby/authority system that the majority of ofrcials have in theirsocial set up is also reflected in their official-behaviour. Simi-larly the tendency of a majority of officials not to indulge inparticipative decision-making and of status-consciousnessis indicative of the kiod of socio-economii ethos in which theyhad been brought up and continue to live and bring up theirfamilies.

The fifth hypothesis, whether the possible inbuilt resistance ofthe svstem still continues to be based upon the old colonialtraditions is also supported by the findings of the study. In anelrlier chapter, it has been demonstrated that a majority ofofficers sbow a high orientation to the olubbed values ofstructural characteristics of bureaucr'acy. In thoir orientationiowards their clubbed perception of. socio-personal and socio.administrative values as also the behavioural charactcristicsthey show the same high value patterns. In other words, thefact wbother they had been engaged in the development acti-vities or not makes little difference to their orientation towards.beureaucratic values, Their orientation to soiio-personal,socio-adminisrrativc and behavioural values does not show anysignificant variations from that of their' soore on structuralcharacteristic of the bureaucracy. It can thus be construedthat the inbuilt resistanbe of the bureaucracy towards thodevelopmental programme is largely an extension of their€arlier colonial traditions of a rigid bureaucratic system, whicbhas not much diluted despite somo changes noticed in thsirbehavioural pattem. The findings also point out that thepace of development cannot be accelerated through a very rigidadherence of the Weberian characteristics of bureaucracy, nordoes it scem possible to suggest that a rapid programme of

264 Bur eaucratie T alue s ln Developm en t

debureaucratization would bo able to bring about acceleratedprogress in the field of development,

Finally, the hypothesis whether the bureaucraoy in India hasno clear concept, perception and cvaluation of its oapacities fordevelopmental tasks is not strongly supported by the findingsofthe study. It appears that by and largo a rnajority of oflicialsseem to feel that they possess the necessary skill and capacities

to cope up with their developmental responsibilities, and atleast half of these officials have a feeling that their education'training and experience was being properly utilized for develop'mental tasks. A minor percentage of these officials however,

seems to believe that their educational achievemcnts and train-ing were not being utilized adequately. Thus it appears thatthe officials in their own perceptions secms to posses thenecessary skill and capabilities for developmental work thoughat least one tbird of the ofrcials expressed grave doubt abouttheir capacity to meet the challenging situations of the chang-ing environment.

On the reciprocal perception of the villagers whether theythink that the ofrcials possess the nocessary capacities andskill to perform developmental tasks, opinions had been divided.About 40.42 percent of the villagers interviewed in both theStates had been sceptical of the ofrcials' capacities to achievcdevelopmental goals and targets, and only between 25-30 percent of the beneficiaries felt that they possessed the rightaptitude towards developmcnt. It is also significant to notethat about half the rospondents in the villages felt that theofficials had to be goaded for developmental work through theexercise of pressuro by the politicians or the party bosses. Thesefacts indicate why many of the officials, although think them-selves to be capable to discharge the duties of a developmenta;officer, find themselves unable to cop€ up with actual workonvironment and are unable most often to resist the pressures

of the political leaders either for justified or unjustified causes.On the other haod a majority of the beneficiaries carriedthe impressiou, perhaps erroneously, that the ofrcials tend to bemore acoomruodative to the requests of the political leaders.

Bureaucratlc Values and Devetopment : An Overview 265

THE THF,ORETICAL IMPLICATIONS

The findingr of a large number of studies on bur€aucracy tbat

have been conducted in various scttings of development and

in different ecological framework seem to have firmly establi'

shed the theory that the band of officials brought up in the

traditional administrative culture, and wedded to the Weberian

model of bureaucracy is totally unfit to perform the responsi-

bilities of devetopment administration, It has been argued

again and again that the development administrato-rs have to be

qiite flexibti in their approach, shed the existing formalism, be

amiable in nature, ostgoing, people'oriented and should be

wilting to takc risks and on'the'spot decisions without worrying

for thi procedures, and the rules and regulations notwithstan-

dirg'

While the present study does not attempt to rebut this

thoory, nor do the findings indicate that such an attitude on

th. jutt of tho officials will not be conducive to attainment

of dwelopmont goats, the study does point out certain limita-

tions to a blanket acceptance of the above premises and in

the process seeks to answer some questions having theoretical

implications that had bcen raised in an earlier chapter'

fhe study clearly dcmonstrates that the values imparted

by the colonial bureaucratic system, so far as its structural

organisation is concerned, does not necessarily stand in the

wa'y of development process. The agriculture and industrial

progr.r* that has taken place in Punjab since Independence has

ieei attained through a hierarchical organisation with a system

of rules, prescribed individual resp cnsibilities, and-the observa-

tion of impersonality on the part of the ofrcials' These

are not always impediments to development' On the other

nnoO, ttttt" providi a framework for the operation of the offi'

cials, without which the accomplishment of developmental goals

bccomo difficult, if not altog€ther impossible' However' the

same very cbaracteristics tend to become dysfunctional when

greater €mphasis is laid on their observance instead of making

ise of them 8s a tool towards lhe accomplishment of the tasks-

266 Bureaucratlc llalues in Development

The same very fact that the state of punjab has moved to aposition of rapid development and that *ith alt the structuralcharacteristics of bureaucracy, the Government in MadhyaPradesh has embarked on a programme of development, showthat the bureaucratic system per se is not inimical to develop.ment.

Similarly it can also be inferred from the findings of thestudy that the pre-Independence burcaucratic traditions whichtrain the officials to resp€ct their political masters, to observea system of rule and to maintain a high standard of integrityof character are not necessarily a stumbling block in theway of development, The high values attached by a verybigh proportion of the officials to the observance of rulesand integrity of character suggests that notwithstanding thenaturc of tasks, these are essential values which make a p-ublicservice more dedicated. Our findings have not at all given anyindication to the contrary view-poini that tbe non-observanceof rule or a compromise with one's integrity will acceleratethe process of development. These qualities are as much nece-ssary in the public scrvices of a denrocratic developmentalframework as they are supposed to have been tbe traits of rhebureaucracy in India of the pre-Independenco days, Foronething adherence to the rules gives the oficials a chance to'defend themselves against unwaranted criticisms or attacks,,and-

fo1 another matter, it enables them to maintaio impartialityin the face of enormous political and other klnds oi pressures usalso to apply a modicud of . egalitarian treatment in makingths fruits of development available to people.

-SimilarJy the study does not portray that the attributes

of capability and honesty are irreievant- to development. Infact the findings clearly show a gap betwten the ofrcials, ownperception and the villagers' perceptions of their capabilitiesfor deveroprnent. Thus it appears that the most desirabre attri-bute of a development adnninistrator would be to be inherentlycapable of performing his development tasks. Here thc studycertainly rcveals the weakness oi the officials,

""pu.ity to facodcvelopmental challenges.

Bureauarattc Values and Development i An Overview 267

A lot has been written altl said about the result-orientatiotr

"f u i"uJopttnt administrator. True, the study does suggest

tbe need for such an orientation on thc part of the officials' as

the findings do bring out the fact that such an attitu-de is neces-

."iyftt ripid pace if development' If the officials give duo

consicleration to this value, they would be more ablo to secure

the ready cooperation of their own colleagues' ofthe politioians

and of the masses at large for developmental work' But tlis

does not mean that io orior to achieve tuir typ. of orientation'

the officials should ignore -all

rules, regu|ations, procedures and

florms. Nor does the result'orientation mean that the criteria

"i fuirorrr, just dirtribution antl allocation of resoutces be sacri-

fcod on the altar of their being result-oriented' An official

p"r*tJ"g,ne outlook of a result'orientcd .:dmT:lJator would

be necessarity a person who would have the capacity to face

uff .nuff.og.t ani opposition from all kinds of socio-political

.nniroo..-otr, tut noi the kind of pcrson who would sacrifice

the prime values of his profession in order tobe able to get

along with his colleagues' suporvisors and politicians'

Thus the kind of theorotical framework of a value system that

th;;;;.hil;t officials must posscss is the oac which to some

extent has to be based on conventional bureaucratic- character'

istics, of hierarchy, system of rules' division of labour and

;;;;"fty. rne'miines of the studv do.og' P^oiot out that

"-Jorpr.t"li debureaucroiized model of administration is the

"oiy-J1tu*itine for achieving the goals bf a development

adminis'ration.However,thestudydoeesuggestsomemodifica.{ions in the socio'personal, socio'administrative and behaviou'

ral value patterns ;f a dovelopment administration' On theore'

tical ptaoe, the valuc system of the ofrcials would have to be

searedinamannefinwhiohthenegativismofthedysfunction-;;;;;i;";.;;;;ttutioo are reduied to the minimum' For

,iit porp*t the conclusions of-the study point out that a dove'

lopmental bureaucracy needs a framework whioh (a) is flexible

lo'it, opttutioo, (b) is pragmatic, i'c', able-to take into oonsidera-

ilt tnl "-is""oi"s

or ine- circumstaqces from a practical point

of view, (c) encouragcs open decision-making processes based

ooaitttot-uoadisoussionsamongcolleagues'(d)isoentered

268 Bureaucratic Values in Development

around client-oricnted philosophy, and (e) is laden with humanvalues of sorvice aad sympathy for all espeoially for tho weaker.s€ctions of the community.

___Various attompts havo been made by many theorists, such as.Warren Bennis to evotve a theory ol structure that discar.Jsbureaucracy in favour of more feiible forms of orlanization.2Bennis painted a picture of a non.hierarchical oiganization,.temporary in its arrangements, governed by ability rather thanby authority, with democratic methods of supervision. Hirmodel closely fits the needs of modern organisation with aspecific task to perform in a rapidly changing environmcnt.Such.a model was highly successful in t4e USdin putting the.man to the moon. But it is doubtful wlether Bennis's theorywill equally worh in an cnvironment of development where anamorphous clientele confronts a fragmented servicc-orientedinstitution such as an Electricity Board or an Irrigation Depart-ment. Clearly what is needed is a new-version of the iost-bureaucratic theory appropriate to a client-centred organizatio n.Orior White came very close to discovering oo" ,urh alterna*l1ut,t A buroaucracy, in its purely idoal form, treats clients as.if they were the last layer in the organizational hierarchy. ltboxes clients into specialized categories and forces the clients.to adjust to conditions as they exist, Becauso the bureaucracysuffers from tbe soarce resour@s and the clients ask for toomuch, the bureaucrats treat the clients impersonally. If theclient demands special treatmcnt, or does not confbrm to tbeorganizatiou definition of propor bobaviour, the clicnt is nottreated well at all. White tried to reversc those patterns andsuggested that instead of client as subordinate, rhe agencytreated clients as peers. But that could not approximate those,ideals any morc than traditional organizations could be per-fectly bureaucratic, And such an organization was never ableto solve the problcm of scare resourocs, which is the primarycause of bureaucratization in public agencies,

In the samo vein, another attcmpt was made by FriedrickThayer, a career public oxecutive turned scholar, wio attackedthe principlc of bierarchy and suggBsted ..that

orgaaization a!

Bweaucratlc Values and Development ' An Overvievt 269

hierarchy can be made to wither away' disappearing undcr

;lslil * a*ornu decisions' redesign the asscoblv line'

i"""f". "f"",. in administration' and plao systems that cut

across organization bounoat-ies"'n 'In

its place' he sees a "pro-

cess of collectlve will, wnere]college of groups' reprcsenting

the various elements invotvtJ in ihe solution to a problem'

would interloclc ,o *"p ooiil" lototioo' In a way it is like

i"tii"e tn. organization pyramid on its side "5

There is thus a lot of confadictions amongst the post'bure'

aucratic theorists about th. [i;;i bureaucratic structure that

couldsolvetheproblemsofdevelopmentoiheterogeoussocietytire that of India. All tb*;';;;il about

-the. post-blreaucratie

organizations are on the i;Ji;; edge of the. administrative

research. These can uu o"-Jtiu-t? "' i"oOt extrapolated frolD

roat events. Similarly *tt-^ pttt*t studv can-^s1ggest that

the structural organizatio"n tluut -woura-

be. more,appropriate

for developmental work i""rd - ut such where (a) notwith-

;;;J;-;;ctd nti'ut'ntui-puitern' the authoritv, flows to

the persons withthe auiritv io :;ilil Problems"(b) which

;; "-uil"j Gr to tn"' "tttc'og situations' ,(c)-

is client-

oriented, (d) encourages opto ""oi*-ooication

. and professional

mobility, and (e) ."t "[i""J"no" to problem solviogand

particiPativc decisions'

POLICY IMPLICATIONS

What tlen are policy in plications of th€ study-- and what

steps could be taken to mouid tho existing bureaucratic systen

tobeabletoservetheneedsofadevelopmcntadministration?

In the frrst instance, it seems necessary to make certain clran-

ees in the structural compotrents of the bureaucracy that mieht

;il...i;il;l;;;f i; theofficiars to operateand bring

about.the dcsired changes in the bureaucratic behaviour for

"r"t"if.g developmental tasks' A three-pronged policy strategy

needs to be adopted it tnit-tltp"tt ful ttAutiog. the number of

lcvels in tbe decision-maxing pio."$, especially inlbe orgaoiza'

tion ofthe fietd ofEccs' Oolt- fiodiog* have clearly shown that

z Iu Bureaucratic yalues in Development

-1T-"i0". delay on the part of the oftcials to take decisions onurgent mattcrs

_promoting greater agriculturc production hasDeen a source of constant irritation aiA OiscontJnt between theoffcials and rhe beneficiaries, (b) tne omciairlill. field esta-blishment shoufd be vested with reqoirit" ""ii""ty and power

I O: ibJr to take spot-decisions in the execution of dovelop.mental targets, and (c) the functional division of the workbetween the officials should bo such as would .ncourage teamwork with a determined leadership and direction iD the implo_mentation of development goals.

. The structural aspects of the development organization wouldhave to be further moulded with a oiew 1o ,rruru oprocommunicatioh and professional mobility amongst the variouslevels of officiats. Ii is also neeessary to ,., tn? the systemof rules governing the organization should be madc moreflexible so as to adapt itself to the situations at hand, obviatingthe need of referonciq and cross-references at iigt.iirorl, o, uttbe Head euarters.

Secondly, it is also necessary to make certain radical anungesin.the socialisation process ofthe incumbent officiars. If theirorientation towards development has to match with thereciprocal perception of the beneficiaries, confiJence in theircapabilities, orientation of helpfulness, the oficials at every levelof the administrative heirarchy have to be grilied through aregular preggs5 ofl training which would enable them to have awroer understanding of tbe problems of the difforent groups ofpeople at the grass root level and make them concerned to findappropriate solutions to the arising problems. Evidently atpresent the officials at these levels riceive only very scantattentiou in terms of the education and training necessary forthe developmental process. Out of the two iofr"qu"ot ,oOinsufrcient Refresher Courses thdt ars_ at present tJlO for tn"middle level officials only a few of these are able to attendthem.

At the district and block levele, the burcaucracy wields€trormous power and prestige which in thc development context

Bureaucratlc Values and .Development

t An Over.view 211

has to be utilized for publip goocl instead of misutilization for

self-aggrandizoment. A developmcnt administrator-.has nece'

;;fi1;;;";rganizer. lcaclei, a pathologist' a politician' an

"-p"iir*,] .p"ciaiist, a

"u"o!" "!tni and aieformcr-all rolled

rp ii "

titgf. p"rsonality. It-is most important that the right

pJopr. ut. inoren and given proper orientation' Such an in-

iiuiduat has thus to undergo a series of training programmes'

;;;;*h *ui"n rc could in'crease his own understanding of the

orobtJms faoed by his nation, his state and his locality-that

[;;;;;J.nd-ing of the totalitv of ecological factors in

rhioh he work.. He sbould bc made to think how best he can

utifis. fti, speciality to meet the needs of the clients whose

a*ttp*"ot he is concerned with' Suoh training programmes

have to bc regularly a part of the official's socialisation process'

;ight l'-; tni a"y or Lit ioitiul recruitment to his progress at

diflerent levets of the organizatioo' This is not to- undermine

tn'n..afororientationinthenewtechniquesaoddevelopmentin the field of his own speciality' for whicb he

- himsclf is to

some €xtent responsible to develop' A constant -.interaction of'

ilili;b*is aad the specialists. with..public.men' social

r.i.oti*tt antl with higher level ofrcials will groatly improve

il;;;i;ii"s socialisati'on process of the officials engaged in

dcvelopmental tasks.

In the context of administration of developmcnt prograomes'

it i, "f* necessary that the offioials develop an attitude of

lrfi.oi-otitotutiool Remainiog under the law and subject to

ris; controts of accountability, a development administralor

JoofA Uu forwardJooking in his approach in respect of decision'

;;tt"c and solving the problems ol his clientele group' Not

only he should encourage participative- de cision'makiug' but

rnotfu "f.. be in closo touch with the olient groups through a

;;fi; fattern of fiequent consultation' information and

;;?;*: ihe administrator communitv ,relatiooship has to

ievelop on a oote of mutual trust and confidence'

Finally, it wsuld further be neccssary to effcct changos in

theofrcial'ssoci,o'pcrsonal,socio'administrativc'iocio-culturalvalue systems, in oidor to effect desirod changes in his behaviour

272 Bureaucratic values in Development

towards his own colleagues, towards his subordinates, towardsthe pcople, and towards the political leaders with whom he.comes into daily contact. A collaborative effort ofthe officials,the common men and the public leaders need to permeate thedevelopmental process. For the moral concern and personatresponsibility of those cxercising the great legulating andcoercive powers oftho modern state, it is esseniial that theirvalue-systems should undergo some transformation. Howcould this be achieved is indeed a ticklish problem. If theofficials could be made to realise the importance of the idealsof human dignity and social awareness in tb.eir dealings muchofthe problems arising from their ofrcial behaviour could beri.ritigated. This demands, what a public administrationist hastermed, a sort of creative intelligence botb at the administrativeand political levels. Administration. is mannod by bumanbeings and is thc ssrvant of a courplex society. It is tru€ thatthe qualities of an administrator, which motivate him towardspublic good and public interests cannot be either testedat the time of their recruitment or imposed through a sct oftraining progfammes. But such values can certainly be incul-cated through a well designed and integratcd programme ofmotivation matching their performance with a regularieward andpuoishment system. This calls for a promotion and inccntivesystem^linked with their productivity aE also the weeding out ofthe unfits. The ofrcials would have al$o to be enabl€d torealiso their importaoce in their work, so that they do not feelsimply a cog in thc machine. A project-team appioach in thereorganisation of administrative hiirarchy wouii have to beiniroduced. The bureaucrats have to be enabled to shed outtheir inhumane, technocratic, impersonal and a faceless imagaln; ,1mcra]s^must

fulty project their pubtic imagc oi impartlalano noncst lunctionares and at the same time be closor to theirsubordinatcs and othsr segments of the sooiety *itn r*oathey havo to work without laorificing their concern for publicinterest against the individual,s interest,6

-,Thy ultimately public bureaucracy 8tatrd8 in oeed oferatcat son8lttvity in order to serve publio intereet. But whatpublic interesf actually is and how this could bc served

Bureauctatic Values and Devslopment i An Overview 273

best ? This is a never ending search' Public -interest can best

U"-r"rnuO when puUlic policies are not bended lowards any

,oJoi iotut"tts and the various conflicts of ioterests are

".iff;"ff;;;airJ urr*, organisation -and process' lr a

sreater measure of rationality aid fraternity are embodied in

;;;;il;;gutaritv of bureaucratic processes' -the

creativo

i"i.irig.i." *a -broad

symnathies of public ofrcials working

iliooir, iortitotional organizations can help achieve a measure

of public good for the citizens'

NOTES

1 John D' MoatSom$y' "A Royal Invitation i varistiorg-on Three

Classic rhemes", io john ;:'ft#;#;-*a w,itti"t r' simo

Aooroaches to Deielopment t it'iit'-faii*ti'ation and Clange (Now'

io.k, Mc'craw llili Book Co , 1966)' p' 259' -2 For d€tails of alisoussion seo wiit"t i:iJx" "Post'Bueoucratic Loader'

'll:t#g*?ln',,,1['i;*Yl:i;,',t':,:h"f, P,"lilHilff'll;Cummings putfi.Hng Co', 1977'l' oD' 345'

3 orion white, "Tno piatectrcai' '6tguoi"utioo :, A: Alt-e..r-native to

Bureau6acy", Public Aitmini-stration Re ew' 29 (January'Fobruary

. 33il';ft3fu ".

rhavor' An Enit to Hiercrchv' An Enit to conpetition

(N€w York, Now Viewpoint" 1973)'

i lSio'u.-ot" s. Rodford, Ideal anil Practice in Publtc athntntstration

(University of Alabama Press, 1975)'

APPENDICES

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CENTRE ['OR POLTCY RESEARCH, NEW DELHI

BUREAUCRACY AND DEVELOPMENT

(Rcplics will be kcpt strictly confidcntial). Please encircle the code number of the reply'

Ofrcer's schedule

1' RBc/sEB' 2' Irrigati'oo' 3' Revenue'

L PrlneiPle of EierarchY

l.l Are you guided by your l' Mostly, 2,-!{ten' 3' Some-

seoior odc"r. for tating times, 4' . $s[om' 5' Never'

a1y dccision os increa'sing agricultural Produc'tion/rovonue collcction?

"'

1,2 Caa you takc action at 1' Mostly' 2' Often' 3' Sorne'-- il'discretioa in the timcs' 4' Seldom' 5' Never'

interest of bctter Pcr'formaoce in agiiculturalproductioalrovenue ad:

ministration?

286

1.3

Bureaucratlc Values in Development

If through your efortsagricultural production/revenue oollection in thoarea increases, will yoube rated high amonlofrccrs of your status?

1.4 Do you have a chancoto take a decision onyour own with regardto day-to.day work with-out consulting your Bup-erior omcers?

1.5 Arc you required to docertain things which areperforme d by your supc.riors?

Il. Divislon of Labour

Is there any clear-cutdivision of duties bet-ween you and yourscnior ofrcers?

Is therc any clear-cutdivision of duties bet-wcen you and your ju.nror ofrcers?

l. Mosrly,2. Often, 3. Some-times, 4. Seldom, 5. Nevcr.

1. Ccrtainly, 2. Considorably,3.

-Usually, 4. Not nccessaritn5. Not at all.

l. Almost alt, 2. Many things,J. $ome, 4. Few, 5, practi.

cally nonc.

l. To e great ext€nt, 2. Tosomo ortcnt, 3. Gencrally,4- Not so rigidly, 5. Nodifference at aI.

l. To a grcat extent, 2. Tosomc extent, 3. Generally,4. Not so rigidly, 5. Nodifference at all.

2.1

2.2

2.4

Do the senior ofrcers l. A great deal, 2. Enough,like ro take responsibi- 3. iome, a. V"ry

-iiiirrr,lity for work donc by you? 5. Nothing.Does your position re. l. At all times, 2. Maoy things,3uire ],ou to do things 3. Some ilingr, A. p"*pertormed by your su- thi4gs, 5. praotically nonaperior ofrcers?

Do you have to do the l. At all timoa, 2. Most of theltl: of. work.dono by time, 3. Soi*iiro,-i-li"-olncrs at your levels t relV, 5. Never.

2.5

287Appendix II

lll. System of Rules

3.1

3.2

3.9

Do you feel tbat therc

are adequat9 rules and

regulations to guide You

in your work?

In your daY'to'daY work,would You go strictlY

by rules which maY

moan Eore PaPcr workand delaY in tho imPle'mentation of the develo'pment plogf amn€s/r€vo'nue adminisfiation?

Woirld you Pr€for chang-

iog the eristing rules intba ioterest of achieving

targets of develoPment/

revenue collection?

3.4 SupPosing that somo cul'tivators oome to You forimmediate suPPlY of

' water/electricitY/rovisionof tcvenue, cao You cutshort tho sYstom of rules

and take Personal interostfor cxpoditing thc avai-lability of watorfPower

' and increasing rcvenuccollcction?

3.5 Do you think that Yoursupcrior ofrcors will re'primald You if You bY-

pass th! rulos and take

initiativo in suPPlYing

watcr/cloctrioitY/PostPo'ning rovcnue oollcction?

l. To a great 6xtent, 2. To a

considerable ortent, 3' To

some extcnt. 4. Little, 5'

None at all.

l. Definitely, 2. ProbablY, 3'

Not sure' 4. Wqul'l not

probablY Profer, 5' Dofrni'

tcly not Prefcr.

l. Definitcly, 2. ProbablY, 3'

Not sure, 4. Would not

ProbablY Prefer, 5' Defrni'

telY not Prcfcr'

l. CertainlY, 2. Quite likelY'

3. PerhaPs, 4. PerhaPs

not, 5. CortainlY not'

l. Cortainlv, 2. Quitc likciy'

3. PcthaPs, 4' PcrhaPs not'5. C;erteinlY not'

288

IY. Selection on Merit

Bureaucratic Yalaes in Developnent

4.1 How did you join thc L Through competitive test'present pbst? and intcrviow, 2. Through

interview only, 3. Throughemployment exchange, 4.Others.

V, Impersonality

5.1 I" me one pemon is l Entirely, 2. Largely, 3..just morc or less the.somcwbai'ugrr",-i. Largetysame as any other

-per. disagrce, 5, Entircly disagiei.son. Do you atrec ?5'2 Whether a pirson is I. Entirely,2. Largoly,3.or is nst satisficd Sqmewhat agree, 4. Largely

yjlh pv- handting the {isagree, 5. Entiroly disagree.case, I do not bother --.'as long as I follow thcprescribed rules, Do voushare the opinion ?

l. Eatircly; 2. Laryely, 3.Somewhat, 4. Lwgely disagree,5. Disagrec complctcly,

5.3

4,2 Therc is a feoling that itis difficult to gct agovcrnmcnt job withoutusing influence. How fardo you agrcc with this ?

4.3 What do you considerto be the main criterionof selection and advance_ment in your depart_ment?

Evcn when you com€ toknow cortain porsongwcll, you may find thatyou treat thom the samsway as you treat others.Do you agree ?

l. Fully,2. Partly, 3. Not atall.

l. Merit,2. Seniority in Govt./other department, 3. Hardand good work,4. Keepingyour officcr happy, 5. A friend/rclation to speak at the rightPlace,

289Appcrdix Il

J.4 You soinetiurcs bccome

. quitcclosc and fticndlYto the P€oPlc during the

coutse of Your officialwork. Do You agree ?

5.5 Do you become Personal'ly close to the PeoPle for.ieasons other thanofficial work ?

5.6 When You krow thatcertain known and trus"

ted PeoPle will not letyou down, will You notlike to makc anY dePar'ture from trcating all

People in the samewaY ?

YL Socio- personal Talues

6.1 Even in difficult circum-

stances the officials must

remain abovo board' Doyou agreo?

6.2 No official can be effec'

tive if he constantly trics

to aocommodate thercquosts and wishes ofeverybodY. Do You

. agec ?

6.3 Administration betng

what it is, one has tocomPromise with Princi-Ples. Do You agree?

l. BltirelYogice, 2r LargolY

8gfee, 3. Sooowhat agreo'

4. Largely disagroq 5. Entlrc'ly disagree.

l.' Certainly, 2' L*gelY, 3,

Al times, 4, Seldom 5' NeYer.

..

l. No preferential treatment,2. May treat PttferablY, 3'

May treat eomewhat Preferab'1y,4. Larg€ly Pt€ferably' 5.

Definitely preferablY alwaYs.

l. Fully, 2. MostlY,'3, Sdsittimes, 4. Not alwaYs, 5. Never

L StronglY agree, 2- Gen-

erally agree, 3. Agree somc'

times, {. Disagree, 5,'Stronglydisagrec. :

.1. Strongly agraa,2. GonorallY

agree. 3. Agree sometimes 4.

Disagreo, 5. StronglY disagree'

2n

6.4 Priocif,er of cquality ofindividual towards tlcboac$ciarics should bcobserved wbile pushingthrough a dovclopmcntpla_n. Do you agrac ?

6,5 Would you considcr fav_ l.ourably thc proposals of 3.leadcrs who cnjoy somopublic support, even iftheir proposals ar€ rtr-sound ?

6.6 It is said that the rich i.farmers get all possible l.production aids whitesmall farmcrs are gene-rally ignored by ofr.cials, Do yciu agreo ?

Yll. Socla-cal tural yalues

7.1 Do you think tharparochial and castcconsideratioal play antrnportant role indovelopmcnt adminis-tratisn in thc bfficials,work-area ?

7.2 Are thc dcvelopmcntplans and policy modi-fied to suit certainIocally dominaatcastcs, classes/religi_ous groups ?

Eureaucrotlc Yalues ln Devclopmcw

l. Certainly, 2. Largcly, 3.Somctinoe, 4. Rarely, 5. Ncver

Must do, 2. Optiooal,Must not do.

Certainly, 2. Generalv.Partly, 4. Sometimes, 3.Never.

l. €crtainly, ?. UsuailvPartly, 4. S"raimer

-

""'f'ltNot at all.

Very much, 2. Considcrably,Partly, 4. Sometimcs onlvNot at att

---- --'J '

3.

1.

3.

5.'

AppeTrtftx II 291

7.3 It is said that sites of l. Very much 2. Considcrably'

ncw prograr.nmcs are 3. Pattly, . Sometimes only,

solectcd on casto/class 5. Not at all.considofation.. Do Youagree ?

?.4 Do your plans give l. Certainly, 2. Usually, 3,

preference to small/ Sometimes only, 4. Seldom, 5.

marginal farmers/eco' Never.

nomically weaker sec-

tions?

?.5 Does yout develop- l. Certainly, 2, Usually, 3.

mental work give pre- Sometimes only, 4. Seldom,ference to diferent 5. Never.

clarses, espccially thedeprcssed ones in thesociety?

7.6 Are the better-off peo- l. Certainty, 2. Usually, 3.ple willing to sacrifioe Sometimes only, 4' Soldom 5.

for the upliftment of, Never.the section of the com'munity when a parti'cular scheme favoursthe latter ?

7,7 la case of class cougi&t l. By mutual disoussion,

how is theptoblem 2. By taking up et higher

reeolved ? ofrcial lovol,' 3. By tho help of politicalleadors,

4. By abandoning tho planproposal.

5. Others.

Vm. Socio.admlnisftotivc valucso

8.1 Do you feel froo to discuss l. Vcry frce,important things about 2, Quito froo,

292 . Bureau$alic Values in Developtrwa

yourself and your wofk 3, Just suffciently free,with your superior 4. Not sufrcicntly frec,oftcers ? 5. Not freo at all.

8.2 Do the senior officers l. Invariably always,keep distance from you? 2. Mostly,

3. Sometime s,

4, Seldom,5. Never.

8,3 Are the senior officers l. Invariably atways,of your department 2. Mostly,conscious of their 3. Somtines,status? 4, Seldom,

5. Never.

IX. Behavioural Values

9.1 Would you like appoint. l. Why not, 2. Usually,ing a known person who 3. Sometimos. 4. May nofis readily available and 5. Never.good at work eventhough it may meandeviation from thocxisting rules ofrccruitment ?

9.2 Would you like to go l. Certainty, 2. Usually, 3.out of the way and take At times 4. Selctom, 5.initiative when you are Never.convinced of a right ca-use of a case?

9.3 Would you be influenccd l. Must, 2, May,3. Optional,by the activities of thc 4, May not, 5. Never.pressure group in yourwork area and adjust aparticular programmo ofactio* against the setrules and precedents 1

l. Very much,2. Largely, 3.

To some extent, 4. Little'5. Not at all.

l. Vcry friendly, 2. Somewbatfriendly, 3. Indiffcront, 4'Somewhat unfriendlY, 5' Quiteunfriendly.

9|1 Whether senior officcrs liko I . Yes, all the subordinates,

to meet thcir subordina- 2. As many as possible, 3'

tes? OntY some of them, 4. Just

a fcw of them, 5. Nonc at

all.

Appadtx II

9.4 Would you consider fa. l. Must dqvourably proposals of Must not do.political leaders whoenjoy publio supporteven though thc propo-sals may not stand tbetest of rationality?

9.5 Whcthor a feeling of su-periority/inforiority com-plcx exists in govern-ment hierarchy?.

9,6 What is the attitudo ofyour sonior ofrcers to-wards their suborilina-tes?

293

2. Optional, 3.

l. A great deal, 2. Enoughauthority given, 3. TheY

delcgate. some but not enoughauthority to their subordi-natcs, 4. Little authority dole-gated to their subordinates,5. No delegation of anY

authority.

l. Exceedingly resPectful, 2.

Quite respectful, 3. Some

what respeotful, 4, SlightlYrcspeotful, 5. Not at all res-pectful.

9.8 Whether enough autho'rity is dclegated by thesenior officers to theirsubordinates?

9,9 IIow would you say thstthe citizenr who come torco thc officers for thcirwork aro rospectfill intheir bahaviour and de-msnds?

294

9.10 How do the citizens whocome to Your offico fortheir work are apPrehcn'sive of the officers' atti-tude and dealings?

9.1t For achieving a high tar'get of dcvolopmont' areyou concernod with ohan'ging thc attitudes ofunwilling but PotentiallYgood entreprcneurs?

9.12 Is the success of bringingabout change in thc attitudc ofthe PooPle throughyour initiative and Persu'asion for achieving Plantargets any index of effici-

cnoy of your worh?

9.13 Is the achiovement oftargets or results consi'dered important in Yourdcpartmetrt, evcn thougbthey may mean dcviationfrom existing means ofachieving thom?

9.14 Will you be ratod high ifyou achieve the dcsired

targets/results of develoP.ment for whose implcmc-ntation you arc rcsPonsi-blc?

9,15 Do you think that in theoxisting sct-up Govern-ment servants gencrallytake so much intorest inhelping citizens to achievothc specified rcsults/tar-gets?

Bureaucrat ic Values in Development

l. Vcry much, 2. QuiteaPPre-honsivc, 3. Somewhat aP'prehensive, 4. Slightly, 5. Notat alla pprohensive,

1, To a great oxtent' 2. To aconsiderablc cxtent, 3. Tosome oxtent, 4. Little, 5. Notat all.

l. Certainly, alwaYs, 2. Usu-

ally, 3. Somctimcs, 4. Sol'dom, 5. Ncvor.

l. Certainty alwaYs, 2. Very

often, 3. Somotimes onlY,

4. Soldom, 5. Not at all.

1. Cortainly, 2. Most Possi'bly, 3. May be, 4. Scldom,

5. Ncver.

1. Vory much, 2. Quitc e bit,3. Somewha! 4. Litllc, 5.

Not a.t sll.

Aptnitix II 295

9.16 Ifyou worc in the above l' Vcry much' 2' Largely'

siiuation, would you con' 3' Somewhat' 4' Little' 5' Not

sider your responsibitity at all, it is unnecessaty'

to go 8o much out toguide the PcoPle withwhom You deal?

9.1? How ofton do all officers l' Always, 2' Very often'

moet for taking any par' 3' Sometimes' 4' Seldom'

arcrp"ii* decis'loni 5' Never, 6' Does not arise'

9.18 Does your depertment 1' Always, 2' Very often'- - - -

fuuoo, indivialual dcci' 3' Sometimes, 4' Seldom'

sion.making? 5' Ncvor'

X, Work Envlronment and lobSatisfactlon

10.1. How often do thc citi 1' Veryoften,2' Quite ofton

zens come to' meet the 3. Somctimes, 4' Rarely'

. officials. for their worh? 5' Never'

10.2 Do you think that such t. Yes, all of them'

maetings are super' 2. Yes, most of thcm'

fluous? 3' Yes, about halfoftham'4. Most of thc meetings arc

unn€ce88ary,

5. All meetiogs ate trcc68sary'

10,3 Do you think that you l. Very muoh,- 2' Ofton'

have becn helpful to the 3. Somctimes' 4' Hardly'

visitors? 5' Nevcr'

10.4 Do you fcol that pressure 1. Always, 2' Mostly'is oiten putihrough poli' 3. Sometimes, 4' Seldom,

tical leaders in the dis' 5. Ncver'

charge ofyour dutios?

10.5 Would you say that thework you are doing isinteresting?

10.6 When you do somogood work, is it appreci-ated by your superior

. officers?

10,7 How good are yourchances of promotionin your department?

10.8 If givcn a chance to dothe same type of worL inanother ofrce/depart-ment would you like toswitch over?

10.9 In your present post, bowwould you say that youreducatiotr, training andcxporionce are utitised ?

10.10 How does tho work you' do in your prrsent posF

tion suit your capabili-ties?

Xl. Personal Particulars

ll.l What is your age in com-lete yoars?

ll,2 What is your maritatstatus?

Bureaucratlc lzqlues tn Development

L Always vory itrtGrostins.2. Intcresting trrost ofti;time, 3. Bqually dull andintcresting, 4. Mostly dull,5. Dull and unintcresting.

1. Always, 2. Very ofton,3. Somettmcs, 4. Soldom,5, Never.

l. Vcry good, 2. Good,3, Fair, 4. Poor,5. Very poor.

l. Definitely,2. euite likely,3. Probably, 4, probably not.5. Certainly not.

l. Fully utilisod 2. Mostlyutilised, 3. Only moderatelyutilised, 4, Little utilised.5. Not utilised at all.

l. Very well, 2. Welt, 3. Fair,4, Poorly, 5, Very poorly.

l. Below 25, 2. 26-35,3,36-45,4, 46-58,5. Abovs 58.

l. Unmarried, 2, Married,3; Others (divorced or

widowcd)

296

Appendix II 291

| 1.3 How many dependents I. Nil, 2. l'2 Persons,

havc you? 3. 3-4Persons,4. 5'6 Persons'5, More than 6.

11.4 Thc place where you wers l. Village with 5000 people

born? or less.

2. A town with a PoPulationbetween 5.000 and10'000.

3. A town with a PoPulationbetween 10,000 and100,000.

4. A city with I Populationbetween 100,000 and

,. ioJS;,0"tf,o,nan citv witbmore than 10,00,000PeoPle.

ll.5 Wheredidyou livc maxi- l.Villagewith 5@0 people

mum time upto 20 Years or less.orage? '' *,,;H;I3."i"?lfJi";3. A town vith PoPulation

between 10,000 and100,000'

4. A city with PoPulation

ffi:;;'too'ooo ana

5. A MetroPolitan citY withmole than I0'CO,00O

poPulation.

I 1.6 Upto what tevct are you l. Matricutation.educated? . Baohblor's Dcgrco.

3. Post Graduation or Doc'torate Degree,

29E

11.7 Whtt is/were theprofossion in whichfather was engagged?

11.E What would you say yourparenents/guardians incomewas at the time of vourgetting the first job?

I 1.9 Your present incomepleasa

I l.l0 How many promotionshave you got so far?

I l.l I What class your presentrervice belongs to?

I l.l2 Is your present post

ll.l3 Have you received any in-tervice training after joiningthe Govoroment eervioc?

Bureau.cratl c Values in Doclopment

4. Technical/profee$ionel

Qualification after highschool or higher education,

5. Othors.

main l. Agriculture, 2. Iudustry,your 3. Business, 4. Profession,

5. Service,6. Others (specify).

l. More than Rg. 1500 p.m.2. Between Rs. 751.1500

p.m.3. Between Rs. 251-750

p, m.4. Between Rs. t0l-250

p. m,5. Less than Rs. 100 p,m.

l More than Rs. 1500 p.m.

2. Betweeh Rs.751.1500p. m.

3. Between Rs.25l-750'p. nr.

4. Between Rs. 101.250p. m.

5. Less than Rs. 100 p.m"

l. Nil, 2. One, 3. Two4. Three, 5. Four and more.

l. Class I, 2. Class II,3. Class IlI.l. Permanent,2. Quaei-permancnt,3. Temporary?

l. Ycs,2. No.

Appendtx II

ll.l4 In case You receivetl train'ing Please indicate theporiod of trainiog.

11.15 Do youfind time to readprofessional jeurnals?

'l 1.16 Are you a member of anY

professional societY, recrea-

tion or social club?

ll.l? Your name Please

{1.18 The post You are holdingplease.

1. Lsss than 3 montbs.2.3 to 6 months.3. 6 to 12 months.4. More than a Year.

l. Ycs.2. No.

|. Yes,2. No.

I

GVMVPV

299

Thank you for the time and effort oontributed for filling

up this questionnaire.

IGootl

Il. GV2. MV3. PV

MedilnnIr. GV

2. MV3. Pv

t.2.3.

Performonco Blocl

Appendix III

CENTRE T'OR POLICY RESEARCH,. NEW DELHIB UREAUCRACY AND DEVELOPMENT

(Replies will be kept strictly confideotial)Please encircle the code number of the reply only

l. Beneficiary/2. Non.beneflciary/3. Knowledgeable person'

I. General

1.1 Doos the area in whichyou work suffer fromnaturol calamities lite -(a) Flood 1. Yes, 2. No

(b) Drougbt l. Yes, 2. No.

1.2 Which would you say

is thc most importatrtagricultural devclopmantprogrammo in the aroa?(State)?

1.3 Please rate the efrective' I' Much, 2. Some,' ncss of the Programme. 3' None.

302

l.4 Poople complain aboutadministrativo ineffici-ency in Government.Would you agree withthis observation?

1.5 Planners and policy-make rs aro not well.informed about tho realproblems and set unre.alistic targets, Do youagree?

1.6 Is there itradequatc stafffor the programmc?

1.7 A,re there inadequatefunds for thc pro-gramme?

1.8 A genoral complaint ofthe ofrcials has beenthat p€oplc are not co-operative with thom inthe developmcntalefforts. Do you agree?

1.9 Do you agree whethorthero is delay in thedecision-making athigher levels?

I .10 Is it true that ofrcialgare not well-traioed fordevclopmental activities?

il. Water and Power

2.1 Are the people able toget timely supply ofwater from the canal?

Bareaucrutic Values in Development

l. Strongly, 2. Largely,3. Sometimes, 4, Rarely,5. Nover.

l. Very true,2. Generally so,3. Sometimes so,4. Only partly true,5. Not true at all.

l. Very true, 2. Genorallyso, 3. Sometimcs,

4. Rarely, 5. Never.

l. Very true, 2. Generally so,

3. Sometimes so, 4. Partlytrua, 5. Not truo at all,

l. Very tr*o, 2. Gcn$ally so,3. Sometine-s so, 4. Partly

true, 5. Not true at all.

l. Very truo, 2. Geoorally so'3. Sometimes, 4. Partly true,5. Not true at all.

l. Very true, 2. GenerallY so,

3. Somotimes, 4, Partly true'5. Not .true at all.

l. Vcry often, 2. Often, 3.Generally, 4. Rarely, 5. Never"

APpcndix III

2.2 Do the canals have ade'

cuate suPPlY of water

when irrigation is

needed?

2,3 How well are the canals

naintained?

2.4 Do You have. regular

suPPlY of electricitY

when You need?

2.5 Is there anY interruPtionin the suPPlY of electri'

oitY whcn You need it?

2.6 Is Power utilised bY

PeoPlo for increaged

agricultural Production'as it should bc?

2.7 Elos- at! the State tube-

wclls (if anY) main'

tsircd?

uI.

3.1

Arc the sPare Parts ofprivatc pumps/tubewclls

availablo locallY?

For adoPtion of anY in'novativc programme ofagricultural develoP-

ment, are You informedbeforehand bY Blook

Staff/VLWs?

Govenment Oficcrs

How would You saY thcGdvornmcnt servatrtg

bohavc witb benefi ciaries

and non-benoficiarios?

303

l. Very often, 2, Oftcn, 3'

GenerallY, 4. RarelY, 5' Ncver'

l. Very well, 2. FairlY well'

3. ProPerlY' 4. Not so Pro'

petlY, 5. VerY PoorlY'

l. Verv oftcn, 2' Often' 3'

GencrailY, 4. RarelY, 5' Ncver'

l, VerY often,2' Often'

3. GenerallY, 4' RarelY

5. Never.

l. Certainly, 2, VerY often'

3. GenorallY, 4' RarelY'

5. Never.

l. VerY well, 2. FairlY well'

i. PtoP..fV, 4' Not ProperlY'

l: t"tv PoorlY, o' Does not

arise.

l. MostlY, 2. UsuallY,

3. RarelY, 4. Does oot aflse'

l. MostlY, 2. ConsiderablY'

3. UsuallY, 4. RarelY,

5. Never.

l. Very politelY, 2. Quite

oolitclY, 3. GenerallY indiffcr'

Lot, i. Somewhat imPolitclY'

5. MostlY imPolitelY.

2.8

2.9

Are the o6cials helpful?

3.3 Do you have to take thehelp of political leadersia oneeting ybur demaodsfor agricultural needs?

3.4 Do you find the admin.istrators mor€ accom-modative to potiticatleaders?

3.5 Do you feel that theofrcials are cut of from.the peoplo and as sucht-h.y ignore populardemands?

3.6 Do the ofrcials, in youropinion, bave the apti.tude for devslepmsalwork?

It/. Personal parriculars

What is your age incompleted years?

What is your maritalstatus?

Upto what level are youeducated?

Bareaucratic Values ln Dev elopment

1. Very often, 2. Often helD-ful, 3, Sometimee, 4. Rarely,5. Never.

l. Certainty always, 2. Veryoften; 3. Sometimes, 4. Rarcly,5. Never, 6. Does not ariso.

1. Certainly, 2, Generally,3. Sometimes,. 4. R arely,5, Never, 6. Does not arise.

1. Very often, 2. Often.3, Sometimes, 4. Seldom.5. Not at all, 6. Does notarisc.

1. Certainly, 2. Usually, 3.Somotimcs, 4, Rarely, 5. Notat all, 6, Does not arise.

1. Below 25,'2.25-35, 3, 35-45 4.46-59,5. Above 59.

1. Unmarried, 2. Married,3. Othcrs (widowed or divorlced).

l. Matriculation, 2. Bacbe-lor's degree, 3. post-graduate,or Doctorate degreq 4. TechnFcal/Professional (after higbsohool or higher), j. Others.

L More than Rs. 1500 p.m.2, Botween Re. ?5I.lSOb p.n,3. Between Rg. 251.250 p.m.

304

3,2

4.t

4,2

4.3

4.4 What is you income?

Appendix III 305

4. Betweoo Rs. l0l'250 P m'

5. Less than Rs. 100 P'm'

4,5 What is your religion? l. Hindu, 2 ',Muslim' 3' Jaini

Buddhist, 4. Sikh, 5' Otbers'

4.6 What is your caste? l. Brahmin, 2" Rajput' 3'

KaYastha,4' VaishYa' 5' Jat'

6. S'C./S'T.' 7' Others'

4.7 Your name please.

4.8 What is your prinoipal l. Agriculture, - 2' Industry'

occuPation? 1r,""#tl1';hi"?::?H:,Doctor/Contractor, 7' Profes-

sional Politics, 8' Others'

Thank you for the time and effort contributed forfilliog uP the questionnaire'

II

IGood

II

{--T--1,GV MV PV

Signaturc:

Date:

Bibliography

(A) BOOKS

.dhmod, Munoer, The Civil Servant ln Pakistan (London, 1964);'.

Albrow, Martin, Bureauuacy (London, 1970).

Appleby, Paul ff., Public Administration in ladia: Repo,t ofa,srrvey (Ncw Delhi, 1953).

Awasthi, A. and Ramcsh K. Arora, Bureaucracy qnd Devetoit-ment: Indlan Perspective (Now Delhi, l9?E).

Bansal, Prcm Lata, A&ninistraiive Development in India (NcwDelhi, 1974).

Bcnnis, Warren , Changing Organtsations (New York, 1966).

Bennis, Warren , Organiiation Development (Reading, 196 )).:

Bennis, Warren an{'Phillip E. Slater, Tftq Temporary Soaiety(New York, 1968).

308 Bureaucratic Values ln Development

tshambhri, C. P., Bu,eaucracy and politics in India (Delhi, 1970).

Bhambhri, C. p., )dminf*rators ln Changing Saclery (Delbi,r972).

Bhattacharya, Mohit, Bureaucracy and Development A dminis tra-t,on tNew Delhi, 1979).

' Bhattacharya, Mohit, Public Administration i Structure. processand Behaviour (Calcutta, 199 t).

Bjorkman, James W., Politics of Administrative Alienation in''. India's Rural Developmen! programme (Delhi, 1979).

Blau, Peter M., The Dynamics of Bureauuaay (Chicago, 1963).

3lau, Petcr M., and Marshal W. Mayer, Bureaucracy in the

- Modern SocierT (New york, 1956).

Braibanti'Ralph , ed., Asian Bureaucratic Systemsi Emergent fromthe British Imperial Tradttion (Durham, 1966).

tsraibanti, Ralph, Political and Administrutive Deeelopment(Durham, 1969).

tsraibanti, Ralph and J, N. Spcngler; Admlnistration and Eco-nomic Development in Indid (Durbam, 1963).

Caiden, Gerald 8., The Dynamics of pubtic Administatton:Guidelines to Cutent Transformation in Theory andPractice (New york, 197 I ),

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