1

Administrative Ethics and Culture of District Officers

(Bilaspur District, Himachal Pradesh, India)

Introduction

The concept of civil service has evolved over time; so have notions of its role and

responsibilities. Independent India inherited from the British period a comprehensive

civil service structure and established practices. Its utility for ensuring national unity and

good administration in the country was recognized by Sardar Patel, accepted by the

Constituent Assembly and incorporated in the Constitution. It is relevant today to recall

the Sardars perception and his vision:

I need hardly emphasise that an efficient, disciplined and contented service,

assured of its prospects as a result of diligent and honest work, and is sine qua non of

sound administration under a democratic regime even more than under an authoritarian

rule. The service must be above party and we should ensure that political

considerations either in its recruitment or in its discipline and control are reduced to the

minimum, if not eliminated altogether 1

Dr. Nittam Chand, Assist. Professor of Public Administration, Govt. College Ghumarwin, Distt. Bilaspur, HP, India.
nittam@gmail.com , +91-9418055077.
 2

The civil service was to respond to the winds of social, economic and political

changes brought by independence. However, country have witnessed growing public

outcry against the system of public administration and public servants at the helm are

being severely criticised for their irresponsiveness insensitivity and lack lustre

performance in the delivery services in the field of transport, health, education, social

sector urban development and environment management. The former Prime Minister

Rajiv Gandhi in this context observed as:

the experiences of the vast majority of our people at the grass roots have been

that the interface between public and the administration is unresponsive, inefficient,

unsympathetic often callous sometimes even cruel to those whom they are meant to

serve. To address these bureau pathologies plaguing the governance, reform initiative

has become sine qua non2.

It will be readily admitted that the prevailing standards of ethical behaviour of

public employees in our country are not high enough and demand considerable

improvement. The recent disclosures of affairs and scandals involving both political and

permanent executives have shaken the confidence of the people in the morality and

rectitude of their rulers. The air is thick with charges of corruption, favouritisms,

nepotism and the like and there is open demand for the establishment of independent

tribunals or appointment of ombudsman to deal with such cases. The growing size of

the government and the increasing impact of it on peoples lives, call for high ethical

standards on the part of government employees. Moreover, public officials are expected

to furnish examples of correct behaviour as their actions have a necessary impact on

the character of the community.3

 3

Administrative Ethics

Civil service ethics is a set of principles, norms and rules of behaviour, moral

values and moral requirements. These are applicable to individuals that act as

professional managers in the field of public administration. Moral standards and rules of

behaviour are of special significance for employees communicating daily with people.

Furthermore, the moral prestige and work environment of bureaucrats is important for

effective government. Ethics is a branch of philosophy which seeks to address morality.

In the public sector, ethics addresses the fundamental premise of a public

administrators duty as a "steward" to the public. In other words, it is the moral

justification and consideration for decisions and actions made during the completion of

daily duties when working to provide the general services of government and nonprofit

organizations. Ethics are an accountability standard by which the public will scrutinize

the work being conducted by the members of these organizations4. Thus,

administrative ethics denotes professional code of morality in civil services. They

constitute the moral fibre of civil servants which regulate the conduct and behavior of

civil servants.

Ethics is considered as a set of moral norms and requirements for those in

public administration to aim their professional activity at attainment of common wealth

and effective use of moral values. The goal of civil service ethics is to keep the

essence and content of professional activities that are socially approved. Its tasks are to

regulate employee relations by means of norms, behaviour and actions, and to form an

ethical component in the consciousness of public administration employees. Civil

service ethics is based upon moral norms. These norms are approved by society, in its

role as an important regulator of collective activities and existence as well as upon

professional values, which are closely connected to public administration. The ethical
 4

approach to employees' professional activity allows the recovery of original imperative

meanings of ethical norms that were ignored for a long time, an increase in the

individual and collective responsibility of specialists for their actions, and an

improvement in the significance and prestige of the professional activities of every

employee. Ethics studies all moral aspects of public administration employees' and

senior managers' activities. It includes several attributes which are universalistic in

nature integrity, honesty, loyalty, humbleness, devotion neutrality, anonymity,

impartiality, sincerity, fairness and social responsibility etc.

Need and Scope of the Study

In 1996, the United Nations promulgated an International Code of Conduct for

Public Officials (Resolution 51/59: Action Against Corruption adopted by the General

Assembly on 12 December 1996), which was recommended to Member States as a

tool for guiding their efforts against corruption.5 Many countries have started

incorporating the UN resolutions in their administrative systems. Countries like US and

UK have developed code of morality for its civil servants. Regarding the position in India

according to P.R. Dubhashi ethical aspect of public administration is most important but

least codified while administrative rules and procedures have been codified in various

public documents and manual; there is no manual for the ethics of public servants.6

What we have in India are several Conduct Rules, which prohibit a set of common

activities. These Conduct Rules do serve a purpose, but they do not constitute a Code

of Ethics.7
 5

The civil service of the country which was considered as the chief agent of socio-

economic change after independence has shown a remarkable change in mid sixties.

The administrators were showing disinterest and lack of commitment to the socio-

economic initiatives of the government. The Prime Minister Rajiv Gandhi once

remarked about the administrative culture as:

and what of the iron frame of system, the administrative services..and

the myriad functionaries of the state...but as the proverb says there can be no

protection if the fence starts eating the crop. This is what has happened. The fence has

started eating grass... we have government servants who do not serve but oppress the

poor and the helpless.who dont uphold the lawbut connive with those who cheat

the state.they have no work ethic, no feeling for the public cause, no involvement in

the future of the nation. They have only a grasping mercenary outlook, devoid of

competence, integrity and commitment8

Feeling the pulse of people the Indian government held a conference of chief

secretaries in 1996 to develop an agenda for Effective and Responsive Administration

to ensure responsive, accountable, transparent, decentralized and people friendly

administration at all levels.9 An action plan of Effective and Responsive Administration

was put before the Chief Ministers Conference held in 1997. The three main areas of

action plan that were discussed in the conference were (i) making administration

accountable and citizen friendly (ii) ensuring transparency and right to information; and

(iii) motivate civil services.10 The Fourth Report of Second Administrative Reform

Commission on Ethics in Governance stressed the need to develop certain set of

values for Public Service. The commission observed:

 6

Public Service Values towards which all public servants should aspire, should be

defined and made applicable to all tiers of Government and parastatal organizations.

Any transgression of these values should be treated as misconduct, inviting

punishment.11

A draft Public Service Bill, 2006 which is now under consideration to Central

government is a step in the right direction. It envisages a statutory basis for the

regulation of the Public Service, to review and lay down the fundamental values of

Public Services, the Public Service Code of Ethics, Public Service Management Code,

Protection to Whistleblowers and the Recruitment Code governing the Public Services,

to establish Public Service Authority for facilitating review and proper development of

public services....12

Though, the federal as well as state governments, from time to time, have set up

mechanism, in the form of Consumers forum, District grievance Committees, Sarkar

Aapke Dwar, Open Darbar, Sangat Darshan, enactment of 73rd and 74th Constitutional

Amendment Acts and Right to Information Act 2005etc. to make administration citizen-

oriented, but still much is required to be done in the field of establishing and maintaining

the ethical standard of civil service of the country. P.R.Dubhashi has highlighted the

importance of ethics in administration. According to him it is utmost importance that

public administration should be efficient but it is even more important that it should be

ethical. It is said of an individual that if character is lost everything is lost. It could be

stated about Public Administration, that if ethics is lost, everything is lost.13

In nineties, when policies of liberalization, privatization and globalization were

implemented in the country the bureaucratic ethical conduct witnessed further

deterioration and a nexus between politician-bureaucrats and criminals cropped up,

 7

as reported by the Vohra Committee. Further, the recent scams of corruptions,

scandals and bribery in which many ministers and bureaucrats were involved have

further shaken the peoples interest in the democracy and governance. There is a

widespread feeling that in the present context many facets of ethics in public require a

modulation. Thanks to the vibrant movement started by social reformer Anna Hazare

and his associates, against corruption that people across the country got enlightened

and a demand was voiced to clean the administration by enacting Indian ombudsman(

Lokpal Lokayuktas) and citizen charters in every department and ministry.

The present pilot study has been carried out in the district Bilaspur of Himachal

Pradesh. This state is situated in the north-west of India. The state has twelve districts.

The study would be of great benefit to the theorists as it will lay rest to coming time in

knowing about the ethical behavior and impact of value structure on the behavior of

District Officers who are executing the policies and programmes of the government at

the district level.

Objectives of the Study

The objectives of the present study were as follows:-

To assess the ethical neutrality of district officers in Himachal Pradesh.

To evaluate value - orientations of district officers in Himachal Pradesh.

 8

Hypothesis

Hypothesis is usually considered as the principle instrument in the research

which steers the researcher to achieve his objectives. In the present study the following

major hypothesis has been formulated to proceed the study:

The bureaucratic ethics and culture of district officers is of impugned

order.

Methodology

By methodology we mean the philosophy of the research process. The important

and requisite information for the present study were collected through documentation,

empirical method, observation etc. The primary data was collected through a

questionnaire. The questionnaire was administered to district officers of district

Bilaspur. A sample of 30 District Officials in the district Bilaspur was drawn to study

using Convenience sampling method. The data collected has been transformed in the

tabular form. Finally, percentile method was employed to evaluate and interpret the

data.

Administrative Ethics of District Officials

The ethical behavior in the public service is considered as a blend of moral

qualities and mental attitudes. The requisites moral qualities include not only the

willingness to serve the public but also the willingness to behave competently,
 9

14
efficiently, honestly, responsibly, objectively, fairly and accountably. The mental

attitude includes awareness of moral dilemmas inherent in policies and conflicting

claims on the substantive and procedural aspect of policies and conflicting claims on

substantive and procedural aspects of policy, an empathy for the divergent views held

not only by some members of the public but also by professional colleagues and a

sensitivity paradoxes of rules that may lead to frustrating and unkind actions. Thus, an

appropriate blend of moral qualities and mental attitudes become essential ingredients

for moral government and administration. Such a mixture strengthens the basis of

legitimate and effective government and is founded on public interest and confidence. 15

In the present study an attempt has been made to study the ethics and culture of

district officials. The evaluations of these officers about themselves revealed many

things about themselves and the work environment. It has provided an insight into the

administrative environment, particularly the ethical and culture aspect, of these officers.

Table No. 1

Responses regarding Administrative Ethics

S. No
District officers Yes No Total
No. Opinion

1. Behave Ethically 30(100) - - 30(100)

2. Ethical Neutrality in behavior with 26(86.7) 4(13.3) - 30(100)

Common Man
3. Ethical Education and Training 30(100) - 30(100)

Note: Figures in parentheses represent percentage.

 10

Administrative ethics is a cornerstone of good governance. It is depicted from the

table that district officers behave ethically. Further it is also revealed that they are

neutral in their actions while dealing with common man. Neutrality is an essential

ingredient of civil service in a democratic setup. It means that the civil service should

give free and frank advice to the government impartially and without any political

consideration. The District Officers are of firm belief that ethical education and training

can bring more efficiency in the administration. Education and training are techniques to

provide public servants with the necessary knowledge and ability to act ethically.

Although officials claimed to be ethical in their conduct and actions but practically

the impact of ethical values on their behavior is not so visible. Table 2 illustrates that the

impact of ethical values on their actions and behavior is of medium level. District

officials who follow the ethical values are always concerned more about their role and

behavior in administration particularly in decision making process and dealing with

common man.

Table No. 2

Administrative Behaviour of District Officer

S. High Medium Less

District officers Total
No. impact Impact Impact
1. Behave Ethically 13(43.3) 17(56.7) - 30(100)

2. Ethically Neutral in behavior 7(23.3) 19(63.3) - 26(86.6)

with common man
3. Need Ethical Education and 7(23.3) 23(76.7) - 30(100)
Training
Note: Figures in parentheses represent percentage.
 11

Value Structure of District Officers

Values are core beliefs or desires that guide or motivate attitudes and actions. In

fact, values are the driving force of human behaviour what a man does, can be

explained in term his value structure. Values help determine ones norms, standards

and goals. They help a person to select the means to realise chosen goal or ends of

action.16 A value has been defined as a conception, explicit, distinctive of an individual

or characteristics of a group of the desirable which influences the selection from

available modes, means and ends of action.17

Values differ from individual to individual, group to group and community to

community. They are not rigid or static. They change with time and because of

influence of several factors such as economic or political change, economic or

ideological change etc. Values are closely related to culture. They are of different kinds-

social values, historical values, institutional values, structural values, political values,

professional values and personal values. Generally every individual builds up his value

system on cultural influences, science and innovations; religion and ethical influence

and life experiences.18

It has been noted that sometimes there arises a conflict of values. Personal

values of a person may conflict with his institutional or professional values. This is the

dilemma sometime faced by public servants. In public services, conflicts in value

clusters create ethical problems.19 What is required in public services is reconciliation

of personal and professional or institutional values. To quote the Peter Drucker the

blending of institutional and individual values becomes the ultimate principle in

administration.20
 12

Table No. 3

Value- Structure of District Officers

S. No. District Officer Yes No No Opinion Total

1. Honest in dealing with 30(100) - - 30(100)

common man
2. Transparent in dealing 22(73.3) 8(26.7) - 30(100)

3. Application of Rules 26(86.7) 4(13.3) - 30(100)

Application of IT (E-
4. 23(76.7) 7(23.3) - 30(100)
governance)

Commitment to Policy
5. 30(100) - - 30(100)
Execution

People - Oriented
6. 19(63.3) 11(36.7) - 30(100)
Approach
Note: Figures in parentheses represent percentage.

An attempt has been made in the present study to analyse various attributes of

value structure of district officials. These are: honesty, transparency, application of

rules, application of information technology in governance, application of right to

information act, commitment to policy execution, people - oriented approach and

attitude of district officials towards political executive, elected representative of local

government and attitude toward the members of Weaker Section of the society.

In public administration, honesty refers to integrity or trustworthiness in the

discharge of official duties, serving as an antithesis to corruption or the abuse of

office. Table 3 illustrates the value structure of district officials. It is depicted from the

table that District Officers are honest and transparent in dealing with general public and

majority of the officers apply rules and regulations effectively. Furthermore, they are
 13

making effective use of information technology in governance at district level. These

officers are fully committed to implement the governmental policies and they follow

people-oriented approach.

It is depicted from the table 4 that 56.7 percent of the District Officers show high

degree of honesty. It is also evident from the study that Officers are not so transparent

in their dealing with general public. They possess medium degree of integrity. About

56.7 percent of officials apply rules and regulations with high degree impact. It is

revealed from the analysis that e-governance in district level is not fully accepted by

these officials. Only sixty percent officials use technology with ease. Further, only about

50 percent of District Officers provide informations as per Right to Information Act with

high degree spirit and other Officers do not show such spirit. District Officers are not too

keen in executing government programme like Government at Door Step Programme

effectively. Through such programmes government officials along with elected

representatives redress the grievances of people on the spot. However only 56.7

percent show high degree concern for the success of this programmes. It is also

evident from the study that majority of officials i.e. seventy percent show commitment

with medium impact on policy execution. The analysis of data shows that 83.3 percent

of District Officers show commitment of high degree toward Political Executive, MPs

and MLAs, whereas about 30 percent are highly committed toward elected

representative of local bodies and only 40 percent towards members of weaker section

of society. Thus, the attitudinal behavior of District Officers toward Political Executive,

MPs and MLAs, elected representative of local bodies and the persons belonging to

weaker section of society is different and selective.

 14

Table No. 4

Impact of Value- Structure on Behaviour of District Officers

S. High Medium Less

District officers Total
No. Degree Degree Degree

1. Honest in dealing with Common Man 17 (56.7) 13 (43.3) 30 (100)

2. Transparent in dealing with Public - 16(53.3) 14(46.7) 30(100)

3. Percentage of Integrity among officials 9(30.0) 21(70.0) - 30(100)

4. Application of Rules and regulations 17(56.7) 9(34.6) - 26(86.7)

5. Application of IT as a means of E- 5(16.7) 18(60.0) 5(17.9) 28(93.3)

Governance

6. Provides Informations to People 15 (50.0) 15 (50.0) - 30(100)

according to Right to Information Act

7. Commitment of officials to implement- 17 (56.7) 9 (30) 4(13.3) 30(100)

Government at Door- Step Programme

8. Commitment to Policy Execution 8 (26.7) 22 (73.3) - 30(100)

9. Attitude toward Political Executives, 25 (83.3) 5 (16.7) 30(100)

MPs and MLAs

Attitude toward Elected 9 (30.0) 21(70.0) - 30(100)

10. Representative of Local Bodies

11. Attitude toward member of Weaker 12 (40.0) 13 (43.3) 5 (16.7) 30(100)

Section of the society
Note: Figures in parentheses represent percentage.

Thus, it is illustrated from the study these officers are not too honest and

transparent in their dealing. They are involved in shady dealings. They could not
 15

incorporate technology effectively in the delivery of services. This may be because of

the lack of infrastructure, connectivity and proper training. The recent attempt of the

Government of India to provide informations through RTI Act 2005 to public has not

been heartily implemented at district level. Even district officers dont show full

commitment towards government programmes like Sarkar Aapke Dwar, where

peoples small grievances are redressed on the spot. Many times it has been reported

that junior officers are sent to attend these programmes. They are unable to act with full

mandate as head of department can do. Similarly, it has also been observed that district

officers dont attend the meetings of Zila Parishad regularly where socio-economic

policies for the rural district are formulated and budget is allocated. These officers are

selective in their dealings and behavior. They are fully committed to political executive

than to a common person.

Conclusions

Public administration, in a fast developing country like India, is today playing a

major role with the gradual expansion of state activities. It has turned out to be an all

encompassing factor of the daily life of individual as well as the community both in

developed and developing countries. Many new functions have been taken up by these

countries especially in the area of welfare and development, which influence heavily

and directly the human lives. Governments in these countries are solely depending

upon bureaucracy to execute these developmental programmes. The Civil Service

supports the Government in initiating and executing its policies, and in delivering public

services. Many programmes with huge budget are being taken up by the bureaucracy.

However, there are instances of corruption and mis-governance at every level of

government-- Federal, State and Local. It seems that political executive as well
 16

members of civil services has been given a go by to ethics, which not only build the

value structure of these services but also essential for good governance.

It has been revealed from the present study that there is ethical deficit and

lack of ethical management and skill development in the District Administration.

A mixed type of culture has established at district level which has depleted the very

effectiveness and efficiency of administration. The value structure of district officials has

hardly changed vis. a vis. with common man. The value orientation which they have

possessed over the years is actually dictating their behavioral style. The orientation of

district officers seems to be distorted. The lack of perception and non-clarity are major

drawbacks of the District Officers. The attitudes of District Officers in relation to a

variety of agent i.e. political leaders, fellow colleagues, officers in the hierarchy, local

populations and elected representatives are different. The behavioral traits take a twist

in relation to the mentioned agents. The administrators are convenient, motivated and

self-interest protectors. The officers bend according to situations and requirements.

Professional ethics are given a go by as and when political exigencies demand. The

standardization of rules and regulations and codes are practiced but in application

many loopholes provide avenues for deviations. The administrative Ethics is

characteristics of incomprehension and un-specificity.

Today, ethics is a common concern and also a moral problem in democratic

country like India. Therefore, it is appropriate time to bring innovative changes in the

structure and function of civil services of the country. Furthermore, it is also essential to

explore the possibilities to devise comprehensive codification of ethical framework or

tools for every department and ministry with the help of experts: Academicians,

Politicians, Bureaucrats, Social Activists and Representatives of Employee Associations

 17

with high integrity. Further, there should be some central department at every level of

government which should manage the ethical affairs and professional standards of the

civil servants in the country. It is also suggested that in order to maintain continuity in

the research and development of ethics in government, research units be established in

each ministry and department and be linked to Central Department and academic

intuitions like Universities. It is also important that personnel in government

administration be provided comprehensive training to make them efficient and

community-oriented. It is with the help of effective training programmes that we can

inculcate values like integrity, honesty, objectivity, neutrality and impartiality in the civil

servants.

***
 18

References:

1. M. Hamid Ansari, Vice President of India, address at Fourth Civil services at Vigyan Bhawan New
Delhi, April2009, http://vicepresidentofindia.nic.in/content.asp?id=218, p.1
2. Dr. Manmohan Singh, Prime Minister of India, address at Third Civil services Day, New Delhi,
April2008, http://pmindia.nic.in/speech/content4print.asp?id=670, p.1
3. A. Avasthi and S.R. Maheshwari, Public Administration, Laxmi Narain Agarwal, 1999, p.249.
4. Ethics in Public Administration, http://en.wikipedia.org/wiki/Ethics_in_public_administration.
5. Civil Service Day, Background Papers for Panel Discussions, Department of Administrative Reforms &
Public Grievances Ministry of Personnel, Public Grievances and Pensions, Government of India p.10

6. P.R.Dubhasi, Public Accountability and Ethics in Administration in Indian Journal of Public

Administration , Indian Institute of Public Administration, Vol. XXIX, No. 3, July- September 1983, p.521

7. Prof. B.L Fadia, Dr. Kuldeep Fadia, Public Administration in India, Sahitya Bhawan: Agra,2011,p.1004

8. Dr.B.L Fadia, Dr. Kuldeep Fadia,Public Administrattion, Sahitya Bhawan Publication,2007,p.187.

9. S.C. Arora, Responsible and Responsive Bureaucracy in Indian Journal of Public Administration,
Indian Institute of Public Administration, Vol. LIII No. 2, April-June 2007.p 188.
10 . Ibid. p189

11. Ethics in governance, Fourth Report, Second Administrative Reform Commission, Government of
India,2007, p.176.http://arc.gov.in/4threport.pdf

12. Public Service Bill, 2006.p.1

http://www.prsindia.org/uploads/media/vikas_doc/docs/1241499740~~DraftPublicServicesBill2006.pdf

13. P.R.Dubhasi, op.cit. p 521

14. B.L Fadia, Kuldeep Fadia, op.cit., p.689

15. Ibid., p.689

16 . Dr. M.P.Sharma, B.L.Sadana,Harpreet Kaur, Public Administration in Theory and Practice, Kitab
Mahal, 2011, p.956

17. M.R. Pinto, Values in Public Services in Indian Journal of Public Administration, Indian Institute of
Public Administration, Vol. XXXV, No. 1, January- March 1986, p60.
18. Krishan Mohan Mathur, Value System in Administration in Indian Journal of Public Administration,
Indian Institute of Public Administration, Vol. XXXII, No. 1, January- March 1986, pp.106-107.
19. Dr. M.P.Sharma and B.L.Sadana Harpreet Kaur , op.cit., p.957

20. Krishan Mohan Mathur, op.cit. p. 117 (Quoted in).