GOVERNMENT OF
MINISTRY OF PERSONNEL, PUBLIC GRIEVANCES AND PENSIONS
CENTRAL ENGINEERING
SERVICE (GROUP A)
AND
CENTRAL ELECTRICAL AND
MECHANICAL ENGINEERING SERVICE (GROUP A)
DEPARTMENT OF
ADMINISTRATIVE REFORMS AND PUBLIC GRIEVANCES
CONTENTS
PREFACE
2
PART-I
CHAPTER-I CADRE REVIEW AN
INTRODUCTION 4
CHAPTER-II DETAILS ON THE
PROCESSING OF 6
THE CASE
ANNEXURE : SEQUENCE OF EVENTS 12
PART-II
CHAPTER-III SUGGESTIONS FOR
STREAMLINING 16
THE
PROCESSING OF CADRE REVIEW
PROPOSALS
SUMMARY OF
RECOMMENDATIONS 20
PREFACE
1.
1.
A proposal on Cadre Review
of Central Engineering Service (C.E.S.) (Group A) and Central Electrical and
Mechanical Engineering Service (C.E.M.E.S.) (Group A) was initiated by the
Ministry of Urban Development during April-May, 1989. The proposal was sent to Department of
Personnel & Training (Cadre Review Division) during July, 1990 for their
approval. Ministry of Finance
(Department of Expenditure) was also involved in the consideration of this proposal. A meeting of the Cadre Review Committee
(C.R.C.) was held under the Chairmanship of Cabinet Secretary on 6.9.1991 in
which the proposal was approved with certain changes. However, certain subsequent developments
delayed the final approval of this case in the Department of Personnel &
Training/Ministry of Finance and a modified form of the proposal could only be
finally approved in the DOPT/Ministry of Finance during May/June, 1995.
2.
2.
While approving the final
version of the proposal the Minister of State for Personnel, Public Grievances
and Pension observed that it had taken four years to finalise
the proposal. She directed that the
Department of Administrative Reforms should do a case study on the time taken
at different stages of the proposal, giving a table of date-time taken by each
Department, so as to evolve possible suggestions for speedy disposal of such
cases. In pursuance of the directive of
M.O.S.(PP), information was sought for and obtained from the DOPT (Cadre Review
Division), Ministry of Finance (Department of
Expenditure) and the Ministry of Urban Affairs and Employment, giving
details of the dates and time taken by each Department in this case. The relevant records of the concerned
Departments were also subsequently examined in order to have meaningful
conclusions on this issue.
3.
3.
Based on the information
furnished by the concerned Departments and after examination of the details
contained in the files, a comprehensive note has been prepared, indicating
therein, chronologically, the details of processing of this case in the
concerned Departments, reflecting therein, the inter-actions between them and
the same is given in chapter II. A
statement of the running sequence of events giving the date-wise processing of
this case in the concerned Departments has also been prepared which is given in
Annexure.
1.
4.
On the basis of the case study,
the Department of Administrative Reforms have evolved certain suggestions for
streamlining the processing of cadre review proposals, which are discussed in
part-II of the report.
2.
5.
The Department of
Administrative Reforms and public Grievances wishes to place on record their
gratitude for the assistance and cooperation extended by the officers of the
Department of Personnel & Training (Cadre Review Division), Department of
Expenditure and Ministry of Urban Affairs and Employment in conducting this
case study.
PART- I
CADRE REVIEW :
AN INTRODUCTION
1.1.
1.1.
The concept of cadre review
owes its origin to the recommendations of the Administrative Reforms Commission
(A.R.C.), made in their Report on Personnel Administration in 1969. In view of practical administrative
difficulties faced by various Departments in managing their cadres/services,
A.R.C. recommended that
for all services, advance projection should be made of the
requirements of personnel for five years at a time. Periodic reviewing of cadre strength is an
important function, as it plays a crucial role in the smooth functioning of the
concerned service and keeping up the morale of its members. The main thrust of the cadre review exercise
is to restructure and rationalize the existing structure of a cadre/service by
removal of deficiencies, which impede the efficiency and morale of cadre
officers and thereby enhance the effectiveness of the service in the
fulfillment of the objectives for which it has been established. The main objectives of a cadre review
exercise are to:-
(i) estimate
future manpower requirements on a scientific basis for a period of 5 years at a
time;
(ii) plan recruitment in such a way so as to avoid future
promotional blocks and
at the same time prevent gaps building up;
(iii) to restructure the cadre so as to harmonise the functional needs with the
legitimate career expectations of its members; and
(iv) to enhance the
effectiveness of the service.
1.2
1.2
Method of conducting cadre review exercise
The Department of
Personnel and Training (DOPT) is the nodal agency of the Govt. of India for
personnel management policies. One of
the major functions of the Department concerns the periodical review of cadre
structures of organized Group A Central Services. In pursuance of these functions, DOPT have
issued detailed guidelines to all the cadre controlling authorities on
processing of cadre review proposals.
The Cadre Review Division of DOPT undertakes the work of reviewing the
cadre structure of all Group A services/cadres. As cadre review proposals generally also
involve creation/ upgradation of posts, Ministry of
Finance (Department of Expenditure) is invariably associated with the cadre
review exercise. While the DOPT examine
the cadre review proposals having regard to the detailed guidelines issued by
them in this regard and also by conducting threshold analysis, cadre pyramid
comparison with other cadres, etc., the Ministry of Finance analyse
the functional justification of the posts sought to be created/upgraded,
keeping in view the economy instructions, budgetary impact, etc. The cadre review cases pertaining to Group
A Services/posts are first sent to the Cadre Review Division of DOPT by the
concerned administrative Ministry/ Department.
The proposal is examined in DOPT, who formulated their views on the
subject and also obtain the comments of the Ministry of Finance on the various
issues contained in the proposal.
Thereafter, the meeting of the Cadre Review Committee (C.R.C.) is
convened in which the proposal is considered, along with the relevant
background notes/comments prepared by the DOPT/Ministry of Finance. Cadre Review Committee is presided over by
the Cabinet Secretary and has Secretary (Personnel), Secretary (Expenditure),
Secretary of the concerned Ministry/ Department and one more Senior Secretary
of any other Department as its members.
After the clearance of the proposal by the Cadre Review Committee, the
concerned Ministry/Department prepares a draft Cabinet Note containing the proposal
alongwith the recommendations of the C.R.C. The draft Cabinet Note is sent to DOPT and
Ministry of Finance for their consideration and approval and thereafter sent to
Cabinet for approval.
CHAPTER-II
DETAILED ACCOUNT OF THE PROCESSING OF THE
PROPOSAL
2.1 Initial processing of the case in DOPT/Ministry of Finance (1990 &
1991)
2.1.1 The
Cadre Review proposal in respect of CES (Group A) and CEMES (Group A) was
received in DOPT on
2.1.2 Earlier,
pursuant to a decision taken by Committee of Secretaries (COS) 1987, the Staff
Inspection Unit (SIU) of MOF had initiated a study to examine/revise the
existing methods and norms of work in CPWD and to assess functional strength of
the various posts. In the light of the
above, MOF desired that MOUD should obtain orders of
2.1.3 The
proposed meeting of CRC was accordingly postponed and the comments of MOF were
sent to MOUD by end of April, 1991 through DOPT.
2.1.4 The response of MOUD was
conveyed to DOPT as well as endorsed to MOF on 30.5.91. In their response the MOUD had stated that as
per the extant instructions cadre review of CES/CEMES was long over due, as the
last cadre review was done during 1985.
It was also contended that the on going SIU study was not likely to have
any effect on the cadre review proposals.
It was also stated that based on workload norms for various CPWD units,
there was only scope for creation of additional posts. It was also explained that the proposals did
not envisage and variations from the existing staffing pattern. Hence it was stated that the SIU study for
assessing staff requirements and for devising norms for divisions could
continued independently and the cadre review proposals should be processed
expeditiously, as they were already delayed.
The MOUD also moved the issue with Cabinet Secretariat for early
convening of meeting Cadre Review Committee.
Secretary (UD) wrote to Secretary (Coord)
Cabinet Secretariat in the issue on 30.5.91, 12.7.91 and 29.7.91.
Meeting
of Cadre Review Committee (September, 1991)
2.1.5 The
Cabinet Secretariat circulated a note on
DOPT approval to the original proposal
2.1.6. Based
on the recommendations of CRC, a Draft Cabinet Note (D.C.N.) was prepared in
MOUD and sent to DOPT on 28.10..91. DOPT suggested certain
corrections/amendments and these were carried out and the D.C.N. was sent again
to DOPT on 12.11.91. The same was
processed in DOPT and approval of MOS (PP) was obtained on
(i) The
Draft Cabinet Note contained the proposals as approved by CRC in which the
Ministry of Finance was also represented.
(ii) It would not be fair
for DOPT to disagree with the recommendations of C.R.C. on the ground the there
was no functional justification.
(iii) Though the guidelines on
cadre review provide that the proposal should be based on functional
considerations, but career aspirations of members of the service are also to be
recognized and for this purpose it might be necessary to create/upgrade posts,
though, not strictly justified on functional considerations.
(iv) Threshold analysis of various other services vis-ΰ-vis CES/CEMES indicated that
the number of senior level posts is comparatively low in CES/CEMES.
2.2 Issue
of economy instructions and consequent hold up of the
proposal (1992-93)
2.2.1 After obtaining the
approval of DOPT, the draft Cabinet Note was sent to MOF during January, 1992
for their approval. The file was sent
back to the Ministry of U.D. with certain observations of MOF during January 1992
itself. In the meanwhile, economy
instructions were issued by Government providing for identification and
surrender of 10% posts at all levels in all Ministries/Departments. Instructions were also issued from Cabinet
Secretary and Secretary (Expenditure) during February, 1992 that the sanctioned
strength of Group A cadres be reduced by 10%.
2.2.2 The
proposal, which was to be sent back to MOF during February, 1992 along with
clarifications on the issues raised by them, was held back in the Finance
Division of MOUD in the light of economy instructions. MOUD sought clarifications from MOF
separately as to whether economy instructions and 10% reduction of posts were a
prerequisite even for approval of Cadre Review proposals. MOF confirmed that cadre review proposals
were not to be processed/initiated or examined till
the organization concerned complied with economy instructions providing for
abolition of 10% posts. In view of the
above, the proposal was held up with MOUD during remaining part of 1992.
2.2.3 In
February, 1993, Finance Division of MOUD enquired from the Works Division of
MOUD about the status of implementation of economy instructions, so as to take
up the cadre review case again with MOF.
A view was taken after discussions at highest levels, that CPWD being a
service Department, it was not possible to effect 10% cut in existing strength
as it would seriously hamper the vital functions being carried out by the organisation. However, it was agreed to offer a 10%
reduction in additional posts recommended by Cadre Review Committee.
2.2.4 Separately
in another case, relating to cadre review of Group B & C posts, MOF
advised MOUD to defer cadre review proposals, till implementation of 10% cut
and completion of SIU norms study into the working of CPWD. Finance Minister also wrote separately to
Minister (UD) on similar lines, during 1993.
2.2.5 The
case was again examined in MOUD and sent to MOF in July, 1993, with remarks
that there was no feasibility of reduction of 10% of the existing sanctioned
strength in CPWD. It was stated that theirs was a functional
Department and hence there cannot be any reduction from the sanctioned
strength. However, they agreed fro 10%
cut from the additional posts sought to be created out of the cadre review. But the MOF were not agreeable for relaxing
the government orders and requested MOUD to reconsider and offer 10% cut in the
existing strength. Otherwise, if it was
not possible, a detailed proposal as to why this could not be effected should be prepared and the same should be put up
before Committee of Secretaries (C.O.S.), seeking exemption from the purview of
10% cut condition. The relevant file of
MOUD was returned to them with above comments on
2.2.6 Subsequently,
MOUD took up the case with the C.O.S. who recommended, inter alia, for abolition of 4 posts of Chief Engineers. Meanwhile, SIUs
report containing the functional work norms of CPWD was also issued. C.O.S. also directed that AS (Expenditure) in
MOF will hold discussions with officers of MOUD to decide the staffing norms
based on SIU study report. The proposal
was considered in detail in MOUD during October, 1993 once again for taking it
up with MOF. However, it was decided not
to send the case to MOF as in the absence of 10% cut it was felt that MOF were
not likely to consider the proposal.
2.3 Inter-Ministerial
consultations between MOF and MOUD and
approval of modified proposal (1994-95).
2.3.1 Additional
Secretary in DOPT wrote a D.O. letter to Secretary (UD) in March, 1994 advising
to consider the cadre review proposal in terms of certain alternative
conditions agreed to pay MOF in lieu of 10% cut in such cases.
2.3.2 On
2.3.3 The
issues raised in the d.o.
letter from Minister (U.D.) were considered in MOF and the MOUD was asked to
send a brief on this issue which could be considered in a meeting between
Secretary (Expenditure) and Secretary (UD).
The MOUD sent a background note on this issue on 20.7.94 and discussions
were held between officers of MOUD and those in MOF on 11.8.94. Subsequently, on 27.8.94 the Finance Minister
wrote to Minister (UD) stating that 10% cut is an essential pre-requisite for
considering the cadre review proposal.
He also stated that it was necessary to work out the functional staff
strength in CPWD as per the SIU report on this subject.
2.3.4 Meanwhile
cadre review proposals relating to Group B and C Services/Posts in CES/CEMES were
also received in MOF from MOUD. It was
revealed that the new proposals envisaged creation/upgradation
of quite a number of posts at Senior Time Scale (STS) level posts, in which
reduction was contemplated in the main proposal pertaining to cadre review of
Group A posts. Separately DOPT issued
guidelines in March/April, 1994 providing for certain alternative conditions
which can be a substitute for 10% economy cut.
It was laid down that cadre review proposals can be delinked
from 10% economy cut provided the alternative conditions are fulfilled.
2.3.5 On
the initiative of MOUD, discussions took place between the Secretary (UD) and
Secretary (Expenditure) on 21.9.94 pursuant to which DG, CPWD wrote to MOF in
November, 1994 for expediting their approval.
MOF wrote back on 25.11.94 pointing out the cadre review proposed
involved drastic reduction of posts in STS level which would adversely affect
the promotion of Group B employees.
Comments of DG, CPWD in response to above were received in MOF on
30.11.94. It was contended that the
proposals have been framed in terms of DOPT guidelines providing for certain
alternative conditions inlieu of 10% economy cut. It was also stated that by suitably
increasing the promotion quota, the interests of feeder cadres could be
protected.
2.3.6 After considering the
views of MOUD, MOF conveyed their concurrence to the modified cadre review
proposals on 19.12.94 taking an overall view of group A B & C level
posts and communicated the same to MOUD with the request to send a revised
Cabinet Note for obtaining the orders of Finance Minister.
2.3.7 At the instance of DG
(Works), CPWD, further discussions were held with Secretary (Expenditure) on
30.12.94 when certain modifications in the cadre strength were agreed to. MOUD were communicated of the finally
approved cadre structure on 8.2.95 with the stipulation that creation/upgradation of posts should be simultaneous with abolition.
2.4 2.4 Approval by DOPT & MOF (April-May,
1995)
2.4.1 The
revised Draft Cabinet Note was sent along with a d.o. letter dated 6.4.95 from Addl. Secretary, MOUD
to both DOPT and MOF. DOPT approved the
proposal with the concurrence of MOS (PP) in May, 1995. However, in April,1995,
in MOF, a letter was written from JS (Pers) addressed
to MOUD for revising the terms of abolition so as to synchronize the same with
creation/upgradation of posts. MOUD sent a revised draft Cabinet Note to MOF
on
2.5 From
the above details, it may be seen that the delay in the finalisation
of the cadre review proposals of CES (Group A) and CEMES (Group A) in this
case was mainly on account of the following factors:
(i) The Government of
(ii) The
Staff Inspection Unit (SIU) of the Ministry of Finance was in the process of
undertaking a functional work norms study for revising the work norms of CPWD
during 1990-91, as per a decision taken earlier by the Committee of
Secretaries. The cadre review proposals
initiated for relieving stagnation in CES/CEMES provided for upgradation of a sizeable number of higher posts. The Ministry of Finance took a view that the
cadre review could be finalized only after the staffing strength is determined
on the basis of SIU study. The Ministry
of Urban Development, however, were of the opinion
that the cadre review proposal could be considered, independent of the then
on-going SIU study.
(iii) While
the cadre review of Group A posts of CES/CEMES was under consideration, the
Ministry of Urban Development also initiated the cadre review of Group B and
C posts. It was revealed subsequently
that Group A proposals could not be viewed in isolation as its impact will be
felt in Group B and C posts also. It
necessitated framing of a consolidated proposal subsequently for all the
groups.
ANNEXURE
LEGEND : MOUD - Ministry
of Urban Development
DOPT - Department of Personnel & Training
MOF - Ministry of Finance
C.R.C. - Cadre
Review Committee.
Sl.No. Date Action Taken
1. 26.7.90 Cadre review proposal received in DOPT from Ministry
of
Urban
Development (MOUD).
2. Sept.90 DOPT requested MOUD to clarify
certain points and send
a
revised/ Amended proposal.
3. Nov.,90 Series of meeting and
consultations between officers of
DOPT (Cadre Review Division)
and MOUD.
4. Feb.91 Consideration/examination of the proposal in DOPT at various levels.
5. 9.4.91 Brief on the proposals sent by DOPT to MOF.
6. 17/18.4.91 Notes for convening the meeting of
Cadre Review
Committee (CRC) on 29.4.91 sent by DOPT to MOF
and MOUD.
7. 25.4.91 MOF intimated DOPT about the on-going SIU study into
the working of CPWD;
they desired postponement of the
meeting of C.R.C.
8. May91 DOPT sought for comments of MOUD on the points
raised by MOF.
9. 30.5.91 Comments
of MOUD received in DOPT/MOF; Secretary (UD) wrote to Secretary (Co-ordination)
in Cabinet
Secretariat for convening the meeting of C.R.C. and for de-linking the cadre
review proposals from the on-Going SIU study.
10. 12.7.91 Secretary
(UD) again wrote to Secretary (Co-ordination)
on the above issue.
11. 29.7.91 Secretary
(UD) again reminded Cabinet Secretariat on the above case.
12. July-Aug., 91 A note
was sent from MOF to Cabinet Secretariat and
endorsed to DOPT and MOUD pointing out that the SIU study had revealed
surpluses CPWD, MOF again desired that the orders of Committee of Secretaries
to be obtained whether cadre review proposals could be processed pending
Completion of SIU study.
13 5.8.91 Note issued from Cabinet Secretariat to DOPT for
convening the meeting of CRC and for placing the comments of MOF in the above
meeting.
14. 6.9.91 Meeting
of Cadre Review Committee held.
15. 13.9.91 Minutes of CRC meeting circulated by DOPT to all
concerned.
16. 4.10.91 Draft Cabinet Note to be sent to DOPT approved in
MOUD.
17. 28.10.91 Draft Cabinet Note sent to DOPT
from MOUD, after consulting their I.F. Division.
18. 12.11.91 DOPT wrote to MOUD for making
certain corrections in the draft Note.
19. 27.11.91 MOUD sent back the draft Cabinet
Note to DOPT after making necessary corrections.
20. 6.12.91 MOS(PP) raised certain
queries on the functional justification of posts sought to be created.
21. 27.12.91 MOS (PP) approved the draft
Cabinet Note after
considering the clarifications given by Secretary (P) on this case.
22. 10.1.1992 MOUD sent the relevant file
containing draft Cabinet Note to MOF for vetting.
23. 20.1.92 MOF
raised certain queries, inter-alia, on the number of
posts of stenographers and sent back the case to MOUD.
24. Jan-Feb92 Issue of economy instructions by
government providing for
identification of posts at all levels to the extent of 10% or more for
surrender.
25. Feb.1992 MOUD consulted MOF for
clarifications as to whether the economy instructions apply to cadre review
cases also and the MOF confirmed that pending abolition of 10% posts, cadre
review proposals were not to be initiated or processed/implemented.
Consequently, the proposal was held up in MOUD for the remaining part of the
years.
26. 2.2.93 I.F.Division of MOUD
asked the works Division of MOUD
for details of 10% cut posts to be identified for referring the case to MOF.
27. 15.3.93 On another case relating to
cadre review of Group B & C
posts of CPWD, MOF returned the case saying that the proposal was to be
Deferred till completion of SIU study and implementation of 10% cut.
28. April- May 93 File sent to I.F. Division of MOUD from
Works Division informing that May,1993 CPWD
being a Service Department, it was not possible to effect 10% cut in existing
strength; however, 10% cut out of the posts recommended by CRC was offered.
29. May,1993- Finance Minister wrote to Minister
(UD) in another case
June 93 that cadre review cases June,1993 cases were not to be processed till 10% reduction was
made in the staff Strength. Further he
also informed that staffing study of CPWD was being carried out by SIU, pending
which it was not desirable to consider cadre review proposals.
30. 12.7.93 After
examination, MOUD sent the case to MOF for their
consideration with an offer to have 10% cut out of additional posts recommended
by CRC.
31. 30.7.93 MOF returned the file expressing their
inability to deviate
from economy instructions. They also advised MOUD to approach Committee of
Secretaries for seeking exemption
from the purview of
10% cut.
32. Oct.93 The proposal was considered again in MOUD but was not
sent to MOF in the absence of 10% cut.
33. 1993 (i) Note was sent
by MOUD to Committee of Secretaries
explaining as to why 10% of existing post in CPWD cannot be abolished. (ii) C.O.S. decision for abolition of 4 posts
of Chief Engineers taken. (iii) SIU work
norms for CPWD Divisions were issued.
(iv) COS desired that A.S. (Expenditure) will hold a meeting with MOUD
to decide the financial norms consequent to the finalisation
of SIU study.
34. 30.3.94 Additional
Secretary (DOPT) wrote to Secretary MOUD for
examining the cadre review proposals in the light of alternative conditions
agreed to by MOF in lieu of 10% cut.
35. 20.6.94 Minister
of UD wrote to Finance Minister requesting for
personal discussions to expedite the issue.
36. 15.7.94 MOF
called for a detailed background note from MOUD for
discussions.
37. 20.7.94 MOUD
indicated the detailed position in a note for
discussion.
38. 11.8.94 Discussions
in the MOF between AS (E) and officers of MOUD.
39. 27.8.94 Finance
Minister wrote to Minister of UD about absence of
10% cut and evolving staffing pattern as per SIU report before considering the
cadre review proposal.
40. 21.9.94 Discussions between Secretary, MOUD and Secretary
(Expenditure) to sort out the issue.
41. Oct.94 File sent to MOF with revised Cabinet Note showing no
additional expenditure.
42. 9.11.94 D.G. (Works) CPWD wrote to Finance Ministry
requesting for expediting approval of cadre review proposals.
43. 25.11.94 MOF wrote to DG (Works) for certain
clarifications.
44. 30.11.94 Comments of DG (Works) sent to MOF.
45. 19.12.94 MOF gave their concurrence for a revised cadre
structure.
46. 30.12.94 Discussions between DG (Works), CPWD and Secretary
(Expenditure) and certain modifications by way of more posts agreed to.
47. 2.1.95 File referred to MOF to confirm their having agreed to a
certain number of more posts.
48. 16.1.95 File returned by MOF confirming the position relating to
the agreed number of additional posts.
49. 8.2.95 MOF approved the final version of the cadre
structure.
50. March,1995. The revised proposals were examined at various levels
in MOUD
51. 6.4.95 A draft Cabinet Note
was sent by MOUD to MOF
and DOPT for vetting.
52. 27.4.95 MOF returned the proposal with the observations that
creation and abolition of posts should be simultaneous.
53. 9.5.95 MOS (PP) in DOPT approved the draft Cabinet
Note.
54. 25.5.95 MOUD, after correcting the draft Cabinet Note, sent the
revised version to MOF providing therein a revised schedule of abolition of
posts.
55. 13.6.95 Finance Minister approved the draft Cabinet
Note.
56. 26.6.95 MOUD sent the Note for Cabinet on this issue to the
Cabinet Secretariat.
57. 3.7.95 The Cadre review proposals approved by the
Cabinet.
58. 12.7.95 Minutes of the Cabinet approval received in
MOUD.
59. 12.7.95 Orders for creation / abolition of posts,
issued.
CADRE REVIEW PROPOSALS
3.1
3.1
Based on the inferences drawn
from the facts contained in the case study, the Department of Administrative
Reforms have evolved certain suggestions for streamlining
the processing of cadre review proposals.
These are discussed below.
3.2.1
3.2.1 At present in the cadre review guidelines
issued by DOPT, the role of Ministry of Finance is briefly mentioned as under:-
Where, however, cadre review proposals involve
introduction of new pay scales or changes/ adjustments in the pay scales by way
of say merger, bifurcation etc., it is desirable to obtain the clearance of the
Department of Expenditure before incorporating such changes/ adjustments
..
3.2.2
3.2.2 Against the back ground of existing economy
instructions, any creation/upgradation of posts
contained in the cadre review proposals are to be approved by the Department of
Expenditure and in the case of posts of and above the level of Joint Secretary,
specific concurrence of Finance Minister is required. Since any cadre review invariably involves
creation/upgradation of posts, the same is to be
scrutinized and approved by Ministry of Finance. While guidelines adopted by DOPT have been
circulated to all cadre controlling authorities, the yardsticks adopted by the
Ministry of Finance have not been well publicised
amongst various Ministries/Departments.
It was observed in this case that during examination of the proposal in
the Ministry of Finance the relevant file had to be sent back to the concerned
Ministry/Department several times for clarifications, want of complete
information on the functional necessities of the posts and lack of follow-up
action on economy instructions and the like.
Thus considerable delay was caused while the proposal was scrutinized in
the MOF. The study Team feels that if
the criteria adopted by the MOF in scrutiny of the Cadre Review proposals are
incorporated in the Cadre Review guidelines, it could reduce the back and pro movement
of the proposal between MOF and the concerned organisation. In this regard some of the important points
kept in view by the Ministry of Finance are:
i. The proposals should not lead to
overall increase in strength.
ii. There should not be any additional
expenditure.
iii. Reduction of existing posts by 10% or
more in terms of economy
instructions is an essential pre-requisite.
iv. Generally no proposal involving introduction of new pay
scales is
favoured.
v. Proposals should not be solely based on removing stagnation
but should
also have adequate functional justification.
3.2.3
3.2.3 The
Study Team, therefore, recommends that the criteria adopted by the MOF in
examining cadre review proposals should be incorporated in the Cadre Review
guidelines in consultation with the MOF.
3.3 It
has been mentioned in the cadre review guidelines that as per the current
practice followed by the Ministries/Departments, no cadre review is initiated
in respect of any service/cadre which is likely to be affected by the
recommendations of a current S.I.U. study of an organisation
under a Ministry/Department. It has been
further stated that the review proposals are required to be drawn up only after
the S.I.U. report has been acted upon by the Department concerned. In case, however, S.I.U. happens to undertake
a review of a organisation under a
Ministry/Department soon after a cadre or cadres controlled by it have been
restructured on the recommendations of the Cadre Review Committee, the
Department may ensure that S.I.U. finalises its
report in consultation with Cadre Review Division of DOPT in so far as its
recommendations may affect the cadre structure of the concerned service. In the instant case, however, both the cadre
review exercise of Group A posts in the CES/CEMES and the S.I.U. study which
would have an impact on some of the above posts were simultaneously
undertaken. For avoiding such instances
in future, it may be necessary for the concerned Department to ensure that no
S.I.U. study is in progress before undertaking the cadre review of a
service/group of posts likely to be affected by the S.I.U. study. For this purpose an appropriate column may be
included in the proforma pertaining to the background
information wherein the concerned Ministry/Department may give a certificate
that there is no on-going S.I.U study pertaining to posts covered in the Cadre
Review proposal and that no SIU report having an impact on such posts is
pending action at the time of undertaking the Cadre Review exercise.
3.4 For
considering any cadre review proposal, it is necessary to have a full picture
of existing number of posts at all levels, as focusing attention to only a
particular group of posts in isolation would lead to distortions at other
levels. In the subject case it was seen
that while a particular category of posts (STS) were slated for abolition in
the proposal relating to group A posts, the same category was recommended for
augmentation in substantial numbers in the proposals relating to group B &
C posts in same service/cadre. It,
therefore, becomes necessary to keep in view any other cadre review proposals
(which may have a bearing on certain groups of posts common to both the
proposals) which are either under consideration or are to be undertaken shortly
for processing, say within a period of period of one year.
3.5 The
guidelines issued by DOPT provide that cadre review exercise should not be
misconstrued as a process of upgradation/increase in
the number of posts for providing promotional avenues. The main thrust of cadre review is on
manpower projections and recruitment planning on scientific lines for rationalisation of existing cadre structure so as to
improve efficiency, morale and effectiveness of a cadre. The hallmark of a well constituted cadre is
that while it seeks to provide a satisfying career to its members, it also
caters to the functional needs and fulfils the functional objectives of the
service. Creation of new posts or upgradation of existing posts solely for the purpose of
improving promotional opportunities without adequate functional justification
would severely erode the original role of the service and impair its
efficiency. The guidelines of DOPT point out
that cadre review is not a vehicle for the fulfillment of career expectations
of Service officers, howsoever, legitimate they may be. Adequate functional justification is an
essential consideration in the rationalisation of a
cadre structure.
3.5.1 However,
it has been the general feeling that progressive cadre review
of a service generally tend to increase the number of higher posts and
simultaneously erode the number of posts at the base. This is because Ministry of Finance
invariably lay emphasis on economy and savings in
expenditure which leads to scarifying the number of feeder posts so as to
upgrade/increase the higher level posts.
This will only mean that as we go along, everybody will be doing work
one below his level. This is generally
true unless there is a marked increase in the functional area of the service
resulting in higher intake of officers at different levels. However, with the advent of the new economic
policy, liberalisation and deregulation, the role of
Government in civic affairs is progressively sought to be curtailed. It can be safely assumed that there are very
few chances of unilateral expansion of civil services/posts. Looking at future cadre review exercises in
the above background, it has become essential to group the posts in terms of
their duties/responsibilities and knowledge/skill required to man the positions
by conducting a general job evaluation exercise. Appropriate job descriptions are to be
written reflecting in clear and concise terms information relating to
knowledge, skills, experience, educational/technical qualifications,
responsibility for work, area and extent of supervision given, nature of
supervision received, decision making areas, nature & extent of
interactions with public and other functionaries, work environment etc., for
various categories of posts. This will
enable to bring out the relative worth of posts in a cadre on a systematic and
sound basis, thus ensuring that higher posts do have comparatively higher level
of duties and responsibilities. The
above course will also make the future cadre reviews more objective and
rational.
SUMMARY OF RECOMMENDATIONS
1. After consulting
Ministry of Finance, the parameters adopted by them while
processing of cadre review proposals should be included in the cadre review
guidelines and widely circulated amongst various Ministries / Departments for
their information and use.
(Chapter III-para 3.2.3)
2. It
is necessary for the concerned Ministry/Department to give a certificate in the
appropriate proforma that there is no on-going S.I.U.
study which may have a bearing in group of posts covered in the Cadre Review
proposal and also that no such S.I.U. report is pending for implementation at
the time of undertaking cadre review exercise.
(Chapter III para
3.3)
3. While considering the
cadre review proposals relating to a particular group of
posts (say Group A), other such proposals relating to any other group of
posts (Group B and C) in the same service/cadre (which may have a bearing on
certain group of posts common to both the proposals) which are, either under
process or to be taken up for processing within a period of one year, should
also be kept in view so as to have a overall perspective of various categories
of posts.
(Chapter III-para
3.4)
4. It is necessary to
clearly lay down the functional requirements of various
categories of posts in every service/ cadre so as to group them in terms of
duties and responsibilities. This can be
done by conducting a general job evaluation exercise which would help in
ensuring that different grades in a cadre reflect distinctly different levels
of functions and that higher posts do have higher level of duties and
responsibilities.
(Chapter III-para
3.5.1)