The Service of the State

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Title: The Service of the State – The IAS Reconsidered

Author: Bhaskar Ghose

Publisher: Penguin Viking 2011 (First)

ISBN: 978-0-670-08381-7

Pages: 306

Bhaskar Ghose was a renowned civil servant occupying a myriad positions in various capacities in West Bengal state cadre and in the Union government. He joined IAS in 1960 in West Bengal cadre, ranking fifth in the qualifying exam. The most sensational post adorned by him was that of the Director General of Doordarshan, from which he was unceremoniously removed. The present volume is the author’s memoirs of his service life, excluding that of the Doordarshan period, which he has detailed in a separate book, titled Doordarshan Days. That period is totally blacked out in this book. While doing a critical reconsideration of the Indian Administrative Service (IAS), Ghose examines various characteristics of the managerial function and explains how the people of the cadre (IAS) are ideally suited for the tasks at hand. The author’s own service history is presented as proof for the argument that what prompted him to achieve the decision-making capabilities which developed in him was the ethos of the cadre and the seemingly worthless but tremendously empowering training he had undergone in the National Academy of Administration at Mussoorie. The book does not concur with the idea gaining acceptance in several circles that specialists in a particular discipline are better positioned to handle issues specific to that subject. Again and again, it tries to establish that a good subject expert would not be a good administrator and it is the decision-making capability that is of prime importance in a number of situations, several of which are given.

IAS was a continuation of ICS, which was a reincarnation of Covenanted Service of the English East India Company. Heated debates were held in the Constituent Assembly regarding the continuance of such a service in free India. Sardar Patel stoutly supported the notion and it was entrenched in the Constitution. Soon after independence, politicians eyed IAS officers with respect bordering on deference, unaware of the immense power which they themselves handled. However, few leaders, like Jawaharlal Nehru, Vallabhai Patel and Dr. B C Roy of West Bengal reigned over the officials and got what they wanted from them. As years went on, the political class recognised their potential and it was the turn of IAS to play second fiddle to them. Many degenerated to the level of subservient aides or courtiers to the politicians. Ghose says the decision to induct officers from state civil services direct to IAS and offering reservation to backward classes has badly affected the effectiveness of the cadre. Earlier, personality test was the sole criterion for deciding suitability of a candidate but later, it was relegated to the status of one other subject on which the candidate will be tested.

After training at NAA at Mussoorie, Ghose joined as Assistant Magistrate at Burdwan in West Bengal and a little later as Sub Divisional Officer in Barrackpore. An amusing incident which strengthens the case of clear and effective communication at such levels is described. A wall was going to be built in an area whereas the people in surrounding areas vehemently opposed the construction. A higher official was sent in for assessing the situation and make recommendations. He came, had discussions with all concerned parties and expressed opinion supporting the abandonment of construction. However, Ghose was surprised when the report came which he presumed to allow construction. He passed orders to that effect which was opposed by the people and a full blown law and order situation arose. When he showed the report to the police official in support of his decision to use force to disperse the mob, he pointed out that just the opposite was mentioned in the report. Actually the words in the report was, “I told the Chief Minister that if he wanted major trouble, he should allow the wall to be built and he agreed”! This succinctly explains the necessity of ensuring precise, clear language in communications of this sort.

Ghose was transferred to central services in Delhi as Under Secretary in the Information and Broadcasting ministry under Indira Gandhi. When she was appointed Prime Minister, subsequent to the demise of Lal Bahadur Shastri, Ghose moved to Delhi administration, then back to West Bengal as Collector of Cooch Behar. He had a whole lot of problems at hand, as the United Front came to power in Bengal which considered the author as a supporter of Congress which ruled the Centre. Administration was impossible in such a climate when slogan shouting employees in the leftist unions obstructed work in government offices. Officials who dared to enforce discipline was threatened or harassed with a novel way of assault, gherao. These often occurred outdoors, with the victim moved around frequently so as to keep him under the hot sun continuously. Police was ordered not to interfere in such actions as they were declared to be protests by trade unions. After a particularly nasty fall out with a Forward Bloc leader which was a constituent of the Left Front, Ghose was transferred as the Director of Census 1971 in Bengal. Being a Congress supporter, he was made the Secretary of Siddartha Shankar Ray, the last Congress chief minister to rule Bengal in a long time. Congress was swept out of power after emergency and Ghose was packaged to Delhi in the Social Welfare department. After a brief stint in the U.N, he was sent back to the state cadre. Being the Commissioner for Jalpaiguri, he had the opportunity to see the Gorkhaland problem gaining momentum at first hand. From this post, he was elevated as the DG of Doordarshan.

After making exit from Doordarshan, he served Culture and handled Kashmir affairs. He retired after 36 years of distinguished service as Secretary, Information and Broadcasting. Over the long years, the IAS changed from rulers to facilitators of developmental change in the grassroots level. He could see it happening in front of his eyes. Officers who passed out a few years after him did have a mindset which was totally different from the author’s generation. There are many occasions for a serving officer to swerve from the track of honesty and utilise his connections for illicit gains. Ghose maintains that there are countless officers who hold their heads high and remain in peaceful obscurity after retirement.

So, in the end, the book concludes with the assertion that the service is indeed essential for a country as diverse as India. The formal training, often greatly maligned by people, in fact help the probationers to weather out turbulent storms with a sense of belonging to a specialized cadre of their worthy colleagues. The informal relations existing between IAS officers have greatly helped the author many times when such help was urgently needed. The author is also remarkable for the frankness with which he has admitted his errors and follies. Where it was mandatory to illustrate a point, he has not hesitated to put even his own blunders before the readers, who won’t be unduly harsh to the author. The diction is lucid and the language is exceptionally dignified.

Some shortcomings are also to be pointed out. Being a bureaucrat in every sense of the term, he has some preconceived notions on reservation and the unsuitability of state service officers. He articulates them to be older than the general category probationers and are unfit to mingle freely with them. This can only be termed pure speculation. Another aspect of a bureaucrat – conservatism – is painfully evident from the coverage. Ghose praises every odd thing at the Academy, including dress codes, table manners and such numerous devices under the guise that they help inculcate a feeling of fellowship in the probationers.

Ghose’s pompous claim that he didn’t know how to read and write Bengali while serving there can’t evoke sympathy from readers. His father had imposed a fine of 1 paise for every English word spoken at the dinner table so as to encourage his children to speak Bengali at least on those occasions. To circumvent the threat, the siblings resorted to sign language for getting things like salt or dish, as if to speak their mother tongue was a laborious thing to do! Learning and speaking is English is one thing, but eclipsing one’s own tongue and treating it in such a cavalier fashion is disgusting. Author’s mark of forthrightness sometimes goes to the incredible – he was unaware that one his subordinates was blind, until he said so! This makes us wonder who was really blind, afterall!

The author belittles the contribution of all categories of officers other than IAS. Of course, he would immediately qualify such statements with a declaration that there are indeed people who don’t belong to his stereotypical labelling. The lesser personnel are said to possess resentment to the superior cadre of IAS, particularly the IA&AS (accounts and audits) who end up as financial advisers in ministries who scuttle every innovative project put forward by the IAS guys. Ghose is slothful in letting the readers aware of the outcomes of some of his decisions. One such thing was his resolve to give a day off in a week to Taj Mahal so that visitors would not be allowed. After much heckling, the decision was taken, but he was meanwhile transferred to some other department. He then goes on to say that he is ignorant what came out of it eventually (p.259). He should have done some homework and keep the readers conscious of what went through. The Taj Mahal is indeed closed on Fridays to visitors.

The book is recommended.

Rating: 3 Star