Here we are at the beginning of a new year once again, and as usual there is much comment in the air on the year that we’ve left behind, the year that’s just begun. Suddenly perspectives span years, trends are observed in the past and the future. Astrologers are not the only ones who have pronounced on what is in store for us, though the nature of the evidence used by them and other analysts may have
differed.
Having no wish to join in the flurry of analysing and forecasting that’s going on, I invite our readers to consider once again an issue that, like the poor, never goes away — downsizing the government. The eminent committee chaired by that eminent former bureaucrat, K.P. Geethakrishnan, has given the government its eminent report. One cannot comment on it since one has not had the good fortune to read it, but, judging from the reports that appeared about what it said about the ministry of information and broadcasting — on which one had commented in an earlier essay — the approach has been robust. As robust as that of the Queen of Hearts in Alice In Wonderland. “Off with his head!” the Queen said from time to time, a most effective remedy for all possible ills. The Geethakrishnan committee seems to have done much the same.
Now that we’re about to engage in an armed conflict with Pakistan, which will cost us several hundred crores a day, the wisdom of the approach advocated by the eminent committee mentioned above gains in significance. Or does it? Would it be politically correct to balance expenditure on war with the elimination of several posts?
Even in these tense times there appears to be something wrong with the argument that eliminating offices and departments means a reduction of government expenditure. Of course, on the surface, it is obviously true; if you have less people to pay, your expenditure is less. But this argument, carried to its logical conclusion, would mean that the maximum economy would be when you have no jobs at all in government, and hence no expenditure. No government means no expenditure; and just imagine the savings.
But, tragically, there has to be some kind of apparatus to carry on governance; and this is where logically anyone concerned about government expenditure should begin. What activities are essential for there to be good governance, what absolutely unavoidable, vital activities? And what, on the other hand, are those activities that are unnecessary for the government to do — not unnecessary in themselves, but unnecessary for the government. Running hotels, for example, or steel mills, or factories producing wheels for railway carriages and similar activities.
One has no wish whatsoever to enter into an argument on this point; all one is saying is that the distinction must be made, and made without equivocation. The starting point is here, not in looking at the work done by different ministries and their offices.
Years ago, an exceedingly foolish officer in the finance department of the government of West Bengal thought he had discovered a very clever way of reducing expenditure on government vehicles, and managed to get everyone to agree to it being enforced. Every government vehicle, he decreed, would not travel for more than 40 kilometres a day. He had apparently done some calculations which showed that a fat sum would thereby be saved. Very soon, indignant district magistrates said that this new order meant they couldn’t even travel to some of their subdivisions, leave alone a remote area where it was essential they go. The gentleman concerned was unmoved; the order, he said stiffly, stood. Then one district magistrate sent a vehicle to a point 40 km from his headquarters, and having gone to that point in one vehicle, left it there and took the other vehicle for the next 40 km, where, as planned, there was a third vehicle to go another 40 km, and so on, till he got to wherever he had to. Some districts were pretty large in those days, remember, like the undivided 24 Parganas and Midnapore.
He then sent a report to the chief secretary informing him that, for one official visit, he had used four vehicles where one would have done; four drivers were on duty, and had to be paid their allowances, which were necessarily double or more, since they had to wait for him to get back, again using four vehicles, each travelling 40 kms at a time. Then, like an accordion folding up, all four vehicles had to be brought back, each travelling no more than 40 kms a day, so that it took, on an average, two days, for all four to return. One could not administer a district, he pointed out mildly, if this was the way one had to travel, and incurring four times the travelling allowance costs that he would otherwise have done. The hapless finance department wizard was called in by the infuriated chief secretary and came out of the room like the Ancient Mariner, a sadder and a wiser man.
The point of this is that economy measures can at times be ridiculous; that is what one hopes the Geethakrishnan committee’s recommendations are not. And ridiculous they can become if they do not focus on the activity involved. That is what they need to ask, not how many people are working in an office. Is that activity essential to government functioning? If so, how can it be done effectively — effectively, mind you — with the least possible expense? Not, for example, by requiring four people to do the work of twenty but by finding out as accurately as possible how much one person can effectively do.
And, while measures of economy are being practised, a good look could be taken at the way government business is transacted. This can be effectively changed, but in the grotesque manner in which the government of India brought in the institution of desk officers, who were single-handedly required to do the work of a section consisting of a section officer, and half a dozen clerks. In other words, the procedures did not change in actual fact; all that happened was one wretched man got the workload of half a dozen. Decision-making has also to be handed down, simultaneously with structural chan- ges, and it rarely is.
A third rider. If it is decided that the government should not run hotels or steamship companies, then the means by which they will continue to run outside the government (if they are considered worth running) needs to be worked out clearly and given effect to first. Then, and only then, can one say, with the Queen of Hearts, “Off with his head!” or “their heads”, which would be more to the point.
All this, our champions of economy and frugality will cry out, will take time. It will. But it is only over time that one can ensure enduring economy, not the kind the wretched finance department man had dreamt up — and which he had to withdraw, incidentally. The key is to determine what activities properly belong to the government, provide realistically for them, and then firmly get rid of the others, but only when the alternative methods by which such activities can continue have been put in place.
This could well be a new year’s gift to the people by the government, but it needs to be put together carefully, and made to last. Noble sentiments about the virtues of economy and the rest are no better than gift-wrapping, which, like the wrappings of all gifts, ends up torn and on the floor.
The author is former secretary, ministry of information and broadcasting