218
CHAPTER IX
DEVELOPMENT ADMINISTRATION : CHARACTERISTICS
Despite the fact that comparative administration group
(CAG) led by Fred.W.Riggs has conducted a series of research
on various aspects of development administration, the question of whether development administration is a concept or
area of administration is not yet resolved.
Whichever way one may look at it, carrying out the
development functions did demand different type of irientation on the part of administrators especially when such
administrators had the experience of performing mainly
regulatory functions.
In the field of industries also
government's earlier growth
regulatory nature.
!',i';!;"
even now, had been one of
It is when emphasis was laid not only
on industrialization but industrialization of backward
areas that the Government created various agencies through
which government officers were expected to carry out more
promotional and developmental functions relating to
industrialization.
Although in many States different bodies created were
linke,d to the common function of promotion and development
of industries, in Andhra Pradesh apart from the creation
of other bodies the Directorate of Industries CD.O.I.) was
also entrusted with developmental functions.
However
officers who were earlier performing regulatory functions
and were also still performing regulatory functions, can
perform developmental functions also, with'equal ease.
The officers in D.O.I. were asked to comment on series
of ten statements on development and regulatory functions. ,
Officers in D. 0.1. seem to be very clear in their understanding of both regulatory and development functions.
Majority
of them think that regulatory and development functions
cannot be separated.
In fact the regulatory work is very
much a part of developmental function.
Still officers are
clear that in terms of emphasis, development function should
be given primacy over the regulatory functions.
This means
if regulatory functions come in the way of carrying out of
developmental functions, regulatory functions must be
suitably modified or changed.
It is because'officers in
D.O.I. think that regulatory functions are inseparable
from developmental functions that they believe creation of
too many agencies for promotion and development of industries in the State leads to creation of more regulations.
The officers also believe that too many regulations give
ris'3 to corruption and do not think that promotion' of
industrialization through governmental efforts means creation of regulations necessarily.
However, an inconsistency
was found in the observation made by officers relating to
regulatory and developmental functions.' On the one hand
officers consider these functions as inseparable, and on the
other hand they recommend different types of authority
structure in the organisation for developmental and regulatory functions.
The authority structure recommended by
219
220
offiqers for developmental functions is a decentralised one
whereas the regulatory functions would demand more centralised nature of authority.
How can one organisation entrusted
with both developmental and regulatory functions follow two
different patterns of authority structure?
silent on this question.
Officers are
Perusal of the structure of D.O.I.
relating to decision making in chapter seven on decisionmaking has shown that the D.O.I. follows the centralised
structure of authority system which means structurewise
D.O.I. is more suitable to performing regulatory functions
than developmental functions.
If as opined by the officers,
developmental functions are to be given primacy over regulatory functions, the very structure of authority system
,
followed by D.O.I. needs to be changed.
Although structure-
wise D.O.I. may not be consistent with the demands of
development functions, but one redeeming feature is
offi~
cers in their understanding of and orientation to develop,-
.
,
mental functions seem to be having more, positive and healthy
approach to the demands of development functions.
Only on
one count officers are ,sharply divided - whether development
and regulatory functions of the government should be performed by the same organisation or not (see table
220
9.1).
221
Table
9. 1
Requisites of Developmental and Regulatory
functions
statements
Agree
Disagree
1. Though both regulation and development are necessary,emphasis should
be more on development
90
10
2. Though both regulation and development are necessary, emphasis should
be more on regulation
10
90
90
10
80
20
5. Development and regulatory functions of the Government should
not be performed by the same
organization
45
55
6. Having too many agencies/corporations would lead to creating more
regulations
85
15
7. Promotional/development work is
totally different
85
15
8. Developmental functions demand
decentralization" whereas regulatory functions demand centralization
90
10
9. Too many regulations give rise to
corruption
90
10·
10
90
3. Regulation work is much part of
developmental function that it
becomes difficult to separate it.
4. In case regulatory functions are
coming in the way of development,
they can be changed forthwith
,
10. Promotion of industrialization
through Government efforts
means regulation
221
'II
'There is truth, in the fact that even in a developmental
agency, there is bound to be some regulatory work and such
a regulatory work cannot ,be entirely separated from the
developmental activity.
What is needed is that one should
be clear of what is the goal or purpose of organization.
If the main goal is to promote development, all activities including regulatory ones
should be geared towards achieving
the main goal of development.
Development is a purpose and
regulations are just means towards achieving that purpose.
One should not hesitate in dropping, changing or modifying
the means if they are consistent with the broad purpose of
development.
Officers in D.O.I. are aware of this and at
least through their orientation are more
favour~bly
disposed
to developmental functions o,f the organization.
Officers were asked to identify which qualities they
consider as prerequisite to performing developmental and
regulatory functions.
In the case of developmental func-
tions the qualities that are most identified are 1) good
•
knowledge of one's diSCipline, 2) honesty, 3) capacity to
motivate, 4) discipline and 5) capable of meeting pressures
and challenges.
For regulatory, functions officers gave
primacy to qualities like 1) Impartiality, 2) honesty,
3) positive orientation and resourcefullness, 4) strict
observance of rules and regulations and 5) Responsive to
ideas and suggestions.
From this one can infer the qualities
identified for developmental and regulatory functions are
not necessarily the ones which are required by these functions.
However, this seems to be the perception of officers
tha~
they tend to feel that one should be impartial when it
comes to performing regulatory functions whereas that quality is not rated high as far as meeting developmental functionsare concerned.
One can also infer from this that the
demands on meeting both developmental and regulatoryfunctions on the part of officials are not well articulated.
Officers in fact seem-to have a hazy notion of difference
between developmental and regulatory functions (see table
9 .:2).
Table
g.2
Qualities Requisite to perform Developmental
Functions
Qualities elucidated
A. Common Qualities
f
.
1 • Capacity to motivate
72
2. Capacity to understand the entrepreneurs
63
\
3. Capacity to understand the entrepreneurs
urges and attitudes
45
4. A good knowledge of his discipline
75
5. Perseverance to sustain enthusiasm
53
6. Faith and conviction
52
7. Should be freely accessible
53
8. Should be reciprocative and receptive
to new ideas
65
9. Should be work minded
55
10. Should be resourceful
53
contd •.
223
22~
11. Should be disciplined
,
67
12. Should be honest
75
13. 'Capable of meeting pressures @.l1d
challenges
65
14. Capable of scheduling his worK
50
15. Capable of programming
53
16. Capable of monitoring
55
17. Capable of reviewing
50
B. Different Qualities:
18. Should be liberal
23
19. Should be active
27
20. Should be open minded
32
21. Should have broad outlook
31
22. Should
be sincere in his efforts
,
27
23. Should have cooperative attitude
17
,
24. Should have capacity to establish
coordination
30
25. Should be able to take quick decisions
33
26. Shduld be an active promotor
23
27. Should have over-all idea of the
posit jon obtaining in differept
disciplines
17
224
Table ·'9.3
.Qualities Requisite for performing Regulatory.
Functions
Qualities elucidated
A. Common Qualities
1-
f
.
Strict observance of rules and
regulations
67
2. Should be impartial
75
3. Should be honest
72
4. Should be responsive
67
5. Should have positive orientation
70
6. Should be resourceful
70
7. Should have faith and conviction
50
8. Should be work minded
65
B. Different Qualities :
9. Should be capable of arriving at
proper interface of acts, rules>
procedures and regulations
23
10. Should be human in relations
•
11- Insist on inspection, reports
35
and
diaries
33
12. Keep authority consciousness at low key
20
13. Enforcing rules for positive actions
36
225
Development administration demands frequent contact
between officers and the recipients of development.
If the
officer does not consider frequent meetings between himself and the
clients necessary he. is to that extent less oriented to
development administration.
Clients will also not make
visits to officers if they feel that the officers do not
like their visiting them.
InD.O.I. one notices that majo-
rity of officers are in frequent contact with their clients.
This is a good trend and speaks for close interaction between
-
the clients and the administration (see table
Table
9.4).
9.4 : Enterpreneurs contacting to seek help or
assistance·
Frequency of Contact
f
1 • Frequently
50
2. Sometimes
20
3. Rarely
10
6
4. Never
86
The contact between officials and clients is mainly for
the purpose of seeking guidance on administrative procedures
and rules and the problems of loans, faced by the clients.
The problems related to administrative delays are also
responsible for frequent contact between clients and officers.
226
227
From the problem areas mentioned one gets the impression that
the contacts between clients and officers are more centred
around regulatory nature of work than development (see table
9.5) •
Table
9.5
Problems on which incumbents are contacted
Problem areas
1
Frequently
Sometimes
Rarely
Never
2
3
4
5
65
25
10
60
20
10
70
25
5
50
20
15
15
100
30
50
10
10
100
5
20
25
50
100
46.6
26.6
12.5
14.16
100
Total
6
1 • Guidance on
administrative
procedures and
rules
2. Law and Legal
problems
100
10
100
3. Banking problems
faced by them
4. Problems of
administrative
delays
100
5. Problems concern-
ing implementation
of programmes
6. Problems arising
out of conflict
between groups
of enterpreneurs
Mean
Frequency of contact between clients and officers is
no indication of what type of understanding or relationship
227
prevails between them.
Contacts are made by clients in order
to 1) seek clarification, 2) explain their difficulties and
3) have their problems redressed.
The meeting may not neces-
sarily lead. to a satisfaction of clients.
What happens when
clients do pot receive the desired results through their
contacts with officers?
Do they understand the difficulties
of O,fficers or do they think that officers have deliberately
cho:;;en not .to do their work?
Officers were asked as to how
clients felt when their demands were not met.
the
off~cers
Majority of
felt (60) that client would understand their
difficulties.
This means the officers through their
conduct ar,e in a position to win the confidence of the
clients, although officers are aware that in case a client
does not understand them he is not in a position to do harm
to them.
He at the same time feels that the client may
cease to cooperate with them.
This is the fear expressed
by majority of officers ('75).
,
,
,,
What happens when clients are not. able to meet their
demands~
What ways and means do they adopt to achieve
what they want?
Mostly clients under such circumstances
will 1) approach officers at higher levels, 2) seek inter\;
vention of political leaders (M.Ps., M.L.AS., etc,,) 3)
Attempt to persuade officers through funds/or relatives
or 4) Attempt to persuade through other services.
Generally
the measures which they will adopt to ,get the things done
~~
would be persuasive or punitive in nature.
228
The methods which
were used least by clients are 1) monitoring and 2) agitation. W
be " inclined to accept that the clients need not
one may
like to resort to agitation methods, it is hard to believe
that they may not be resorting to offering monetory incen-
9.6).
tives in the form of bribes,etc. (see table
Table
9.6: Types of
Types of Pressures
1
pressure~
applied
Frequ- Some- Rare- Never No Total Wt-:
ently times ly
v.
resp.
2
5
6
7
8
4
3
A. Punitive
1. Try to disturb
service conditions by complaining to
higher levels
10
10
30
50
100
80
2. Approach officers at higher
levels
40
30
20
10
100
200
30
30
30
100
180
4. Attempt persuation through
other sources
20
37
19
24
100
153
5. Attempt at per"suation through
important citizens
17
35
20
20
100
141
3. Making inter-
vention" from
political leaders at higher
levels (MPs,
Jl'lLAs, Jl'lLC s &
Ministers)
B. Persuasive
8
contd ••
23'0
contd. •.
,
2
3
4
5
6. Attempt at persuation through
their representatives/bodies
17
35
27
7. Attempt through
friends and/or
relatives
10
53
2
2
1
6
7
8
21
100
148
27
10
100
163
12
50
30
6
100
80
19
10
40
29
100
54
C. Monetary
8. Offer monetary
incentives or
other such
rewards
, D. Agitational
9. Making public
issues by
organizing
agitation,
protest, etc.
Mean
29.0
25.8
23.8
In development administration where clients have contact
with people's representatives the type of pressurea outlined
above are bound to be applied.
bureaucracy react to it?
How does developmental
Does it take such pressures as
part of normal functioning or as normal demands of development administration or does it resent such pressures?
Most
of the officers in D.O.I. think that such pressures are
inevitable and what needs to be done is to orient the clients
to the difficulties of administration by appealing to their
230
231
reason and good sense.
They also feel that explaining
limitations due to rules and regulations to clients will help
in easing the pressures.
The method which most officers
would like to follow when pressures are brought on them is,
to deal with the situation themselve,s instead
of seeking the
,
support of higher level of officers.
If this fails" majority
of officers would like to refer the matter to higher authorities.
Under no circumstances officers like to either post-
pone decision or seektheirtransfer to some other place or
involve politicians in dealing with the situations.
This
shows that officers believe in following positive approach
to tackling problems on development administration (see
table
9.7)
Table '9.7
Action taken when pressurized
Action taken
1
1 • EXplain limitations
due to rules and
regulations
2. Appeal to their
reason and good
sense
3. Seek help of other
clientele's bodies
Mostly Some- Rarely Never Total Wt.v.
times
2
3
4
5
6
7
50
18
15
17
100
201
60
15
15
10
100
225
10
10
20
60
100
70
10
10
10
70
100
60
4. Create public opi-
nion through formal
or informal contacts
contd ••
232
contd; .
2
3
4
5
6
situation yourself but by seeking the support
42
of higher level
of administration
43
7
8
100
5
5
30
60
100
1
9
40
50
100
61
42
25
20
13
100
196
1
5. Try to deal with
6. Postpone deci-
sion till favourable situation
arises
7. Seek transfer to
some place
8. Refer the matter
to higher authorities
219
../
55
4
9. Try to deal with
situation yourself by seeking
10
support of higher
fOlitical leaders
MPs, lVILAs &
Ministers)
Mean
25.5
10
10
70
100
60
,.
,.,
16.1
18.5
39.7
.--
•
•
232