Three years
after independence India became a Republic in 1950 by adopting a Constitution which
emphasise worldly principles for civilised society. According to economists
Jean Drèze and Amartya Sen “India was the first non-Western country – and also
the first poor country in the world – to commit itself to a resolutely
democratic way of governance.”
B.Chandrasekaran
It has been over
66 years after Independence yet the core structure of ways and means which
attributes to the process of public policy making has not been fixed despite
the fact that the Constitution of India lays-down broad framework for such
processes. This is true both at Union government level as well as State/UT
government level. In India, the key decision makers involved directly in the
process of public policy making are: (i) political representatives/elected
representatives; (ii) bureaucrats and technocrats; and (iii) the constitutional
bodies/agencies. At functional level, all these three are at silos as far as
the public policy decision making is concerned! But constitutionally they are
not.
Unlike the
factor of Time which dynamically unfolds almost constantly among the forces, the
process to make public policy have not been changed in the last six decades at
least, for two reasons: the
understanding and commitment of the political and elected representatives about
the constitutional process of public policy making has been by and large
unmoved from the time of colonial rule. Secondly, the chaotic structure of
the executives/bureaucratic set ups for
administrative power to engage with the core business of public policy making
has been moved away from what is emphasized in the Indian Constitution and
continues to practice the wild of its own course to make policies which produce
outcomes that are neither here nor there.
In other words,
the voices of people have been suppressed by these two groups and thus, the
twin objective of true democratic governance system embedded in transparency
and accountability has been undermined in the process of public policy decision
making. However, it has been rightly seen that the performance of the
constitutional bodies/agencies performed relatively better than the two other functionaries
of the governance system. However, the supply side problems in the
constitutional bodies/agencies are yet to be fixed to further its
constitutional commitments for effectiveness.
What constitutes
the present structure of process of public policy making in India at Union
government level? The idea of change proposal comes from top leadership. Typically
two types of people are engaged in it. The first one is the bureaucrats who
along with few technocrats devise the broad framework for public policy making
in a given area. Though, there are Official Guidelines (prepared and approved
by bureaucrats themselves with the help of elected representatives!) issued by
the Cabinet Secretariat for preparing a public policy in the Union government.
Once the bureaucrats do their role as administrative process in terms of
conceptualising the idea for policy change proposed and prepare the material in
a particular format and share it with other line government agencies which
include the Union/State government Ministries/Departments for their
comments/views, if any, and once received modify them into a structure which
suits both or find middle path! Thereafter, the draft policy is send to the
elected representatives for consideration, debate and approval. The matter ends
there, and often the draft policy goes back and forth between the bureaucrats
and the elected representatives for all kinds of reasons which are unknown to
the people of the country because it’s “Secret”.
Any country which has adopted strong
committed liberal democratic form of governance unlikely to follow these shoddy
systems for public policy making. Moreover, why liberal democracy like India
not embarrassing the democratisation of public policy decision making? Being a
vibrant liberal democracy why only it relies on consensus building method
alone? Why not take the process of public policy making to the people at large?
These are the vital questions which need to be emphasised for improving the
quality of public policy making. Given the massive policy paralysis that took
badly on the functions of Parliament in recent years, some perceptive
foundation is being made in India to think-through seriously about the
democratisation of process of public policy decision making. There are two
interesting analyses which are pertinent and noteworthy:
·
Quite
interestingly, Shishir Priyadarshi had studied the Indian agriculture sector in
view of WTO negotiations on various aspects of trade policies. Her main tool
for analysis was how far the Democratization of Decision-Making Process
involved in the negotiations. She examined the manner in which the negotiating
proposal was finalized, the consultations that were undertaken and the actual
decision-making process that led to the submission of the proposal. In her
study she carefully studied the key stakeholders involved/not involved in the
process: (farmer, civil society, academic institutions & think tanks, state
governments, industry, etc. This would be a classic case for taking the idea of
public policy process of decision making further in India.
·
According to Arun Maira “Obtaining consensus is a
big challenge in all
democracies, as the US's recent experience attests. It is even more difficult
in India. However, the challenge cannot be avoided. Therefore, participants in
policymaking in India must learn and apply techniques of faster, consultative
decision-making.” He further, argues rightly so that in the case of India,
“Policy reform… requires more attention to the building of the process by which
the ongoing involvement of stakeholders, mobilisation of resources and actions,
and monitoring of process is done, than to the content of a single policy
announcement.”
These are all very insightful debate and needs to be carried forward
with more constructive focus as far as the democratization of public
policy decision making is concerned. B.Chandrasekaran
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