Personnel System

PERSONNEL ADMINISTRATION
Chapter II
2. PERSONNEL ADMINISTRATION
Personnel constitute an integral part of the organizations. The quality of the
institution run by Government would
depend to a great extent upon the quality of the
employees engaged in their operation. Personnel Administration helps an organisation in

the management of personnel resources with the use of well established principles,
practices and rationalized techniques in selecting retaining and developing personnel for
the fulfillment of organizational objectives systematically and scientifically. In our report,
the personnel administration in respect of state civil services, case study of two services,
need for the Department of Human Resource Development, delegation from Secretariat
and the issues in the State Personnel Policy have been discussed in this chapter.
I.
STATE CIVIL SERVICES IN HIMACHAL PRADESH
The evolution of the state civil services in Himachal Pradesh has to be traced with
reference to three different classes of territorial units in times prior to the birth of
Himachal Pradesh in 1948. The present state of Himachal Pradesh is composed of about
30 princely states which were merged together to create Himachal Pradesh. A little
afterwards, the states of Kotkhai and Kotgarh were also merged in HP On 1st November
1966, Nalagarh state and a portion of the erstwhile Patiala state were clubbed with HP at
the time of re-organisation of state of Punjab in consequence of which the areas
comprised in the District of Kangra, Kullu, Lahaul & Spiti etc. which were part of the
British regime before 15th August 1947, were transferred from the Punjab to Himachal
Pradesh.
It may be noticed that most of the princely states which were amalgamated to
form Himachal Pradesh were too small to allow the creation of a regular civil service.
Among these states, Sirmour, Mandi, Chamba, Suket and Bushahr were of considerable
size but not large enough to have a regular state civil service. The result is that when,
following the creation of Himachal Pradesh, the question of equation of the incumbents of
the erstwhile princely states cropped up, most of the officers were absorbed in service in
capacities ranging from the Tehsildar down to the Patwari. The exception was made only
STRATEGIC REVIEW OF MACHINERY OF GOVERNMENT
52
in case of about a dozen officers like Mahabir Singh, T.S. Negi, P.R. Mahajan and H.R.
Mahajan who were absorbed as Extra Assistant Commissioners.
After its creation, Himachal had a cadre of Extra Assistant Commissioners. This
post was slightly lower that the post of a PCS or HAS Officer. All posts of Treasury
Officers, Revenue Assistant and later ADPDOs and still later compensation officers were
treated as Extra Assistant Commissioner (EACs). All these officers also functioned as
Magistrates in addition to their departmental duties. This situation continued till the year
1961 when the state did not have even the Indian Administrative Service. In that year, a
joint Civil Service Cadre was constituted for Delhi and Himachal Pradesh to be known as
the Delhi and Himachal Pradesh Civil Service. In the year 1965, this service was extended
to the Union Territories of Andeman, Nicobar and Iceland. Then this service came to be
known as Delhi Himachal Andeman, Nicobar Iceland Civil Services (DHANICS). As a result
of the Punjab Re-Organisation Act, 1966, later, the Union Territory of Himachal Pradesh
was elevated to the status of a full-fledged State by a Parliamentary Legislature known as
State of Himachal Pradesh Act, 1970. This Act provided for the bifurcation of DHANICS
and the creation of separate State Civil Service for Himachal Pradesh known as Himachal
Pradesh Administrative Service (HPAS). Before this was done, direct recruitment in case
of HP between the years 1961 and 1970 was made for the joint cadre already referred to
above. The Himachal Pradesh Administrative Service Rules were made and notified in the
year 1973 and the process of direct recruitment for the HPAS commenced. The first batch
of direct recruits of HPAS came into the position in the year 1974. Simultaneously,
promotions to the HPAS have been made over the year. This service consists of all posts
of Sub-Divisional Officer, Civil (including three which had been created in the year 1960
when the posts of EACs existed), ADMs, ACs to the Commission/Deputy Commissioner,
Deputy/Joint/Additional Heads of Departments/Deputy/Joint/ Additional Secretaries to the
Government and other miscellaneous posts.
Presently, the HPAS Cadre consists of total sanction posts of 185. Out of this, 134
posts are of various categories, 34 posts are deputation reserve and 17 posts are leave
reserve, training reserve and junior post reserve.
(a) Present Structure of Different State Level Services:
At present there are three State Level Services which can be called organized
services. They are: Himachal Pradesh Administrative Services (HPAS); Himachal Pradesh
53
Police Services (HPPS) and Himachal Pradesh Forest Services (HPFS). There may exist
other services like HP Education Services, HP Health Services, HP Agriculture Services
etc. but they are not in an organized structure, therefore, their existence in the shape of
a service is not found. With regard to Excise Services in the State, there are two types
prevailing one is the generalist cadre and the other is departmental officers. The
Department is headed by a Commissioner Excise and Taxation who is normally from the
All India Services. The post of Joint Excise & Taxation Commissioner is filled up from the
cadre of State Civil Services i.e. HPAS. In addition to this there are departmental officers
who form the so called Excise Services and their postings in the hierarchy level are Excise
Inspector, Excise & Taxation Officer and Assistant Excise & Taxation Commissioner etc.
these posts also form the feeding cadre for induction to the State Civil Services.
With regard to the registration activities in the State there are two types of
registration activity taking place first one relates to registration of land and the later
relates to motor vehicles. For the registration and licensing of motor vehicles, the power
have been vested in the Sub-Divisional Officer(Civil) who hail from HP Administrative
Services. The powers of registration of land are vested in the Sub-Registrar who happens
to be the Tehsildar at the Tehsil level, whereas the Registrar for land dealings is Deputy
Commissioner of the District. The role of officers from HP Administrative Services is no
where involved in this whole gamut of land registration. The Inspector General of
Registration in the State is Financial Commissioner (Revenue) who is generally from
Indian Administrative Services.
The picture with regard to commercial taxes in the State relates to Excise and
Taxation Department and to a small extent by the department of Transport. The role of
collection of all commercial taxes has been entrusted to Excise and Taxation Department
whereas the road tax ,token tax and passenger tax is collected by the Transport
Department/State Transport Authority. The Transport Department is headed by the
officer of Indian Administrative Services whereas the post of Secretary State Transport
Authority is hold by State Civil Services in addition to the posts of Regional Transport
Officers.
The Education Department which is one of the bigger departments in the State is
divided into two parts i.e. Department of Higher Education and department of Elementary
Education. The Department of Higher Education is governed by the departmental officers
54
who hail from the teaching category i.e. College Cadre lecturers who are promoted as
Joint Directors in the department. In addition to this, one post of the level of Additional
Director has been assigned to HP Administrative Services for the works/assignments
related to establishment affairs. The financial matters in the department are looked by an
officer of the level of Joint Controller (Finance & Accounts) alongwith two or three Section
Officers (Finance and Accounts) who all belong to Subordinate Accounts Services in the
State under the overall control of Director of Higher
Education. The Department of
Elementary Education which has a mandate to direct and administer the education upto
middle level (8th Class) is headed by an officer from IAS/senior HAS. The middle level
posts of the department viz. Joint Director, Deputy Director etc. goes to the departmental
officers who belong to the teaching category of Trained Junior Basic Teacher. The channel
for this promotion from JBT is Headmaster/Centre Head Teacher. Thereafter CHT to Block
Primary Education Officer and Deputy Director of Primary Education at district level also.
The Head of the Department in Prison department is called Additional Director
General of Prisons. This post is filled up from officer belonging to India Police Services.
The post of Jail Superintendent at individual jail level is held by local level Sub-Division
officer (Civil) or Assistant Commissioner to Deputy Commissioner. However, all the lower
posts in the hierarchy of officers is filled up from the departmental officers.
The second largest department providing Social Services in the field of Health is
department of Health & Family Welfare in Himachal Pradesh. The post of Director Health
Services is filled up from the officers of the department. However, the post of Mission
Director, Rural Health Mission is held by either an officer from Indian Administrative
Services or a Senior officer from HP Administrative Services. To facilitate the
administrative work in the department of Health Service, one post of Additional Director
Health belongs to State Civil Services. All the technical work of the department is looked
after by the departmental officers who are senior doctors. However, their own service
matters are handled by the authorities sitting in the Secretariat. This is the case with
respect to all the technical services in the State that their service matter are dealt by the
generalist sitting in the Secretariat where the lead role is played by the officials of the
Secretariat Services who are hardly aware or equipped/trained to handle the technical
matters. This situation many times lead to a very gloomy position and confusing
consequences.
55
The Department of Agriculture is headed by Director Agriculture who hail from the
department of agriculture. All the posts of junior, middle and senior level positions in the
department are held by the departmental officers who dispose of all the technical work of
the department at their level however, their own service matters are dealt in the
Secretariat and the same tale of woe as narrated in the preceding paragraph, is repeated.
In the past, the post of Secretary Agriculture which is normally filled up from All India
Services, was once filled up by drawing an officer from the Technical Services but in that
case too the position remain to a branch officer only since in this condition he had to work
under an officer belonging to the generalist cadre.
There are two departments in the State where Engineering Services in general
exist. These are departments of Irrigation and Public Health and Public Works
Department. The mandate for Irrigation & Public Health Department includes the works
related to irrigation, water supply, sewerage
and sanitation. The department is headed
by Engineer-in-Chief (IPH) who is a senior departmental officer. The state has been
divided to three zones i.e. North, South and Central Zones and department in three zones
is controlled by a Chief Engineer at zonal level who also belong to cadre of departmental
officers. The zones are further divided into Circles, Divisions and Sub-Divisions where all
the posts are held by departmental officers. The Public Works department in the State
looks after the work of construction and maintenance of roads and bridges, residential
and non-residential government buildings etc. there are other players also in this activity
which include Engineering Wing of the Rural Development Department and Himachal
Urban Development Authority (HIMUDA- come up after the merger of HP Housing Board
and HP Nagar Vikas Pradhikaran). The engineers in these department are generally called
on deputation from HP Public Works Department. The Engineer-in-Chief PWD and all the
Zonal, Circle, Divisional and Sub-Divisional posts in PWD are held by departmental officer
on the analogy of IPH department. The posts of Registrars, who deal with the
establishment/administrative work in these both
departments are filled up from the
departmental officers, these posts could be considered to be filled up from the State Civil
Services.
SCOPE FOR RATIONALIZATION
With the passages of time, the State Administrative Services which has prevalence
in broader terms in different departments has evolved itself as a specialist in
administrative/service matters. They form a generalist cadre for human resource
56
department and developed an expertise in this particular subject. The generalist cadre of
HP
Administrative
Services
has
become
architect
to
construct
the
establishment/administration paths, roads and their all intricacies those come in the way.
HP Police Services and HP Forest Services have remained confined to their own
departments and do not have exposure or expertise on the issues relating to different
departments. The State Civil Services over the time period has an emerged as premier
services. The departmental officers emulating them have developed themselves also
specialists ignoring their own domain. The suggestion to ameliorate this situation is that
departmental services may be made feeder cadre to State Civil Services for uniformity.
HP Police Services, HP Administrative Services and HP Forest Services are parallel cadres
services which have their own area of expertise and no scope of rationalization seems to
be possible. However, the postings of HP Police Service and HP Forest Services on
generalist posts is the need of the time. In the past, though they have been posted to
generalist cadres incidentally or accidentally but the efforts proved to be an ornamental
event only. Since they were not offered ample opportunity to operate and grow as the
responsibility entrusted to them was limited to the extent of branch officers only. In
certain policy issues the services of departmental offices can be availed for the
convergence of services for example: for the land use policy a combine of officers from
agriculture and forests departments may result into better convergences of services.
The State Civil Services have always played a second lead role and remained
under the shadow of a banyan tree the big Civil Services.
(b) The State Civil Service-Need of a Generalist Cadre
The provincial civil services may have been created with the intention of providing
native a crack at the higher civil services with a predetermined gape of four years. The
provincial civil services and the ICS were performing the same field, functions in the
earlier years, the higher jobs were exclusively to be managed by ICS, of course, the PCS
people had an opening to be elevated to the coveted ICS. With the passage of time, the
basic framework has a remained the same, the increased preference to the departmental
officers in the departments which are generally headed by the officers from the IAS, has
meant the State Services generalists sharing the space with the departmental officers on
one hand and the performing the same functions which an All India Services Officers does
at the beginning of ones career on the other hand. The delay in action and repeated
posting dont offer much challenge/growing opportunity to the PCS officers definitely
57
affecting the quality of the services and this coupled with the tendency to cling to the
coveted posts has meant dilution of quality and more and more dependence upon the
plot-able officers by the politicians. This state of resignation of being relegated to the
second wing coupled with the perceived second rate treatment on being inducted into IAS
has meant, less initiatives, less perceived recognitions means an approach which just
suffers the immediate concerned of placement, to be as the right side of the relevant
party at any time as become the USP of the PCS (politically collect service.
At the directorate level the State Services PCS Officers generally look after the
service matter of department whereas the technical matters are generally are assigned to
departmental officers. On the other hand, in tax collection department like Excise and
taxation Department, The Tax collections are done zone wise and zones are divided
between the PCS and departmental officers whereas some of the departments like PWD,
IPH and Forests etc. there are now PCS officers like wise IAS officers are also not there.
The establishment matters are dealt by the departmental officers only.
At the Secretariat level the Secretary heads the department assisted by the
branch officers who are again either from the PCS or from the secretariat services. Each
branch has one section officer who is the real fulcrum in the scheme of things. IAS
officers also serve as branch officers at the level of Joint Secretary and above. While
there is generally more than a single supervisory level in the Secretariat working, single
file system has been introduced in a couple of branches. Decision making process is very
long drawn and delays are a routine, lack of a accountability and hence passing of buck
and instead of the forward movement of the papers, unnecessary queries relevant or
totally irrelevant is the norm, in the absence of deemed clearances, subjects are kept
pending for years together.
The provincial Civil Services are functioning same function albeit at a lower level, the only
justification of a functional overlapping service may be traced in the quasi federal
structure envisaged in the constitution and only way to improve the utility aspect is to
assign then the responsibility, exclusively at the lower level or perceived cutting edges.
The Higher Civil Service should exclusively be engaged in policy formulation and ensuring
implementations.
HP Administrative Services is premier service of the State and is vested with
significant responsibilities of policy making at the state level and also effective
58
implementation of these policies in the field. In quantitative terms, more than eighty
percent of the work of planning and implementation is being performed by this cadre
alone.
In present day scenario government has a very significant role to play in the
development process and promotion of appropriate conditions which would lend
dynamism to the state effort. Role of government today is not confined to regulatory
administration alone as the focus has shifted to development administration. In a state
like Himachal that abounds in natural resources the state government is required to
ensure that administrative machinery is sensitive to dynamics of development and
responsive to socio economic aspiration of its citizens.
(c) Recruitment Procedure
i)
Entry age, qualification etc. for HIMACHAL PRADESH ADMINISTRATIVE SERVICES
ETC. EXAMINATION: After coming into existence, the H.P. Public Service Commission
first time conducted the Himachal Pradesh, Administrative Etc. Combined Competitive
Examination during the year 1973, for filling up various premier posts of State Services.
Thereafter the Commission conducts the examination every year
on receipt of
requisitions from various Departments of H.P. Government. The following posts are filled
in on the basis of this examination:
Sr.
No.
1
Name of the Post(s)
Pay-Scale
HAS Class-I (Gazetted)
Ordinary time scale Rs. 7880-13500 (plus

allowances sanctioned by the Government
from time to time)
HPS Class-I (Gazetted)
Ordinary time scale Rs. 7880-13500 (plus

allowance sanctioned by the Government
from time to time)
Block
Development
Officer
Class-I (Gazetted)
Rs.
7000-10980
(plus
allowances
sanctioned by the Government from time

to time)
District Panchayat Officer Class-
Rs. 7000-10980 (plus allowances)
II (Gazetted)
5
Principal,
Training
Panchayati
Institute.
Raj
Panchayat
59
Department,Class-II (Gazetted)
District Treasury Officer Class-I
(Gazetted)
7
District
Food
&
Supplies
Controller Class-I (Gazetted)

8
Tehsildar Class-I (Gazetted)
Excixe & Taxation Officer Class-I
Rs. 7000-10910 (plus allowances).
(Gazetted)
10
District
Employment
Officer
Welfare-cum-
Class-II (Gazetted)
11
District
Probationary
Officer
Class-II
(Gazetted)
12
Assistant
operative
Registrar,
Societies
Co-
Rs.7000-10980 (plus allowances)
Class-Ii
(Gazetted)
13
Assistant Controller, Weights &
Measure Class-II (Gazetted)

The above vacancies of this service are filled up from all the eligible and desirous Indian
citizens for admission to the Himachal Pradesh Administrative Services Etc. Combined
Competitive (Preliminary) Examination followed by (Main) written examination and vivavoce test for recruitment to the posts/services to be filled in on the basis of H.P.A.S. Etc.
Combined Competitive Examination.
Examination Pattern:
Initially, a (Preliminary) objective type of examination consisting of 2 papers based on
multiple choice questions, on the following pattern is held:Paper-I
General Studies
(Objective type 150 questions consisting of 1 mark each question). Duration of the paper
is three hours.
Paper-II
Optional Paper
60
(There are 150 questions of one mark each for a total of 150 marks. Optional Paper is
selected by the candidates out of 22 Optional Subjects given in the syllabus of Preliminary
examination). The duration of the paper is three hours.
Earlier the main written examination consisting of 8 papers (4 compulsory and 4 optional)
was conducted and approximately three times candidates of the number of vacancies
were called for viva-voce in order of merit of written examination. Final selection of
candidates was based on their combined merit in written examination and vive-voce.
Due to abnormal increase in number of candidates for this examination, the Commission
has introduced Preliminary examination before the main written examination during the
year 1999 on the pattern of Civil Services Preliminary examination conducted
by the
Union Public Service Commission and also in view of HPAS Rules 1973 amended from
time to time.
The Preliminary examination is an objective type examination consisting of two papers
based on multiple choice questions. The number of candidates to be called for Main
written examination after the Preliminary examination, on the basis of marks obtained by
them, remains 20 times of the total number of vacancies to be filled in on the basis of
HAS examination. The candidates declared qualified in the examination are entitled for
admission to the main written examination, if otherwise found eligible. The candidates
declared qualified are required to apply afresh on a detailed prescribed application form
alongwith attested copies of documents in support of their claims made in the application
form of preliminary examination. The candidates who are admitted for the main written
examination can opt any two subjects out of the Optional Subjects.
A candidate has to specify in his application form the Optional Subject he desires to take.
The number of candidates called for (Main) written examination is about 20 times of the
total number of vacancies to be filled in on the basis of aforementioned examination. The
candidates declared qualified in the (Preliminary) examination are entitled for admission
to the (Main) written examination, if otherwise found eligible.
Preconditions:
61
(i)
The number of vacancies in the services/posts which relate to the particular year
are included for the purpose of selection of candidates on the basis of aforesaid
examination.
(ii)
H P Public Service Commission is at its discretion to call the number of
candidates for viva-voce test after the (Main) written examination on the basis of marks
obtained by them in the (Main) examination only. Generally, this number is three times
the total number of vacancies.
(iii)
Marks obtained by the candidates in the Preliminary examination are not counted
for the purpose of final order of merit. However, marks obtained in the (Main)
examination as well as in the viva-voce test determine their final merit to various
posts/services to be filled in on the basis of aforesaid examination. The option exercised
by the candidates is taken into consideration while determining their order of merit for
selection to the various posts/services.
ELIGIBILITY CRITERIA:
(a)
A candidate must possess a Bachelor's Degree or its equivalent from a

recognized University.
(b)
A candidate must have attained the age of 21 years and must not have
attained the age of 35 years on the first January, 2006 , meaning thereby
that candidates born on or after 02-01-1985 are underage whereas
applicants born on or before 01-01-1971 are overage.
(c)
Knowledge of customs, manners and dialects of Himachal Pradesh and

suitability for appointment in the peculiar conditions prevailing in the
Pradesh is a desirable qualification.
(d)
A candidate must be a citizen of India.
Relaxations:
1.
The upper age limit is relaxable by five years for candidates belonging to the
Scheduled Castes/ Scheduled Tribes/ Other Backward Classes and Children/Grand

Children of Freedom Fighters of Himachal Pradesh as declared by the Govt. from time to
time. Age relaxation is also available to Ex-servicemen candidates of H.P. as per
provisions in Rules/ Instructions of H.P. Govt.
2.
The upper age limit is also relaxable upto 42 years in case of those Govt. servants
holding substantive/officiating appointment under the H.P. Govt. including the H.P. High
62
Court
or
any
Court
subordinate
thereto
and
the
employees
of
Public
Sector
Undertakings/Corporations /Autonomous Bodies which are wholly or substantially owned

or controlled by the H.P. Govt. provided such employees are in continuous service
whether permanent or officiating under the H.P. Govt.
Scheme of Examination:
After the (Main) written examination, three times candidates of the number
of vacancies are called for interview in order of merit. Final selection is made on the basis
of combined merit in written examination, viva-voce test and written preference of
candidates for various available posts.
The candidates are not allowed to offer the following combination of subjects:
(a)
Mathematics and Statistics;
(b)
Of the Engineering subjects, viz. Mechanical Engineering, Electrical Engineering

and Civil Engineering, not more than one subject,
(c)
Of Language subjects, viz. Hindi, Sanskrit, Urdu and English Literature, not
more than one subject;
(d)
Agriculture, AND Animal Husbandry and Veterinary Science;
(e)
Political Science, International Relations AND Public Administration;
(f)
Commerce & Accountancy AND Management;
(g)
Sociology and Anthropology;
(h)
Management AND Public Administration;
(i)
Horticulture AND Forestry;
(j)
Horticulture, Agriculture AND Animal Husbandry & Veterinary Science;
(k)
Forestry, Agriculture AND Animal Husbandry & Veterinary Science.
In all, the candidates are required to appear in 8 papers for the main written examination
i.e. 4 compulsory and 4 optional.
ii)
Review of performance:
There is no defined or set procedure to review the performance of the officers belonging
to HP Administrative Services. They only tool used for this mechanism is annual
confidential report.
The annual confidential report is considered to be a confidential
document with single way traffic where all the contents are known to the ACR writing
63
officer. For the review of performance no targets are ever fixed nor any mid term review
of such target is taken at any level. Even the remarks made in the ACRs are known to the
concerned officer. For the performance appraisal a mechanism needs to be worked out for
each work separately in each department with overall common parameters with regard to
mid-terms evaluation there is total lapse since no short term or long terms issues are
targeted neither there is an administrative or political will for mid-term evaluation.
iii)
Quality Improvement
The aspects of quality improvement of the officers belonging to this
category are also like a rudder less shape. Except for the induction training, there is no
training plan for the officers at regular intervals for their skills upgradation and capacity
building. With regard to train neither there is an administrative or political will to give
training to these officers at different level of their career, however, training is provided to
those persons who are proceed as less utility officers. Whatsoever limited exposure in the
name of training is available i.e. limited to training in State Institutions or at the most
inter-state institutions? There has never been a practice to given an exposure to the
working style of private institutions.
Training is one of the most effective and
trusted tools for performance enhancement as well as up-gradation of knowledge and

skills of personnel. Effective training leads to better organizational motivation and moral
that in turn results in enhanced performance and positive attitude. Unfortunately till now
HAS cadre is neglected as far as training/human resources development is concerned. As
of now we have poorly planned and miserably managed induction training and practically
no in-service training. There should be a systematic in service training and training
process should continue throughout the career as per the needs with the following
objectives:
a)
Keeping up-to-date and enhancing knowledge and skill needed for better
performance of the individuals. Such training should also be job specific so that
the organization and department also benefits.
b)
Promoting
better
understanding
of
professional
requirement
as
well
as
sensitization to professional, socio economic and political environment in which

work is done.
c)
Brining about right attitudinal orientation.
d)
Keeping HAS cadre officers in touch with latest technology and concepts
iv)
Promotions
64
In most organizations, whether civil or military or private, promotional avenues

are provided. In Himachal Pradesh too Assured Career Progression Scheme is in vogue
even for class III and class IV employees. It is unfortunate that for the premier service of
the state there are no promotional avenues. Even after 14 years of service, if officer
doesnt enter IAS due to age restriction or otherwise, he/she is allowed to stagnate till
he/she retires. After 14 years of service there is no further scale. Thus the officer
continues to be in the scale of 14,300-18,600 till retirement. After starting with similar
scales, both IAS and HAS almost move together up to the service of 4 years but after 8
years IAS officers take off and career progression continues till they retire but in case of
HAS officer, concept of career progression comes to an end after 9 years of service and
stagnation sets in. Hence HAS cadre should have similar stages of pay scale i.e. 4 years,
8 years, 11 years, 14 years and 22 years.
v)
Motivation:
Motivation in ones ability is the key to success. The performance of each civil
servant depends on his motivation towards his duties. There is no system provailing in
the State government to enhance the motivation of the civil servants. A dedicated worker
is hardly recognized or a work shirker is hardly punished. There is no responsibility and
accountability attached directly, if it is there, it is not monitored unbiased. To enhance the
motivation, there should be system of making appraisals and such appraisals are to be
undertaken on realistic grounds. Such a system, if it is devised, should have a mechanism
for punishment as well as for rewards. In this mechanism, the targets should be fixed by
individual at the time of his posting and an assessment of such targets may be taken up
by him annually. Such an appraisal drawn by the individual may be reviewed by his next
officer and may be made basis for incentives/ punishment.
Lateral Entry:The issues of lateral entry into there services is a welcome gesture. In HPAS, HPPS and
HPFS, the present tendency is one who fits the bill, suits the jobs. There are many
streams for lateral entry into HPAS services. In case of HPFS and HPPS, it is restricted to
the incumbents of the respective departments only. HPAS has lateral entry from the
cadres of Tehsildars, BDO,s, Project Officers (DRDAs), Secretariat services, etc.
Easy Exist :
65
The systems of easy exist earlier prevailed in the state was in corporate sector in
the name of Golden Hand Shake Scheme, the Voluntary Retirement Scheme. For the
state Civil Services, no such scheme prevails, however, earlier, there was a provision of
Five years leave in which an employee/ civil servant can remain on continuous
leave/absence for five years with the liberty to join same service also, but of late in 2006,
the State Govt. has scrapped this scheme. It actual terms if meant that the government
is not in favour to let people go out, but believes in kicking out the people. The option of
easy exit should always be there and needs to be further encouraged. Such and option
should be available to civil servant at least after rendering a service of 25 years, one
should be given at least one next promotion due to him on honorary basis as is done in
Indian Army. This effort will facilitate induction of fresh blood into the services on one
hand and would also provide job opportunities to unemployed masses on the other. While
in taking such and exercise, a prudent watch is also required to be undertaken that the
most useful persons in an organization may not leave the organization because in past, it
has been observed that while undertaking such exercises, the officers most useful to the
organization, left the organization.
Security of
Tenure:
The security of tenure has been used in public offices as a measure for
accountability and transparency. The less the security of tenure, better it would be there
should be some cap on postings on certain posts and one person should not be posted
again on such posts. The over-stay of one officer to one post may lead to his supremacy
which can lead to corruption also. The used to curb such practices should be satiated by
putting an appropriate mechanism with suitable checks and balances by higher
bureaucracy like chief secretary, Lokayukta etc. to be given more teeth. Though some
institutional mechanism is there, but it needs to be further strengthened.
Removal of Dead Woods:
Although there is existence of dead woods in the civil services, yet their removal is not
any easy task due the existing departmental procedures, rules and regulations. Moreover,
such removals are subject to the discretion of the government. As a matter of principle,
such discretion should not be there since discretion in popular governments which rely on
vote banks is generally abused and misused. To faster the Good Governance, discretions
of all kinds should be eliminate. This will also establish the faith in government as well as
law of natural justice.
66
Integrity Evaluation:
Integrity evaluation needs to be established not through the mechanism of Annual
Confidential reports but with subjective assessment. To incorporate such assessment, an
independent watch is required to be kept. The mechanism for objective criteria is to be
developed and this should not to be with the Police Department, neither with the
surveillance as a watch dog by some government agency. This should be done by some
independent agency or some ombudsman which should not be under the control of the
state Government.
Assessment Of Staff Strength:
The responsibility of assessment of staff strength should be assigned to Administrative
Reforms Department. There is no mechanism available with the state government to
undertake this assignment indiscriminately. A transparent system is required to assess
this activity. Administrative Reforms are neither a potential agenda nor it should be such
a reassessment. Such a re-assessment to be done by that agency which does not have its
own vest interests in this agenda. This should be co-related with the section (4) of the
Right to Information Act to establish transparency in the system. Staff Need Analysis is
required to be done vigorously.
Surplus Staff Identification
The first appointment letter of each civil servant may offer a clause for shifting to any
department with an omnibus dictat and
overall
seniority of employees
may be
governed on the basis of seniority of batches. The identification of surplus staff is a

generous task which should be performed by every department. In this state of
Himachal Pradesh, a
been shifted
Surplus Staff Pool has been generated
from departments with
assessment will be made vigorous
surplus to
and
departments
employees
have
in need. This
if such an assessment is made public as per the
provisions of Right to Information Act.
Training Policy
As mentioned in the other part of this chapters that there is no Training Policy in this
State. Training always leads to up-gradation of skills, learning and knowledge of a civil
servant.
Exposure to inter or intra State Training Institutions provide an opportunity
67
to make a comparison of progress achieved in different fields on one hand and keeps
one aware of the latest developments in the spheres of technology, new concepts and
thoughts etc on the other. The organized
state civil services
do receive an induction
training but their up-gradation at regular intervals is in doldrums. Training is required

at suitable for all jobs. It should be a pre decided motto of the government that each
and every civil servant including the cutting edge level staff should get two trainings
i.e., one at the time
at an interval of
of joining the service and second at the time of promotion or
five years. The training plan drawn by the central secretariat for central
secretariat services is quite sturdy in this regard.
A copy of this training plan is attached
at Appendix-2-I. Such a plan is suggested to be adopted by each department of the

State.
Severance Package
With the paradigm shift in social & economic environment, the civil services
needs
to be
imparted
transformed in a professional
training
and
knowledge
for
their
manner.
gainful
The civil servants should be

employment
elsewhere
also.
Government sector may come up with such a trained and skilled manpower which
has a better employability and can be
supplied anywhere. The government should
have a power to deploy them gainfully anywhere.
II.
CASE STUDY OF TWO SERVICES

In this chapter,
an effort has been made to study and analyse two state
services viz (i) Subordinate Account Services (Gazetted) (ii) State Secretariat
Services
(Non-Gazetted) and to attempt to address the need of a (iii) Human Resources

Development Department. While analyzing the two services, it has been endeavoured to
focus on the following:
a)
Recruitment
b)
Qualification
c)
Posting-Job Description
d)
Transfer
e)
Performance Evaluation
f)
Promotion/career progression
g)
Training- upgradation of skills.
h)
Social and Economic Objectives and Outcomes.
68
These aspects have been elaborated separately for the both services.
1.
STATE SECRETARIAT SERVICES
(NON-GAZETTED):
As per the provisions of Rule 2 of the business of the Government of

Himachal Pradesh (Allocation) Rules 1971, the entire business of the Government is
transacted in the departments of Himachal Pradesh, specified in the schedule and is
classified and distributed between these departments as laid down therein. The Rules of
Business provided for a permanent secretariat divided into departments, each with the
designated set of activities and clearly defined procedure. This section is primarily meant
to provide support to the Council of Ministers in discharging its constitutional obligations
and in taking various decisions convening the welfare of the State and its people.
a) Classification: - The State Secretariat Administration Services (Non-Gazetted) could
be divided into three main categories:
i) Class-IV Staff.
ii) Personal Staff.
iii) Class-III
i) Class-IV Staff:- Under this category, there are a number of classifications
viz.
Jamadars (Senior Level Peons), Peons, Frash (Dusting Official), Daftari, Sweepers and
Chowkidars etc. Their main job is to work as process servers and perform odd jobs.
ii) Personal Staff:- This category includes Steno-Typist, Junior Scale Stenographer,
Senior Scale Stenographers and Personal Assistant. Their job relates to providing
secretarial support to officers
whom they are attached with.
iii) Class-III Staff: - This is one of the most important and the largest class of services
in the Secretariat. On one hand, it comprises of the Gate Keepers, Drivers and it has
Ministerial staff, the major service delivering instruments viz. Clerk, Junior Assistant,
Senior Assistant, Ex-Cadre Superintendent and Superintendent (Regular) on the other.
The following text concentrates on
this specific category defined as Ministerial Staff.
As on 31-3-2007, the Himachal Pradesh Secretariat Administration Services (Class-III,

Non-Gazetted) cadre has following posts
Sr.
Designation of Posts
and pay scales-
Pay Scale
69
Initial Start*/
No. of
No.
Secretarial
posts.
Allowance**
1.
Clerk
Rs. 3120-5160
Rs. 3220*
2.
Junior Assistant
Rs.4400-7000
3.
Senior Assistant
Rs.5800-9200
Rs. 240**
4.
Superintendent
Rs.6400-10640
Rs. 300**
312
518
109
b) Recruitment:- Proper selection and recruitment of new employees is a pre-requisite

for the development of an effective work force in any organisation. Recruitment is the
process of finding suitable potential employees and motivating them to apply for the jobs
in the organisation.
i) Clerks:-The entry point post for this ministerial service in the Himachal Pradesh
Secretariat is Clerk. In pre 1988 era, the posts of clerks were filled up by selecting
suitable candidates working in different departments/directorates in state subject to the
condition that they have completed 5 years of service in their respective departments.
The total cadre strength is 314 posts and the recruitment mode is 90 % by direct
Recruitment and 10 % by promotion amongst the
peons who have at least passed
Matriculation examination. In the year 1988, a sea change came into this system when
these posts were referred to Himachal Pradesh Public Service Commission which took a
competitive examination and recommended candidates on the basis of state level merit
list prepared. Thereafter this process continued over the years till the time when
government imposed a ban on filling up of direct posts. At this juncture, the previous
practice of taking candidates on deputation from different directorates (with 5 years
qualifying service) came into force. In the decade of nineties, Subordinate Service
Selection Board for recruitment of personnel to non-gazetted services was constituted
and thereafter these posts were referred to Himachal Pradesh Subordinate Service
Selection Board. The whole strength of Clerical cadre is divided in the ratio of 50:50 and
the candidates are designated as Clerks and Junior Assistants, respectively. A copy of the
relevant rules has been placed at Appendix-2-II.
ii) Senior Assistant:- The incumbents designated as Junior Assistants are promoted as
Senior Assistants who are the main tools of processing the matters on the file. As per the
existing Recruitment & Promotion Rules, there is a provision
for filling up these posts
100 % by promotion amongst the common clerical cadre of Clerks and Junior Assistants
70
with 10 years regular or regular combined with continuous ad hoc service in the grade. A
copy of the relevant rules has been placed at Appendix- 2-III.
Ex-Cadre Superintendent: This category is simply re-designation of those Senior
Assistants who have completed 17 years of service in Secretariat. The total cadre
strength of 518 posts in the Senior Assistant category is further divided in to three
sections viz. top most 109 Senior Assistants in the seniority list are designated as Ex
Cadre Superintendents and a Secretarial Allowance of Rs. 300/- per month is given to
them. The next 109 candidates in the same seniority lists are also designated as Ex Cadre
Superintendents but they are not given any type of pecuniary benefits making it as a
notional promotion. The job assignment and file dealing remains on the same pattern as
was during the designation of Senior Assistant. Not even any pecuniary benefits are
available to them.
iii) Superintendent: - This is a supervisory post class-II non gazetted post which is
filled up 100 % by promotion amongst the
Senior Assistants who possess six years
regular service or regular combined with continuous ad hoc . The work of the
Superintendent relates to looking after/supervising the job of 3/4 Assistants and Clerks in
one branch. This cadre is also stepping stone for the gazetted category of Section Officer.
A copy of the relevant rules has been placed at Appendix-2-IV.
c) QUALIFICATIONS:
The question of qualifications required to public employees is of enormous
importance, as on it rests largely the general efficiency of the public services. The
qualifications required for them may be divided into two parts-general and special.
General qualifications apply to all public employees; and are, thus of universal
application. They relate to civic status, domicile, sex and age. Special qualifications deal
with education, experience and technical knowledge and personal status. In addition to
aforesaid general qualifications, special qualifications mention that at the entry point level
i.e. clerk grade, there is a requirement of minimum educational qualification of
Matriculation which was later revised to 2nd division matriculation or 10+2 or its
equivalent.
For proficiency standards, a minimum speed of 30 words per minute in
English typewriting or 25 words per minute in Hindi typewriting in required which is to be

achieved with in a period of six months after the date of appointment. The provisions for
10 % promotion post are: Class IV who are Matric (English) or Hindi Rattan and also
possess five years regular service. However, it has also been provided that those clerks
71
who have been promoted from amongst the Class-IV employees or appointed on
compassionate grounds having educational qualification Matric pass or Matric in English
only and Hindi Rattan pass at the time of such promotion/appointment shall not be
promoted to the post of Senior Assistant unless they possess the essential qualification
viz. Matric Second Division or 10+2 pass as prescribed for direct recruitment.
At all the above levels, educational qualifications are not at all insisted
upon. However, at the level of Section Officer, one is required to at least qualify the
departmental examination to become eligible for the post of Under Secretary if they have
not attained the age of 55 years. There is an exemption in the rules to qualify these
departmental examinations, if one has attained the age of 55 years.
d) JOB DESCRIPTION:The work, functions, duties and responsibilities of staff
when posted on particular assignments related to particular sphere are different and
they are required to acquire knowledge related to that particular sphere of work. Brief
details of such particular
(1)
are given below:-
Central Registry, Record, Control Room/Emergency Services, Despatch,

EPABX Exchange Sections:
In some cases, keeping in view the importance of the matter the staff
when posted in these sections may have to supervise or in certain cases actually
perform duties of writing notes, drafting adding drafts to files, replying to specific
correspondence, flagging, referencing and placement of drafts under the guidance of
the supervisors of these sections. Majority of the staff posted in these sections
consists of clerks, excepting the record and control room/Emergency services, where
staff are also posted, who may have to perform such duties and undertake similar
work as is required to be handled in these sections.
(2)Budget and other Sections of Finance Department
The role of the Finance Department is most important as all
Departments are required to consult it in the matters specified in rules 9, 14 and 34 of

the Rules of Business of the Govt. of Himachal Pradesh,1971.
Assistants when posted in Finance Department have to deal with the
following type of work and are also required to
, figures etc.:STRATEGIC REVIEW OF MACHINERY OF GOVERNMENT
72
write
notes, drafts, compilation of data
(i)
Preparation
of
budget
i.e.
Annual
Financial
Statement
showing
separately the expenditure charged upon the Consolidated Fund of the

state and other expenditure to be made from the Consolidated Fund of
the State, Demands for Grants, Appropriation Bill, Supplementary
Grants, Additional or Excess, Grants and Grants in Advance;
(ii)
To scrutinize and process departmental proposals in accordance with

the provisions of the Budget Manual and Himachal Pradesh Financial
Rules Vol. I & II;
(iii)
To scrutinize the proposals for new items of receipt and expenditure

,Really New Schemes , and technically new schemes for inclusion in
Budget Estimates;
(iv)
To help exercise checks on expenditure, and help formulate taxation

proposals;
(v)
To assist in drafting delegation of financial powers and formulation of

guidelines to regulate receipts and expenditure;
(vi)
To process data and prepare necessary information regarding Estimates

Committee, Public Accounts Committee and Committee on Public
Undertakings;
(vii)
To scrutinize proposals for additional Grants and Re-appropriations;
(viii)
To process and scrutinize proposals for expenditure, economy in

expenditure, loans and advances, disposal of Governments movable
and immovable property;
(ix)
To initiate examination into all aspects related to pay scales and

allowances of all Government servants;
(x)
To
process
cases
of
sanction
of
grants,
loans
and
advances,
corporations, autonomous institutions and Government Guarantee etc.

to Government Boards
(xi)
To process cases for resource mobilisation, ensure receipt of central

grants;
(xii)
To process cases of clarification and amendments in relation to

Fundamental Rules, Supplementary Rules, T.A. Rules, Leave Rules and
to examine service conditions of Govt. Servants in relation to pay,
allowances, fixation of pay, pension, gratuity, leave, Retirement, date of
birth as referred to by various departments etc.;
73
(xiii)
To Deal with all administrative, personnel and financial matters in

relation to the control over the Treasuries/Sub-Treasuries and liaison
with Banks;
(xiv)
Declaration of Heads of Departments and in certain cases Heads of

offices and Drawing and Disbursing officers;
(xv)
Fixation of rates of common categories of contingent paid and daily

wage workers;
(xvi)
To scrutinize proposals for creation of new posts, continuance of

temporary posts and conversion of temporary posts into permanent
ones; contingent paid ,work-charged posts and daily waged posts
including conversion of such posts into regular ones;
(xvii)
To deal with matters related to Lotteries, Small Savings, Audit Reports,

Local Fund Audit financial irregularities etc.
(3)Bills Section and Cash Section

All monetary transactions related to Secretariat Services are dealt
with in the Bills Section and Cash Section, except the control of vehicles and drivers
which is the subject of the General Administration Department. While posted in these
sections, the staff have to deal with mainly the following matters:(i)
To maintain record related to periodical increments of all personnel of

Secretariat,
exact dates of increments for preparing pay bills, keeping
in view the leave sanctioned/absence etc.;

(ii)
To maintain proper records/registers for all types of regular or other

recoveries for ensuring the same while preparing pay bills;
(iii)
To maintain complete record of all sanctioned posts and to ensure that

drawl of salary is actually within the sanctioned number of posts.
(iv)
To ensure that the expenditure related to establishment is charged to

the correct head of account and revenue is credited to correct receipt
head of account;
(v)
To prepare monthly pay bills, manually on forms or through data entry

in computers including schedules for recoveries,
keeping in view the
salary slips {issued by the Joint Controller (Finance & Accounts), Deptt
of Personnel for Class I Officers } and the dates of increments,
recoveries etc.
74
(vi)
To prepare other bills, such as T.A. bills, medical re-imbursement bills ,

loans and Advances etc. after making entries about the same in the
relevant records/registers to avoid double payments;
(vii)
To prepare the arrear pay bills of establishment and record notes on the
relevant pay bills about the arrear having been claimed and rates at
which revised payment is being made under proper attestation;
(viii)
To enter each bill in the bills register and complete all entries
subsequent there to. The bills register has to be in form TR 28-A. All
entries in this register need be made right from the stage of preparation
of the bill to the disbursement of the amount. It has also to be ensured
that the details of the un-disbursed amount are to be worked out at the
end of the 3rd month of the withdrawal of the amount and adjusted by
short drawl in some other bill, details of which are to be given.
(ix)
To obtain monthly deposit and withdrawal statements from the Treasury

and to compare the same with the bills register and further to sort out
discrepancies.
(x)
To assist in maintaining budgetary control and reconcile receipt and

expenditure figures with the office of the Accountant General ,Himachal
Pradesh;
(xi)
To deposit all receipts into the Treasury/Bank;
(xii)
To Withdraw payments of all bills from the banks after getting the same
passed from the Treasury and to make payments to concerned
individuals against proper receipts;
(xiii)
To maintain the cash book, work out daily balances and details of undisbursed amounts at the end of the month under proper attestation;
and
(xiv)
To maintain account of permanent advance (imprest) and to prepare

bills for payments made out of permanent advance.
(4) Stores and Stationery Section (Receipts & Issues Section)
75
This section is responsible for procuring furniture, fixtures, storage, stationery and
brittle articles, besides maintenance of buildings, and water /electric supply. The staff
posted in these sections have to:(i)
Oversee requirements of furniture fixtures and store articles and to take steps
for making, good the short-fall in accordance with rules.
(ii)
Obtain stationery articles from Controller of Printing & Stationery.
(iii)
Make local purchase of stationery and brittle articles for which Non Availability
Certificate is issued by the Controller, Printing & Stationery after observing
proper procedure;
(iv)
Maintain proper record of all furniture, fixtures and stores in the stock register
on the prescribed from with updated entries of total quantity;
(v)
Maintain room wise inventory of stock articles;
(vi)
Maintain
updated account of furniture and fixture articles in working rooms
and in stores and to tally the same with the stock register totals item-wise;
(vii)
Get the physical verification of stock/stores conducted by the senior authorized

officer at least once a year;
(viii)
Issue stationery articles to sections etc. against proper receipt and according
to slab-schedule and actual needs and them make entries in the stationery
register and also to maintain record of balances;
(ix)
Get the serviceable stores/stock articles repaired;
(x)
Prepare periodically, lists of unserviceable stores, get the same inspected by

the committee and to arrange auction thereof, thereafter to complete the
entries in the stock register and deposit the sale proceeds in to Govt. Treasury/
Bank;
(xi)
Arrange for heating arrangements during winter, purchase steam coal/charcoal

and arrange for coal boys, if needed; (State Government has put a ban on use
of coal in Government offices and hence procurement and management of coal
is no more a function of this section)
(xii)
Assess over-all requirement of accommodation, allotment of accommodation

and seating arrangements;
(xiii)
Furnish rooms;
(xiv)
See to the maintenance, up-keep, repair, cleanliness of the building;
(xv)
Arrange electricity, water and sanitary provisions.
(5) Establishment Sections

76
These sections are responsible for dealing with creation/abolition of

posts and personnel matters of all officers/officials. The staff when posted in such
sections have to :(i)
Maintain establishment check register in terms of sanctioned posts for the entire
establishment
being
handled
by
the
Department
/section
separately
for
permanent and temporary posts in the following format:(a)
Register of permanent sanctioned posts
(b)
Register of temporary sanctioned post
(ii)
Prepare and maintain register of members of each cadre.
(iii)
formulate Recruitment & Promotion Rules for all categories controlled by the
Department / section;
(iv)
Maintain Index Cards on the proforma as provided in the Transfer Policy;
(v)
Assist in cadre management in the matter of fixation of cadre strength; creation,

continuance, conversion and abolition of posts, recruitments, postings and
transfers; fixation of pay, probation , efficiency bar, proficiency increments
,senior and selection scales, deputation and foreign service matters;
(vi)
Maintain
service
books
including
leave
accounts
to
determine
dates
of
increments;
(vii)
Process
pre-mature
and
voluntary
retirement
cases,
employment
on
compassionate ground;
(viii)
Deal with matters relating to promotions, confirmations, conduct and disciplinary

matters;
(ix)
Prepare retirement cases including pension, gratuity, leave encashment etc.
(x)
Scrutinise, process and sanction leave, loans, advances, General Provident Fund
advances, withdrawals; and
(xi)
Deal in particular with cases under various rules including types of cases
mentioned below.
(a)
Fundamental Rules
(1) Definitions of duty, fee, honorarium, foreign service, lien, local fund, pay,
personal pay, special pay, presumptive pay, time scale pay, identical time
scale and same time scale (F.R. 9).
77
(2) Whole-time of a Govt. servant at the disposal of Govt. (FR
11);
Suspension/Termination of lien (FR 14-A, 14-B); transfer to a lower post (FR

15); payment of salary form day of assumption of charge absence from duty
and consequences (FR 17, 17-A), no leave for period exceeding five years (FR
18); fixation of pay, Revision of pay, drawl of increment, Efficiency Bar (FR
19-25, 30 , 31, 35): service counts for duty (FR 26): Regulation of pay in
event of imposition of penalties relating to reversion to a lower post / lower
stage in a scale / withholding of increments (FR 28, 29, 29-A):acceptance of
fee / honorarium (FR 46, 46-A): Combination of appointments (FR 49);
Deputation out of
India (FR 50-51); payment of pay and allowance to a
Govt. servant under suspension (FR 53); Reinstatement after imposition

major penalty of dismissal, removal or Compulsory retirement (FR 54 and 54A); Reinstatement after suspension (FR 54-B); Retirement age (FR 56);
Foreign services provisions ( FR 109-121).
(b)
Himachal Pradesh Civil Services (Pre-mature Retirement) Rules , 1976

These rules have been framed by the State Govt. to regulate per-mature
retirement of Govt. servants on completion of 20/30 years of service or 45/50 or
55 years of age by the Govt. servants themselves or by the Govt. for matters
covered under these rules, the provisions contained in F.Rs. or C.C.S. (Pension)
Rules will not be applicable.
(c)
C.C.S.(Leave) Rules, 1972

Definitions (Rule 3); No right to leave (Rule 7);Effect on leave in case of
dismissal, removal / resignation (Rule 9); Commutation of leave (Rule 10);
Maximum absence (Rule 12); Acceptance of service / employment while on
leave (Rule 13); Leave account-grant of leave, recall from leave (Rule 14-25);
Kinds of leave due and admissible (Rules 26-49); Study leave (Rules 50-63);
(d)
SUPPLEMENTARY RULES
Drawing of compensatory allowance, House Rent allowance (Rules 5, 7, 7A, 7-B, 7-C); acceptance, retention and deposit of part of fee in Government
78
Treasury (Rules 9 to 12); For T.A. Rules the Rules/Rates issued by Himachal
Pradesh Government Finance Department may be seen.
(e)
C.C.S. (Joining Time) Rules, 1979

Admissibility and extent (Rule 4), Joining time pay (Rule 7).
(f)
CCS(Conduct) and CCS(Classification, Control and Appeal) Rules.

As explained in relevant rules governing the conduct.
(g)
CCS(Pension)Rules, 1972
Definitions (Rule 3), Pension subject to future good conduct (Rule 8); Governor
can
withhold/withdraw
pension-circumstances
explained
(Rule
9);
Employment/practice after retirement (Rules 10 to 12); Qualifying service (Rules

13-32); Emoluments and average emoluments (Rule 33,34); Classes of pension
(Rules 35-41); Regulation/determination of pension (Rules 49-55); Preparation,
submission of pension papers, provisional pension and non-release of gratuity in
case of departmental or judicial proceedings; Recovery from gratuity (Rules 5673).
(h)
Other Rules
The other rules to be studied and applied are:i)
Himachal Pradesh Departmental Examination Rules, 1976 as amended;
ii)
Himachal Pradesh Civil Seva Bharti (Adhiktam Ayu Seema) Rules, 1980;
iii)
Himachal Pradesh Government Civil Services (Declaration of Selection or

non-Selection posts) Rules, 1978, as amended from time to time;
(6)
iv)
Himachal Pradesh Financial Rules, Vol. I&II;
v)
CCS (General Provident Fund) Rules;
vi)
Leave Travel Concession Rules.
Offices of the Governor, Chief Minister, Ministers, Chief Secretary and
Secretaries.
79
These are very important offices, where utmost secrecy is required to be

maintained. The work is also of urgent nature in these offices. The Assistants when
posted in these offices perform the following duties:i)
Diary, Despatch, Type Work, including issuing receipts for communications

received;
ii)
Maintenance of register for Important Communications including those

received from VIPs.;
iii)
Maintenance of files;
iv)
Follow up action on important letters and other communications including

issue of reminders;
v)
Maintenance of Casual Leave Account of the entire staff posted in the

office;
vi)
Procuring stationery and store articles for the office as per the requirement
vii)
Attending to the telephone calls; etc.
(7) Reception
From the public contact point of view, the Reception is an important unit
of the Secretariat. The behaviour of the staff posted in reception projects the image of
the Government. Assistants posted at the reception have to perform the following
duties:(i)
Receive all visitors to the secretariat at the Reception Hall in a

courteous and polite manner;
(ii)
Enquire politely from the visitor as to whom would one like to meet/
call on and whether one has prior appointment and if so to contact the
officer concerned for confirmation. On confirmation the visitor is issued
the entry pass and properly guided regarding the location of the office
of the officer, where one has to go;
(iii)
Politely advise the visitors to be seated where they have to wait till the
issue of general passes;
(iv)
Call the official to the reception in cases where a relative/friend wants

to meet the official, through local telephone or if necessary through a
class-IV employee posted in the reception;
80
(v)
Attend to the telephones installed in the reception;
(vi)
Advise the visitors to contact the concerned officers/officials through the

other phone installed in the reception, if they so wish;
(vii)
Issue passes to the visitors in order of their arrival in the reception

room and in accordance with the guide-lines issued from time to time
and to enter all necessary particulars of the visitors with their complete
address in the visitors register (or computer in case of a computerized
pass issue system), besides obtaining their Signatures on the register.
(8) Sections dealing with Corporations, Boards etc.

Various
Semi-Government
Institutions,
Universities
Boards,
Corporations etc. have been established in Himachal Pradesh and their cases are
processed at Government level in the Secretariat in the respective Departments. Similar
institutions might be established in future as well. The staff working in the concerned
Departments are required to keep in view the following aspects while dealing cases of
such institutions:i) To study the Acts under which the institution has been set up and to study the articles
of Association, Bye-laws and Rules of the institution for correct appreciation and
consideration of proposals;
ii)
To
see
that
the
University,
Corporations,
Board
etc.
seek
Government
sanction/approval/concurrence in all cases as required under the Articles of Association,

Bye-laws and Rules etc.;
iii) To help draft Articles of Association, Bye-laws, Rules for new institutions or
amendments/addition to Articles of Association, Bye-laws, Rules of existing institutions if
required to be issued at Government level. In cases where amendments/additions are to
be considered and approved by the Management Board, specific committee/Council etc.
or Board of Directors, then to scrutinize the proposal for the assistance of the
Government representative on the Board/committee/Council etc.;
iv) To see that the institution sends information on all matters as required under the
Articles of Association, Bye-laws and Rules etc.;
81
v) To submit cases for the constitution/reconstitution of Boards, Board of Directors and

appointment of various functionaries under such institutions, powers for which have been
vested in the Government under statutory provisions;
vi) To scrutinise proposals for formulation of service Rules/ Bye-laws and other matters
included in the agenda of meetings of the Board of Directors/Committees/Council etc. for
the
assistance
of
the
Government
representative
on
the
Board
of
Directors/Committees/council etc;
vii) To scrutinise proposals for formulation of share-capital, subsidy, grants and loans and
advances and also to ensure payment of interest, dividend etc. and recoveries of loans
and advances;
viii) To scrutinise proposals for Government guarantee etc;
ix) To help prepare for the meetings of the Board/ committee/ council etc. and to take
follow up action;
x) To draft rules/instructions/orders wherever required under the provisions of the Act
and consult all concerned Departments under the orders and with the approval of
competent authorities;
xi) To process the case for laying the Rules framed under the act before the Legislative
Assembly if so required under the Act of other Rules;
xii) To attend to the observations of the committee on public undertakings, public
accounts committee, Audit paras etc. relating to these institutions.
(9) Sections dealing with Civil Works.
The Public Works, Irrigation & Public Health, Multipurpose Projects
and Power, Forests, Rural Development, Housing, Local Self Government and Town &
Country Planning Departments deal with various types of civil/capital works and the staff
82
posted in these Departments have to look after the following duties particularly in regard
to works:i) Scrutiny of proposals for undertaking new works for inclusion in the budget estimates.
This has to be done in accordance with the priorities approved by the Government and
the recommendations of the respective Heads of Departments;
ii) Forwarding of proposals of new works with the approval of the competent authority to
the Finance Department for inclusion in the budget;
iii) To convey list of new works included in the budget after passing of the Appropriation
Bill and vote on account to the respective Heads of Department for preparing detailed
estimates, drawings etc;
iv) To process cases for obtaining and conveying administrative approval and financial
sanction for new works as included in the budget and also for other works not included in
the budget if so desired by the competent authority and concurred in by the Finance
Department regarding other works not included in the budget for which administrative
approval and expenditure sanction has been conveyed, it has to be ensured that the
same are got included in the supplementary Budget/Grants;
v) To maintain works register in the prescribed format for ensuring monitoring progress
of execution of work and pace of expenditure.
vi) In case the works register has not been maintained for revised estimates for according
revised administrative approval and expenditure sanction,
to obtain and convey such
approvals;
vii) To help scrutinize at Govt. level the proposals for revised estimates for according
revised administrative approval and expenditures sanctions and to obtain and convey
such approvals;
viii) To monitor completion reports of works.
83
ix) To process proposals for acquisition/purchase of stores/material in accordance with

relevant rules and obtain and convey Government decisions/orders;
x) To ensure that technical sanctions of works are accorded by the appropriate competent
authorities in accordance with the standing delegation in Punjab Public Works Department
Code/Account code/Manual as applicable in Himachal Pradesh;
xi) To assist in all Assembly Business and matters relating to committees of the
legislature for questions relating to works;
(10) Sections dealing with Developmental and Social Schemes:
The Departments of Education, Health and Family Welfare, Ayurveda,
Agriculture, Horticulture, Food and Supplies, Public Works, Irrigation and Public Health,
Rural Development, Panchayati Raj, Social and Justice & Empowerment, Tourism,
Transport, Youth Services and Sports, etc. deal with developmental and social services.
The working of these departments have a direct public bearing and as such the staff
posted in these departments have important duties to perform, which amongst others
include:
Regular monitoring of implementation of the schemes, including centrally

sponsored schemes, by maintaining registers on suitable forms showing
overall targets for the year, month wise achievements and financial
expenditure, receipt of central assistance etc;
Scrutiny of proposals in accordance with budget provision for opening new

institutions, upgrading the existing ones, or providing new facilities, getting
them approved and to convey Government sanction for the same;
Ensuring that budget provision exists and sanctions for buildings, staff,
equipment, stores, machinery etc. are obtained and conveyed. Making
budget provisions, according sanctions for grants, subsidies and loans to
local bodies, Panchayati Raj and cooperative/corporate institutions etc.
Analysis of statistical data of progress of ongoing schemes or existing

institutions covered together with financial date of expenditure incurred;
Preparation and scrutiny of new schemes and processing of cases for

approval.
84
(11) Section dealing with Planning, Budgeting and Accounts.

In every department, there is work relating to preparation of Annual and
Five Year Plans and follow up work related to this. The staff posted in these Departments
have to deal with specific matters as under:(i)
To
help
formulate
five
year
and
annual
plan
documents
for
various
activities/services in accordance with the approved Government policy;

(ii)
To assist in preparing scheme-wise/service-wise proposals and to send with

proper justification in terms of aims, objects, targets etc. and after approval of
the plan allocation by the planning commission, to help work out specific
schematic budget provision in the budget of the state.
(iii)
To maintain scheme-wise data of aims, objects, targets, total outlay, annual

budget provision and monthly achievements of all plan schemes;
(iv)
To assist in monitoring of implementation of schemes, and analysis of the

short-falls.
e) TRANSFERS:
Transfers may be seen as an essential feature of the civil services. On one
hand, it provides an opportunity to deal with variety of jobs whereas on the other it works
as an integral mechanism for honesty and indiscrimination in public service. Himachal
Pradesh Secretariat Civil Services (Non-Gazetted) personnel are located in specific
branches and are placed within the Secretariat. The transfer among different branches of
Secretariat is one of the routine job and a common feature. The general policy declaration
specifies tenure of 3 years in one section.
The staff on their transfer from one section or office to an other cannot just leave the
section or office and join in the new section or new office of posting; they are required to
first properly hand over the pending receipts, all registers and files, besides preparing a
list of important files in their custody at all times and ensure that no important and time
bound case remains unattended or delayed before getting relieved from the branch.
With the above end in view, the following procedure is required to be observed
when staff are transferred to out of sections or from one station to the other:-
85
i)
The official transferred out of the section/cell or from an office will prepare
three lists of:(a) All un-dealt receipts remaining with him. The un-dealt receipts will be tallied
with the entries in the Assistants diary.
(b) Registers and records and Assistants diary maintained by him; and
(c) All files including guard files in his custody
In
addition
to
this,
he
will
also
separately
prepare
list
of
receipts/files/matters of urgent nature, court cases, Vidhan Sabha matters and other
important matters which need to be attended to without delay by his successor;
ii)
In case, at the time of his transfer his replacement/successor has been posted
and has joined, he will hand over the un-dealt receipts/all registers and records
including assistants diary and files according to three lists prepared as at (i)
above under proper signatures of the relived and relieving official. A copy of
each of the three lists will be retained by both the officials and the third copy
will be handed over to the Section Officer/Superintendent Grade
I/
Superintendent Grade II or Senior Assistant supervising the work;

iii)
Where an official is transferred out without his replacement / successor having

been posted, the official transferred out shall, before leaving for his new
posting, prepare three lists of receipts, registers and files as at (i) above and
hand over the same together with the receipts/files/registers to the Section
officer/ Superintendent Grade I/Superintendent Grade II or Sr. Assistant
Supervising his work. He will also prepare another list indicating the receipts of
urgent nature, court cases, Vidhan Sabha matters and other important matters
needing attention without delay and hand over the same to the supervisory
officer supervising his work, so that he assigns such receipts/matters to some
other dealing hand as an interim measure. As and when the replacement/
successor joins, he shall take over the un-dealt receipts, files and registers by
signing the lists and tallying the un-dealt receipts with the lists and tallying the
un-dealt receipts with the entries in the Assistant diary and the registers and
files with the lists thereof;
86
iv)
Where an official posted in a section/wing or an office is not able to take over

the charge because of his predecessor being on leave etc. at the time of his
joining, the said official shall prepare lists of pending receipts, registers
(including Assistants diary )and current files (including guard files)and hand
over a copy of all these lists to the sections Supervisor (Section Officer,
Superintendent Grade I/Grade II or Senior Assistant as the case may be )
pointing out the important pending, receipts left unattended so that the
sections supervisor may initiate measures for their immediate disposal and if
necessary inform the branch officer of the position. As and when the official
posted out rejoins duty in the section to verify the entries in the lists and sign
the same.
It is the personal responsibility of the official transferred to or from the section/office

to prepare the lists in the above manner and to hand over the same to the supervisor
of the section/office personally. A copy of these lists is to be attached with the joining
/departure repots by the supervisor while forwarding the joining / departure reports to
the next superior / higher authority without which the joining / departure reports will
not be deemed to be complete.
The Section Officer/ Superintendent Grade I/Superintendent Grade
II/Senior Assistant supervising the work of officer record in writing both- any
deviation from this procedure as well as details of important papers and cases left
unattended or likely to remain unattended and ensure issue of orders for their prompt
disposal. Any lapse in this behalf is the personal responsibility of the supervisor of the
section.
f) TRAINING:
Training is an important tool which always results into enhancement of the
capacity of a civil servant for better performance. There is no specific training which has
been attached to these services as per existing rules, however, the incumbents are
eligible for secretariat allowance, thus Secretariat Administration has organized/provided
O level computer training to this category.
This includes basic training in word
processing and data management mainly based on Microsoft Office.

management and managing e-mail account is also a part of the training.
87
Files and folders
However, the Class-IV employees who are to be promoted as Clerks are given two
months training in Office Procedure, Typewriting and Word processing through Himachal
Pradesh Institute of Public Administration. Only trained candidates will be eligible for
promotion. Thereafter, they are also required to undergo a written test. Training is to be
provided once but the opportunity for appearing in the test is given from time to time.
g) PERFORMANCE EVALUATION:
Periodic performance evaluation not only gives an idea of rating that what
is the performance level of a civil servant in relation to his counterparts but also provides
him an opportunity to ameliorate his situation by injecting appropriate dose in the area of
need in Himachal Pradesh Secretariat. The performance is evaluated through a weekly
arrear statement which gives a detail of all the matters/PUC (proposals under
consideration) received by each dealing assistant/clerk in a section in last one week. The
same statement is properly filled up by showing the status for pending, dealt, partially
dealt and finally disposed off cases. This compilation is further put up to the higher
authorities for their perusal and finally sent to Administrative Reforms Department.
Earlier it was done manually but now software called REFNIC, developed by the State Unit
of NIC, has replaced it wherein all statements are maintained in the database for all the
branches of Secretariat.
h) PROMOTION:
The system of promotion is of great significance to the efficient personnel
system. The term promotion means loading a man with higher duties and responsibilities.
It is a progress from lower class to higher class with a change of duties and
responsibilities. Actual promotion is a reward, whereas the opportunity for a promotion is
a possible reward. The Secretariat Civil Services provide very lucrative avenues from
promotion, starting from Clerk (or peon in certain cases) one can rise to the level of
Under/Deputy or Joint Secretary. In addition to this, Assured Career Progression Scheme
is also in operation which provides for one addition increment benefit for rendering
service on the same post for 8 years, 16 years, 24 years and 32 years or placement in
the next higher scale in the hierarchy of
i)
pay scales.
SOCIO ECONOMIC OBJECTIVES & OUTCOMES:
88
Personnel recruited by an organisation are squarely responsible for meeting the

objectives of organisation. Clients satisfaction only can help in achieving its objectives.
All the organisations have social and economic objectives; even a purely private
organisation yearning to achieve the sole objective of profit maximization has some social
obligations and has some social objectives to meet. Similarly, the Government
organisations which generally work to maximize social welfare have some economic
objectives on its agenda. The following text lists some of the objectives of the service
under examination and then goes into the issue of outcomes both, positive and negative.
(1) To maintain record of communications received and sent out in the
sections diary and dispatch registers(including maintenance of separate
registers for communications received from VIPs and important receipts
and Vidhan Sabha questions, assurances etc);
(2) To ensure timely receipt and submission of all returns/statements
including weekly arrear report, monthly statement of cases pending for
more than three months, weekly statement of important cases disposed
of by the Minister In charge and Secretary of the Departments;
(3) To maintain all other registers as are common in all departments, and to
maintain particular registers of the type of work assigned to the section
hand book, besides maintaining guard files and precedent registers;
(4) To see that all Acts/ Rules/Manuals of the Department concerning the
section are updated and new editions, wherever required are got printed
with the approval of the competent authority;
(5) To Process amendments/modifications/additions or deletions of provisions
of the existing Acts/Rules/Manuals of the Departments as may be
required and drafting of new Acts/ Rules/ Manuals/ instructions according
to the needs and assignments of the work allotted to the section;
(6) To assist the authorities in taking various decisions concerning the
Department in matters relating to formulation of policies, plans and
89
programmes of the Government and to ensure provision of funds in the

budget and also to seek re-imbursement of expenditure from Central
Government for Centrally sponsored schemes/plans;
(7) To Assist the authorities in monitoring, analyzing and reviewing the
process of various programmes/policies of the Government by obtaining
appropriate information from the Directorates and field offices;
(8) To maintain upto date information, of expenditure incurred and progress
of implementation of all schemes, plans etc. and also to suggest
measures for more effective implementation of schemes;
(9) To dispose of all references/ communications received in the Section, to
submit cases on relevant files with suitable noting for assisting the
authorities to take decisions and to write drafts in accordance with the
decisions;
(10) To maintain updated statistical data with regard to the subjects which are
the Sections responsibility and all matters connected therewith;
(11) To attend to the legislative business, Court and legal matters on priority
basis;
(12) To assist in cadre management of Gazetted personnel of the Department
in case the subject is allotted to the section.
(13) To ensure that the responsibilities assigned are discharged in the best
interests of the citizens.
(14) To use provisions of various rules to see that the problem stands solved
instead of putting observations and objections on files.
(15) At times, one should work in such a way that the objectives of the
organisation are met in full.
90
STRENGTHS:
The Secretariat Civil Services with its permanency in the Secretariat in the
nature has emerged as one of the strongest services in terms of formal and informal
organisations of these personnel. The salient features are as under:i)
Independence of Expression: - The proposals of public interest are examined
with an expression of independence without any political or bureaucratic compulsions

since they dont work under the fear of getting transferred.
ii)
Co-ordination:- There is a better co-ordination among different departments
where a matter is to be consulted with Law, Revenue, Finance, Personnel or any other
department since all the functionaries are located in the same premises.
iii)
Variety in Assignment:- the sections of Finance, Personnel, Law, Health and
Public Works etc. are quite technical in their nature of work, so each civil servant gets an
opportunity to work in different branches and is benefited by different kind of works.
WEAK POINTS:
1. Enormous responsibilities have been shouldered on clerical staff, thus giving
them a lee way to usurp these in alternative shapes.
2. Permanency in service at one place leads to discrimination with the general
public.
3. Lack of technical knowledge- the employees dealing with the Establishment,
Financial, Civil Works, Information Technology are hardly given any training or
knowledge of the subject, there are just put to do the work.
4. No administrative or management qualifications have been prescribed in the
Recruitment rules.
5. Fate deciding factors for technocrats, professionals.
6. No trainings like refresher courses or orientation for skill upgradation/capacity
building.
7. Generally, Assistants/ Clerks remain
dependent on directorates for all the
information, the role has become secondary in performing the duties and
primary in operating as superior office.
91
8. The
services have developed an image of slow, cumbersome, excessive paper
work, delay in processes. Proposal from the field organizations are returned with
queries, raised not once but in installments.
9. Secretarial system is essentially clerical in nature, obsolete rules and procedures
tend to perpetuate, Assistants and Clerks over the time have turned in to policy
analysts.
10. There is a lack of empathy
with people, the stake holders. In such an
environment uneducated and weaker sections are likely to remain alienated from
administration. Administration should go to the people rather than vice versa.
11. Lack of appropriate, consistent and uniform policies concerning the training of
public servants.
12. Lack of popular participation in administration, absence of coordination with field
services especially at lower level, too many levels of administration creating
problems of communication and access to government service.
13. There is preoccupation with rituals rather than with performance in our public
administrative system.
SUGGESTIONS:
I.
Recruitment, Training & Placement:
a) There is a dire need of a mandatory training for this category services for skill upgradation, thereafter they should be put to work in Secretariat.
b) It has also been observed that certain people over a period of time become
experts in the functioning of that particular section and thereafter not replaced
from that particular section for decades together which does not give an
opportunity to others to learn the working and also gives them a feeling of being
indispensable for the system.
c) The educational qualifications also need to be given a second look. It is felt that
matriculation level of education needs to be upgraded at least at the time of
induction in the gazetted service. Graduation in Public Administration or Personnel
Management is felt a minimum qualification for this purpose.
d) Promotions as are available today need to be reviewed. One person joining as
peon or clerk rises up to the level of Under/Deputy Secretary without upgrading
his education qualifications, without qualifying any examinations during the career.
92
Seniority should not be only the factor responsible for promotion rather merit
should also be one of the basis for consideration for promotion to higher ranks. It
has been established in this specific case that seniority being the lone basis of
promotion; employees do not make any effort for self improvement.
e) Promotion from Grade IV to Grade-III should be carefully scrutinized; this avenue
should be available
on the merit-cum-seniority basis and that too when the
educational qualifications are met, and not on the seniority basis alone. A practice
observed is the tendency to promote from Grade IV to Grade III with the condition
that the promotee will qualify type writing test with in a specified period of time
for being eligible to get next increment. This results into suffering of official work.
II. Performance Enhancement:
a) There is a need for speedy delivery of public services by setting it free from the
red tape.
b) Good Governance and better service delivery with submissiveness should be the
motto of officials.
c) We must not fail to highlight, while discussing work culture of State Government
employees that in our state the list of holidays for State Government Offices is too
long to be conducive for improving work culture and efficiency in the public
administration. There is a need to inculcate the work culture in the Government
sector. The private sector employees are working in 24x7 milieus. An endeavour
in this respect is suggested as under:-
i. The National holidays like Independence Day should be abandoned rather

these days should be celebrated in offices for two hours and thereafter the
work should be undertaken as per the routine system.
ii. The Government Offices should strict by follow working hours for all the six
days in a week from 10 A.M. to 5.00 P.M. The system for weekly rest by
rotation should be introduced.
iii. It is a general feeling that time has come to discard
declaring holidays in
the memory of great people for the interest of all round development of the
State.
III. Cadre Management:
93
a) On the analogy of Central Government Secretariat Service, different trainings and

qualifying examinations should be made mandatory for career progression at
various stages of their career and the corresponding skill needs as under.
(A) Entrance Level Training
i. Foundation
course
for
Clerks
(Probationers):
Foundation
course for Clerks right at the time of qualifying the entrance exam,
after their successful completion of training they will be sent to their
respective organization. Incumbents not completing the foundation
course shall not be confirmed till the time they qualify the exam
conducted by the training institute, however, two opportunities may
be provided to the candidates. The duration of this course will be 28
weeks.
(B) In Service Training:
ii. Clerks/ Junior Assistants: The clerks/junior assistants with five
years of service to be nominated for this mandatory course and to
be considered for promotion to next higher grade only after the
successful completion of this programme.
iii. Assistants: The candidates who have completed 8 years service
shall under go this mandatory training programme of five weeks and
will be considered for promotion to the grade of Superintendent
after successful completion of this course.
iv. Superintendents:
Superintendent with 5 years service shall
under go this mandatory training programme of 3 weeks.

v. Section Officers: Section officers with 8 years service shall under
go this mandatory training programme of 20 weeks and will be
considered for promotion to the next grade of Under Secretary after
successful completion of this course. During this period ACRs to be
written by the training Institute.
vi.
Under Secretaries: Under Secretaries with 5 years service shall

under go a mandatory training programme of 8 weeks and will be
considered for promotion to the
next grade of Deputy Secretary
after successful completion of this course.
94
vii. Deputy Secretary: Deputy Secretaries with 5 years service shall

under go this mandatory training programme of 3 weeks and will be
considered for promotion to the next grade of Director after
successful completion of this course.
b)
A possibility may be explored for recruitment for certain posts like drivers, peons,
sweepers etc. on contract basis. It has been proved in many government
departments wherever sanitation has been outsourced, results are very good.
c)
Service
matters,
financial
matters
and
such
other
issues
need
process
simplification, move from processes accountability to productivity accountability

and from transactional frames to formative governance.
d)
Incentives for good works and responsibility to be fixed.
IV Upgradation of Skill:
a) The
induction
establishment,
training
finance,
course
store
should
purchase
have
contents
organisation,
on
assembly
business etc. to give them a sound knowledge of the subject.

b) For
the
placement
of
persons
in
personnel,
law,
finance,
administrative reform, MPP& Power, Administration etc. specialized

branches one should either be having some basic qualifications in
this field or be provided some training in this respect.
c) One another factor felt during this study is the need of capacity
building for employment provided on compassionate grounds.
V. Social & Economic Objectives:
a) A large number of people daily visit Secretariat in relation to their
work hamper the working by their visit to different offices. Since
REFNIC is already in operation, it is proposed that at least four
touch screen, LAN computers may be installed in Reception. The
persons visiting may get status of their work itself on those systems
and can go back.
b) The concept of SMART (simple, moral accountable, responsive and
transparent) government and citizen centric administration needs to
95
be spread amongst the officials since the response to general public

hardly happens to be good.
c) One single issue is referred to different departments within the
Secretariat
itself
and
the
work
is
coordinately
delayed
for
months/years together, however, need of the time is to reduce

delays and to ensure promptness in delivery of services.
2.
HIMACHAL PRADESH SUBORDINATE ACCOUNTS SERVICES
Himachal Pradesh Subordinate Accounts Service(Ordinary Branch) cadre came into

existence during the year 1971 as per Himachal Pradesh Government Notification No. 1734/70-Fin(T&A), dated 1st June, 1971 (Appendix-2-V) by placing the services of all S.A.S.
(OB) qualified Senior Auditors/Assistant Accounts Officers and Accounts/ Officer/ Chief
Accounts Officer/Financial Advisors in different departments of Himachal Pradesh
Government on a common pool under the administrative control of the Finance
Department on the pattern of Punjab.
The officers who had passed the S.A.S.(OB) Part I and II examination from
Northern zone Accountancy Training Institute Jammu(Tawi) together with SAS (OB)
qualified allotted from the common composite State of Punjab were placed on common
seniority list. After 1st June 1971, All the departments of Himachal Pradesh were required
to get the posts of Accounts cadre created and get them filled up from the Finance
Department, Treasuries & Accounts Organization as per the R&P Rules for governing the
recruitment, promotion and other conditions of service of persons to be appointed to the
accounts cadre to be framed by the Treasuries & Accounts Organization. The provisions
already made in the R&P Rules by the respective Departments were deleted w.e.f. 1 st
June 1971.
During December, 1981, the Government of Himachal Pradesh reviewed the scope
of providing SAS trained personnel in various boards/corporations/ autonomous bodies as
the
Government
had
established
number
of
Government
owned
Corporation/Undertakings/Boards etc. during 1971 to 1981 in public sector and like the
Government departments, the accounts and financial work involved in the Government
enterprises also required accounts personnel possessing accounts qualification and
experience. These Corporation/Undertakings used to fill up the posts of accounts from the
open market by advertising the vacant posts, but the incumbents so recruited were not
well conversant with the financial rules and regulations of State Government. As these
96
Boards/Corporation/Undertakings are wholly or substantially financed from the State

exchequer, it was felt necessary that qualified state government SAS officers be recruited
to the finance and accounts wings of these institutions. Hence all these institutions were
also
required
to
place
their
demand
of
Senior
Auditors(OB)/Assistant
Accounts
Officer/Accounts Officers/Finance Advisor/Senior or Chief Accounts Officers etc. to the

Finance Department (Treasuries & Accounts Organization) vide Notification No. 17-34/70Fin(T&A), dated 2nd December, 1981. A copy of the same has been added at Appendix-2VI.
a)
RECRUITMENT:Appointments to SAS (OB) cadre in the entry grade i.e. at the level of Section
Officer (Finance & Accounts) are being made by way of limited competitive examination
for initial Selection of Candidates. Before 1987 the Himachal Pradesh Government used to
send the selected candidates for training in SAS Part-I and II to Northern Zone
Accountancy Training Institute, Jammu (Tawi) and the Government of Jammu & Kashmir
had been conducting the exams after training. From 1987 onward the recognized
Institute is Himachal Pradesh Institute of Public Administration, Fairlawns, Shimla where
SAS Part I & II training is being imparted to the selected candidates by the Himachal
Pradesh Public Service Commission through initial selection test. The Himachal Pradesh
Public Service Commission again conducts the SAS Part-I and Part-II examinations after
the training at HIPA. The training of Part I and II for the selected candidates in separate
spells is imparted by HIPA for five months, and three and half month respectively. The
syllabus for initial selection includes Precise, letter writing, noting and drafting and other general questions to
test the candidates ability to write correct English/Hindi portions,
Notes of Financial Rules published by the Secretariat Training School,
Department of Personnel, Government of India.
Fundamental Rules and Supplementary Rules (Excluding rules covered in
Paper-II) and
Himachal Pradesh Financial Rules, 1971 Vol.-I Part-I,
Himachal Pradesh Budget Manual.
The Syllabus for SAS Part-I and Part-II includes
97
Prcis, Noting & Drafting (without books)

Elementary Commercial Book-keeping (without books) which includes
Book Keeping upto Trial Balance,
Trading Profit and Loss Account and
Balance Sheet, Consignment Account, Depreciation and Reserve and Other

Funds, Capital and Revenue Expenditure Accounts etc., Correction of
errors, bills of exchange, promissory note and cheques, Account current
and average due date. Self-balancing ledger.
Fundamental & Supplementary Rules- Fundamental and Supplementary
Rules, Pension and Provident Fund Rules, Leave Rules, Conduct, CCA Rule,
TA & LTC rules etc.
Civil Accounts and Audit
An introduction to Indian Accounts & Audit, Accounts Code, Accounts Code,
Himachal Pradesh Financial Rules Vol. I, Himachal Pradesh Financial Rules
Vol. II
Computer Applications- an introduction to Computers, An overview of
Computer Hardware, types of Computers, Standard Application of Software,
MS Word, Excel, Powerpoint and Accounting on Computers.
The syllabus for Part II examination has the following topics:
Treasury
rules
&
Procedure
including
Himachal
Pradesh
Treasury
Rules/Subsidiary Treasury Rules Vol. I & II, Account Code Vol. II, Himachal
Pradesh Sub Treasury Manual,
India Security Manual,
Rules for Supply
and Distribution of Stamps.

Constitution of India with relevant schedules appended to the constitution.
Principles of Parliamentary Financial Control with Himachal Pradesh Budget
Manual, Parliamentary Financial Control,
Advanced Book Keeping and Principles and Practice of Auditing including
Advanced
Accounts,
Chapter
Joint
Stock
Companies,
Manufacturing
Accounts and Costs, Cost Accounts and double Accounts system Income
and Expenditure Accounts. Departmental Accounts, Principles and Practices
of Auditing and Practices of Auditing.
98
Local Rules and Public Works Account Code with Central PWD Account Code
(excluding portion relating to Administrative matters), Account Code Vol.
III.
b) Qualifications:Appointments to SAS (OB) cadre in the entry grade are
made by way of limited
competitive examination for initial selection of candidates for undergoing training in a

recognized SAS Training Institute and Subordinate Accounts Service(OB) Part I and II
Examination for which in-service categories of ministerial employees of Himachal Pradesh
Government Departments/ Corporations /Boards/Undertakings and Autonomous Bodies
who are graduates with 5 years minimum service/Matriculate with 10 years minimum
service and age of not more than 40 years are eligible.
c) PROMOTION:The successful candidates are appointed as Section Officers. All other posts are selection
posts and are being filled up by promotion on merit-cum-seniority basis which is as
under:a) The posts of Assistant Controller (Finance & Accounts) are being filled up
100% by promotion from amongst the Section Officers having three years
regular or regular combined with continuous ad hoc service, if any, in the
grade.
b) The posts of Deputy Controller (Finance & Accounts) are being filled up
100% by promotion from amongst the Assistant Controllers (Finance &
Accounts) having five years regular or regular combined with continuous ad
hoc service, if any, in the grade.
c) The posts of Joint Controller (Finance & Accounts) are being up 100% by
promotion from amongst the Deputy Controllers (Finance & Accounts)
having three years regular or regular combined with continuous ad hoc
service, if any in the grade.
d) The posts of Controller (Finance & Accounts) are being up 100% by
promotion from amongst the Joint Controllers (Finance & Accounts) having
three years regular or regular or regular combined with continuous ad hoc
service, if any, in the grade.
99
d)
Job Description:As per the notification issued at the formation of this service on 1 st June, 1971, the
officers of this cadre were required to perform:1) To assist in framing of budget of receipts and expenditure, scrutiny of
proposals of New Expenditure and to ensure their factual submission to the
Finance Department.
2) To exercise check on receipts and accounts of stores and stocks and inspect
subordinate offices to detect laxity in raising demands or leakage of
revenue.
3) To ensure that correct financial procedures are followed, expenditure and
receipts are properly accounted for, financial powers are not abused and
cannons of financial propriety are strictly adhered to.
4) To carry out internal check of appropriation/receipts, to advise their
respective Departments in financial matters.
5) To assist in timely preparation of financial returns and statements and
Performa accounts, if any.
6) To help in the disposal of important references relating to finance and
accounts.
7) To advise the head of Department in the matter of tenders for supplies and
works and agreements thereof.
8) To help in the disposal of PAC paras.
9) To help in the expeditious issues of financial sanctions.
10) To keep watch on the recovery of loans and advances of the Department,
and
11) Consolidation and maintenance of accounts.
Later, during 1985, the government vide its letter available at Appendix-2-VII,
added
following functions were to the above list keeping in view the requirement of
various boards/corporation etc.

12) Issue of salary slips and maintenance of records of Gazetted Officers.
13) Scrutiny of rates, technical reports and letters etc. in case of purchases of
stores like store purchase organization.
100
14) Physical verification of cash stock during internal audit and inspections.
15) Checking/giving advice on various kinds of sanctions.
16) Preparation
of
proforma
accounts,
Balance
Sheet
in
Semi
Commercial/Commercial Organizations.
As on today, the Himachal Pradesh SAS cadre has following posts in various Government
Departments/Corporations/Boards/Universities/PSUs etc.
Sr.
Designation of Posts
Pay Scale
No.
1.
No.
of
posts.
Section Officers(Finance & Accounts)
7000-10980
99
Accounts)
7220-11660
67
Deputy Controller(Finance & Accounts) Class-I
7880-11660
24
10025-15100
21
13500-16400
Class-II Gazetted
2.
Assistant
Controller
(Finance
&
Class-I Gazetted.
3.
Gazetted
4.
Joint Controller (Finance & Accounts),

Class-I Gazetted
5.
Controller
(Finance
&
Accounts)
Class-I
Gazetted.
e)
PERFORMANCE EVALUATION :-
The ACRs of these officers are being initiated by the Head of Department/Managing
Directors/Senior
departmental
Officers
of
the
departments/board/corporation/other
organizations. These are further reviewed by the Director, Treasuries, Accounts and
Lotteries and finally accepted by the Principal Secretary (Finance). The officers are being
evaluated on the basis of their performance in the organizations where they are posted,
by examining their resume and taking feed back from time to time. The promotions are
being made strictly on the basis of merit-cum-seniority.
f)
TRANSFERS :-
Since the Finance Department in the Treasuries, Accounts & Lotteries Department is the
cadre controlling authority, all the transfers and postings of these officers are being made
as per the policy and instructions of the Government of Himachal Pradesh. None of the
101
Departments/Organizations where they are posted are authorized to transfer or post

them at their own. In case any department/organization requires any transfer or posting,
they have to approach the Finance Department for doing so.
g)
SOCIO ECONOMIC OBJECTIVES :The SAS (OB) officers are not only required to discharge the functions as assigned
above but they have been assigned important jobs of management of finance and
accounts matters while working in various departments/boards/autonomous organizations
like Universities. Some of the officers are posted as Finance Officer/Comptroller in all the
three Universities and also Financial Controllers in the Pradhan Mantri Gram Sadak
Agency/World Bank Projects, Sarva Shiksha Abhiyan, Aids control Society etc. and also
handling various GOI projects in various organizations. Some of the officers are also
working as Faculty Members in the H.P. Institute of Public Administration, Shimla and are
instrumental in designing and implementing the double entry system not only in the Rural
Development Department of Himachal Pradesh but also imparting training in other states
of India. The functions of SAS Cadre are significantly professional in nature and they are
the eyes & ears of Finance Department. Since the service was established in the year
1971, the job profile of officers of this service stand entirely changed in the present
economic scenario in the country. Now the officers are required to carry out multifarious
duties, which they were not performing earlier.
The officers are now required to be efficient in commercial accounting, conversant
with drafting of JVCs, MoUs etc. Private Sector participation is increasing day by day.
They are also required to have the knowledge of economic trends prevailing in the
market, new trends in budgeting and other allied matters. They are also working in
various PSUs and Universities, where basic understanding of the provisions of Companies
Act, 1956 is required. To ensure that the provisions of the Act are properly analyzed and
interpreted. Theoretical and practical knowledge in the area of commercial accounting is
required. Proper understanding of Indian Financial System, different components of
Indian Financial System viz. Financial Institutions, Financial Markets and Financial
Instruments is also required. Knowledge of computers and accounting software like Tally
etc. is need of the hour. Now the role of SAS officers has changed a lot with the changing
environment. SAS officers are assigned important jobs of management of finance and
accounts matters. As their function in the department/government/organization is
significantly professional in nature, hence their posts cannot be allowed to be kept vacant
102
in the interest of proper watch/surveillance over the State Expenditure. The SAS officers
have so far proved their credentials in the State to a great extent. Keeping in view the
above, the syllabus for SAS (OB) Part-I and II is being modified.
The SAS officers have an extremely important role to play in terms of ensuring
that financial chastity is maintained at all levels of the organisation in which they are
working. In fact, they are the people responsible for overall financial management of the
organisation. The money that the government spends comes from the citizens in the form
of various taxes, duties and fees. SAS Officers are responsible for ensuring the
government money is spent for the purpose for which it has been allocated. They also
ensure that that the money is spent after following all the procedures as laid down in
various books of rules. SAS Officers are required to maintain transparency in all the
government transactions and have to work with the absolute integrity so that citizens do
not get a chance to question use or misuse of their money. To sum up, they are required
to ensure that public money is spent for the welfare of the public with the participation of
public.
III. Department of Human Resources Development

-A Need in Himachal Pradesh
3.1 BACKGROUND: The government has a large role to play in the field of regulatory,
development and welfare functions. The success in this endeavour is wholly dependent on
the way the officials at all levels perform their jobs. The Government employees are the
permanent
instruments of all administrations and are expected to perform their job with
competence, sincerity and devotion.
The Government employees commitment to the
highest standards of performance and conduct is sine quo non for the maintenance of
constitutional and financial propriety and good Governance.
3.2 SMART GOVT: The recent past has seen a paradigm shift in the economic, political,
social and technological scenario all around thus warranting a fresh look at the Human
Resource availability to meet the challenges.
The initiative envisages provision of
training/HRD inputs on an annual basis for public functionaries to achieve a SMART

(Simple, Moral, Accountable, Responsive, Transparent) government, which caters to the
needs of the general public in an effective, efficient and responsive manner. It goes
103
without saying that to meet these objectives, continuous training in the relevant areas of
work for all government employees is the most effective tool available.
3.3. NEED: It is seen that a number of departments of the State Government have their
own training institutions/facilities. These institutes have taken their present shape over a
long period of time at considerable cost to the public in terms of money energy and
effort. However, all these institutions are part of the concerned departments and in a
situation of all these departments working independently in their own sphere of activity,
there is no or negligible coordination amongst these different institutions. This is also
seen that while the departmental programmes and procedures are the issue areas of
training in these institutes, the core issues of governance, especially in the areas of
convergence,
democratic
decentralization,
participatory
administration
etc.
are
compulsively lost sight of. The policy objectives of the department concerned may be
kept in mind but the policy objectives of the government definitely get lost sight of in this
process. Even issues relating to Human Resource Development and Training also tend to
get obscured in this process.
3.4. HUMAN RESOURCE DEVELOPMENT: Training is universally accepted as a function
of management usually of the top management. Unfortunately in our state there is no
department of training existing at the moment. The only set up at government level is
half a section (2-3 people) at the Secretariat level without any support whatsoever from
the field organization. The Himachal Pradesh institute of Public Administration is usually
asked to fill the role, if ever required by the government. Needless to say the institute, as
it exists and functions presently, is in no way equipped to handle the job of coordinating
training activities of all departments of the State nor is it in a position to guide, advise or
support the training activities spread across various departments. The net essence is that
this vital aspect of Human Resource Development is getting completely ignored at heavy
cost to the efficiency and productivity of the government set up.
3.5. PIVOT FOR COORDINATION: This is with the above in mind that the following
proposal for creation of a department of training is being made to function as a pivot for
undertaking the job of giving a direction, trust and ensure coordination of training
activities across all departments of the state government.
3.6. ROLE & RESPONSIBILITIES OF HUMAN RESOURCES DEVELOPMENT
104
In the field of training and the training related activity, the responsibilities of the
Department of Human Resources Development extend to all the Government Employees
in the State, whose training needs are to be met.
3.7. THE MAIN DUTIES AND RESPONSIBILITIES OF THE DEPARTMENT

To coordinate with all departments in the area of training.
To evaluate training needs of various departments in the ever changing
environment with the help of a dedicated research unit with in it.
To prepare, update periodically and to monitor and implement the State Training
Policy.
To oversee whether training programmes conducted by all the training institutes in
the state are tailored to the specificities of functional organizations, group or local
situations etc.
To build up a comprehensive database pertaining to training institution, their
activities, their capacity and so on.
To receive feedback and to analyze the programmes conducted and to give
necessary suggestions for improvement in the light of guidelines of the State
Training Council/Committee.
To coordinate work relating to faculty exchange, faculty placement preparation of
standards of training and liaise with the departments and other organization of the
Government to ensure that each organization gives training, its appropriate
place in its corporate plan, budget etc. and to ensure provision of adequate
personnel for the purpose.
To set up a professional centre for certification of training.
To network the training institutions and the training resources for development of
training materials.
To
coordinate
the
work
of
developing
performance
criteria
for
various
organizations in the sphere of training.

To interact with Department of Personnel and Training, Government of India and
with training departments/institutes in other states.
To conduct seminars, workshops and trainer development programmes for special
groups of development administrators and trainers.
To give advice in training matters to the Government as well as to the State Public
enterprises.
105
To advise departments to make training plans, long term as well as annual and
providing assistance in the process of preparation of these plans.
Helping various departments/institutions in Designing
Training Programmes
tailored to the specific requirements of their personnel.

To ensure coordination of training activity between state and central training
institutions and among various training institutions of the state.
Monitoring and evaluating training to see that it conforms to predetermined plan
priorities and contributes to over all development of staff performance in
concerned departments.
To evaluate Training Institutions from +time to time, with the help of training
Institution concerned, training experts, consultants, the client organizations and
department of Personnel and Training.
Promoting research, related to training and development.
Help departments in preparation of suitable training materials.
Identifying appropriate State Government, Government of India and Externally
Aided Projects Training programmes for Officers/Employees from a wide range of
disciplines and arranging for their Training.
Acting as a clearinghouse on all information related to Training.
To prepare a list of private training institutions of repute and to coordinate with

them for purpose of training to Government Employees in those institutions also
as per requirement.
To prepare a panel of Trainers Working in private organizations, to utilize their

services as guest trainers in government training institutions.
3.8. LOCATION
It will be appropriate to locate the department of training somewhere around Shimla
keeping in view its coordinating nature and to serve as a bridge between Secretariat
and different institutes.
3.9. STRUCTURE
The structure proposed for the department of Human Resources Development is as
under:-
106
3.9.1. Director Office: The post of Director of Department is proposed to be filled up

from IAS cadre. It is also suggested that Director, HIPA may be designated as
ex-officio Director, Human Resources Development Department who will be
responsible for inter department coordination, direction and guidance on
training related issues.
3.9.2 Human Resource Development and Coordination Division: This division
will be entrusted the job of co-ordination amongst different institutes and
departments with respect to their training needs and will coordinate and
promote the training activities besides development of training material and
dissemination
thereof
amongst
different
institutions.
This
will
also
be
responsible for upgradation of skills and knowledge of the faculty/staff in

various training institutions and will also attend the training needs of faculty by
liaising with different specialist institutions within and outside the country.
3.9.3 Administrative and Accounts Division: This division will look after the
routine administrative, establishment and accounts related work of the
directorate.
3.10. GENSIS: The main aim of Department of Human Resources Development is to
contribute to a continuing improvement in the state administration, so that it is able to
fulfill aspirations of the people for development at an accelerated pace. All its activities
should be geared to the full realisation of the objective of capacity building of government
employees at all levels in order to sub serve responsive Government and economic
liberalisation with social justice. The proposed department of training is not expected to
usurp the functions of the existing training institutes in any manner whatsoever. Nor it is
expected to interfere in their working or act as some kind of supervisory department. The
functional autonomy
enjoyed by the existing institutions is important and should be
allowed to remain intact as also the chain of command with reference to the parent
department will not be required to the disturbed in any manner. The objective of
department should be to support the existing training mechanisms and to look at and
promote the training related
issues at the government and policy
107
levels.
IV.
SECRETARIAT NODAL AGENCY-NEED FOR DELEGATION

Administration operates in an environment created by the political system,
administrative reform should be directed to change the entire environment. Thus, crucial
question in administrative reform is not so much the development of appropriate
techniques or abilities but the creation of an environment in which such activities can
flourish, and the appropriate environment in created by appropriate attitudes of men who
matter most in administration correct and pragmatic attitude. Reform is a creative
destruction in that an order is broken down to pave the way for a new order.
Secretariat may be regarded as the extended personality of the Council of
Ministers. Its functions are:
(i)
To assist and advice the Minister in the formulation of Government

policies and programme.
(ii)
To frame the policies, it is necessary to collect a great deal of data

from the field agencies and several other sources. The Secretariat
performs the function of collecting the necessary data from different
sources and analyzing it with a view to suggest various courses of
action necessary in the formulation of policies.
(iii)
The Secretariat gives general direction and guidance to the

Directorates and other field agencies for the efficient implementation
of the Government policies and the decisions. It may be noted that
these are only broad policy guidelines and are not supported to be in
the nature of detailed instructions, which are to be issued by the
respective heads of the executive departments.
(iv)
The
Secretariat
implementation
monitors
of
various
the
programmes
programmes
and
regarding
the
evaluates
the
performance of different field agencies. Finally, it suggests the

corrective action whenever it becomes necessary in view of the
evaluation conducted by it.
108
(v)
The Secretariat acts as spokesman of the Government. It maintains

contact with the Central Government and other State Governments
and outside agencies.
The functions of the Secretariat have to be distinguished from the functions

of the executive departments. The Secretariat is supposed to give only general policy
guidelines while the actual execution of the policy is the work of the executive head of the
department.
Of late, it has been observed that the Secretariat has been expansionist in
its attitude and behaviour and has even arrogated to itself powers and functions which do
not come under its purview. The factors explaining this expansion are many, but an
important factor is parliamentary democracy itself. The Minister, under the system of
Government, is responsible to the Legislature for efficient functioning of his department.
He has to answer parliamentary questions concerning his charge. Naturally, therefore, he
wants to have a say in most matters. This, to an extent, explains the centralization of
functions in the Secretariat and its expansion. In addition to this, there are human and
psychological factors. Of late, attempts have been made to contain this expansion of the
Secretariat by preparing a list of the functions which are to be looked after by it.
The Secretariat has been subjected to too much criticism. There has been a
general complaint, as mentioned earlier, that the Secretariat has tendency towards
concentration of powers. This leads to inefficiency in the working of the Government.
The functioning of the secretariat is very slow like the examination of
proposals etc. This slow and tardy processing of the cases in the Secretariat impairs the
efficiency of the field agencies.
There is general tendency, amongst the officers, to try and stay on in the
Secretariat, due to the attractive conditions like remuneration, educational and medical
facilities, etc. Plus, working at the Secretariat and in close contact with the heads, the
officers aggregate much influence and power also. This tendency works against the
tenure system which envisages a constant exchange between the Secretariat and field
109
officers and impairs efficiency as by staying too long in the Secretariat, these officers tend
to lose touch with the field problems.
The political as well as the administrative elements of the environment are
mostly preoccupied with values not conducive to the cause of the development of the
community.
Administrative reforms may be defined as the conscious and deliberate
inducement of administrative transformation against resistance to meet the positive goals
of national development.
I. All India stereotype schemes are often introduced without sufficient
operational flexibility, local adaptation and adequate delegation of power.
II. In spite of the loud sympathy today for decentralized planning or planning
from below, there has been lack of planning at local level.
III. The top down communication was often in the shape of imposition of
targets without ensuring that the conditions and prerequisites for reaching
these targets were created.
IV. All development programmes, individually as well as collectively, require
linking of numerous elements which alone can ensure the ultimate success
of programmes.
V. Administrative short comings at the field level continue to persist.
CENTRALISATION OF POWER
Inter departmental coordination and accountability is indispensable for the
proper functioning of the government over a period of time, the Secretariat has become
overgrown ponderous and slow moving organisation, encumbered with non essential work
and has for a large part become an unwieldy and overstaffed organisation. Occasional
blurring of responsibilities and choking of the administrative machinery has become its
regular feature which thus finds excuse for dilatoriness and delay. Over growth of
personnel has resulted in deterioration in quality. Grouping of subjects in departments
has been observed. There are problems of inter-ministry coordination. Classical view is
that the secretariat should handle only policy, leaving implementation to executive
agencies.
110
The general tendency prevails in the working of the Secretariat is
PUC does not pertains to my seat or this branch approach.
Go slow, play safe, take the longest but the safest route
if pushed, go in circles-Pass on the buck to others like Finance, Planning,

Personnel, Law etc.
Do not take unnecessary headache of solving a problem-Time will find a

solution to every problem
Neither do any work nor deny it, keep the files moving, it will increase the
diary number and justify the work load
Just show the grass to the goat, dont give it to her rather take the goat to
the butchers shop
No innovations please. Do not deviate from the time tested, beaten trackStatus quo is always the safest and hence the best policy.
Government is Central or State Government Centric but not local Government

centric.
Government is anything, but citizen centric. Citizen empowerment is the last

priority.
Secretariat
1.
Assist
Directorate
and
Field.
provide
support to the council of

ministers
2. Taking policy decision
1.
Controlled
by
Directorate
3.
Policies,
and
programmes
2. Implementation part.
management
instructions
issued
by
Secretary.
4.Appropriate
information
3.
Data
complied
and
for monitoring, analyzing
process and supplied by
and
Directorates
reviewing
the
progress of programmes.
111
1. Implementation in field
Administrative system suffers from various structural functional, procedural

and behavioral dysfunctions so that the system lags far behind the goals. The trend in the
developing countries shows it is not in a position to respond efficiently and adequately to
the challenges of development.
Suggestions:
To meet the challenges emerged from the routine working of Secretariat,
following recommendations are suggested:1. Keeping the secretariat small is important for the health of the total setup.
Ministries should concern with policy only. There should be no room for the
implementation.
2. Rural Development Department, Youth Services and Sports, Planning etc. are the
departments where the work is processed on the single file i. e. the matter is
processed on the file of the Directorate right from the cutting edge level staff to
Secretary or Minister level, as the case may be. This results in to speedy disposal
of the matter since file is not processed afresh in the Secretariat. It is
recommended that the system may be followed for all the cases in all the
departments to facilitate the speedy disposal of the cases as well as to cut short
the levels of examinations and unnecessary paper work.
3. There is a need for benchmarking of different works which are referred to the
Secretariat since it takes a long time to actually reach to the decision.
4. There is also a need for the appropriate propagation of Good Governance and
Public
Service
Delivery
mechanism
with
an
approach
to
Citizen
Centric
Administration since the veterans of the system have still not understood the
changed role of government from a regulator to Facilitator.
5. The areas of jurisdiction despite of their quite clear demarcation in the Rules of
Business and Business Allocation Rules, there exists a tendency to encroach in the
area of lower level of hierarchy.
6. There should be a clear cut declared policy on Personnel Administration since at
present there is no declared Personnel Policy in the state.
7. The maximum possible use of e-governance should be introduced for the
personnel matters through web enabled interface since the cutting edge level
112
secretariat staff play their jugglery tricks on such issues and keep on tossing the
matter by sending the files to one or the other department un-necessarily.
8. The state secretariat should invariably draft and display a citizen charter with its
all the ingredients clarifying the issues of stake holders which is totally missing at
present. Designate Citizen Charter Officers in each department of Secretariat.
V.
PERSONNEL POLICY
Personnel policy provides the guidelines for employment relationships in the organization.
Personnel Policies could be interpreted as the recognized intentions of the top
management with respect to manpower management in the organization. It is all the
more important to integrate the management objectives with regard to the utilization of
manpower by applying situational thinking to the desired result through the people in
action. In the state of Himachal Pradesh, there is no declared policy such as Personnel
Policy but the Hand Books of Personnel Matters in its three volumes published by
Personnel Department in 1995 is the Bible for personnel affairs. In addition to this, the
instructions issued by Personnel Department and Finance Department from time to time
serve the guiding principles of personnel administration in the state. An effort has been
made in the succeeding paragraphs to take account of the key ingredients of the
personnel policy in the state. In the first part of it, an elaboration of the existing scenario
has been detailed and thereafter, the substantive issues have been taken up.
1.
Categorization
The different categories of personnel can be divided in to two main parts on
broader terms. First relates to Ministerial Services which deals with the routine work of
establishment accounts and general office administration .Second category relates to
specific personnel i.e. work specified employees of the department. These could be
Engineers in PWD and IPH, Lecturers and Teachers in case of Education Department,
Doctors and Paramedical staff in Health Deptt, Veterinary Doctors in Animal Husbandry
Department etc. The Service matters of gazetted officer are dealt and processed in
Secretariat whereas in case of non-gazetted staff, the service matters are processed at
the directorate headquarters. These services are further classified in to Class I, II, III and
IV Services, Class I and II are gazetted services Class III and IV are the cutting edge
113
level officials engaged in the processing of matters. Class-IV services generally perform
odd jobs. They include :- Peons, Chowkidar, Mali, Sweepers official etc.
1.1
Classification of Posts
(a) Classification
The services/posts in the State are classified into the following four classes:1. Class I
2. Class II
3. Class III
4. Class IV
The Classification of a service/post is indicated either through a special
notification/order or in the statutory Recruitment and Promotion Rules framed under

proviso to Article 309 of the Constitution of India.
The classification of a service/post is normally made with reference to the
scales of pay and the general pattern of duties and responsibilities of the service/post.
(b) The norms
The State Government has prescribed the norms for classification of
service/posts from time to time. Consequent upon the revision of pay scales of
services/posts in Himachal Pradesh the criterion for classification of services/posts has
been revised and it has been decided that classification has been determined on the basis
of following norms:Class-I -
Posts in the initial entry revised scales of pay having

maximum of Rs. 11660/- and above.
Class-II-

maximum ranging between Rs. 10640/- to 11659/-.
114
Class-III -

maximum ranging between Rs. 5160/- to 10639/-.
Class-IV-

maximum of which is less than Rs. 5160/- .
The above norms are effective from 3rd May 2001 and do not affect
adversely the class of any post already assigned under a specific or special order of the
Government.
1.2
Character of Posts
(a)
Ministerial or non-Ministerial
For various purposes, the posts are classified as Ministerial or nonMinisterial, depending upon the nature of the job of the post. According to Fundamental
Rules 9(17), a ministerial servant means a government servant of a subordinate service
whose duties are entirely clerical and any other class of servants especially defined as
such by general or special order of a local Government.
(b)
Scientific/Technical
Depending upon the nature of the duties, the posts are characterized as
scientific or technical. The criteria for declaring posts as scientific/technical are led down
in the Cabinet Secretariat Memorandums. Administrative Departments are themselves
competent to declare the post as Scientific/Technical in consultation with the Finance
Department and Department of Personnel in doubtful cases.
(c)
Industrial or non-industrial
Such of the staff who come within the meaning of Workmen for the
purposes of Industrial Disputes Act, 1946, as amended from time to time are classified as
Industrial Employees.
(c)
Tenure Posts
115
According to F.R. 9 (30-A), Tenure post means a permanent post which an

individual Government servant may not hold for more than a limited period. In case of
doubt, a local government may decide whether a particular post is not a tenure post.
1.3
Status
For conferring of a gazetted or non-gazetted status, the following norms
are generally observed:(i)
Class-I posts and Class-II non ministerial and executive posts

should ordinarily be given gazetted status.
(ii)
Class-II ministerial posts may be given gazetted status only on very

special consideration, such as, the following:
(a)
The officer already had gazetted status before appointment.
(b)
The officer has commissioned or gazetted officers under his

orders.
(c)
The officer performs duties of a technical character requiring

qualifications.
(d)
The officer is periodically left in charge of the office during

the absence of his superior on tour and has to dispose of
business and to deal with gazetted officers or businessmen
on behalf of his superiors.
(iii)
Class-III and Class-IV posts are to be treated as rule as nongazetted.
1.4
Ex-officio Secretariat Status

The instructions for the conferment of ex-officio Secretariat status on
officers holding non-secretariat post are contained in the office memorandum of Ministry
of Home Affairs. According to these instructions, Secretariat status is necessary only for
those officers who:-
116
(a)
Sign
communications,
orders
or
notification
on
behalf
of
Government or
(b)
Within the limits of the Rules of Business, take decisions on behalf of

Government.
Where there is a departure from the conditions stated at (a) above, the Exofficio status would lapse with the transfer/retirement of the incumbent. The conferment
of ex-officio secretariat status on any non-secretariat officer does not add to the status of
the post held by him.
1.5
General conditions regulating the services:

As and when person joins on any post, he is governed by certain set of rules
regulating the recruitment and conditions of services framed under article 309 of
constitution. His financial benefits are subject to the provision of the rules and even after
his retirement on attaining the age of compulsory retirement on superannuation when
govt. servant gets monthly pension which is also subject to the good conduct of such
persons even after retirement. As for as the state government is concerned, the H.P.
Government has adopted central rules which are now applicable to the state employees.
All employees have been made to be are governed by
these rules by issuing notification
under Article 309 of the constitution by the State govt. The state government in future
may also adopt these rules/amendments as such or may adopt with certain modification
as it may deem fit. General conditions regulating the services of employees are detailed
as under:1.6
Age for entry in service:

For Class I and II officers.
21 to 45 years
For Class III and IV

1.9
18 to 45 years
Procedure for change of date of Birth:

The govt. servant may request in writing for recording change in date of
birth within two years from the date of entry into service. If there is any bonafide clerical
mistake in the date of birth on the basis of documentary proof i.e. Panchayat/Municipality
certificate/record and horoscope etc. On the basis of proposal sent by the HOD to the AD,
117
the govt. may accord approval for carrying out correction in the date of birth in the
service record/service book of such a serving person. Without prior orders of the govt.
date of birth once recorded in the service book can not be altered.
1.10
Age of compulsory retirement in H.P.
All India Services and Class IV employees
60 years
Who entered service up to 10.5.2001

All other state services Class I,II,III & Class IV
58 years.
who joined service on or after 11.5.2001.

1.11
Definition of Civil Service:
Civil Service means when civil servants of union or state get their salary from the
consolidated fund of India.
Article: 309: Recruitment and Conditions relating to Services of Civil Servants
Notwithstanding anything contained in the constitution, act of Parliament or legislature for
central and state civil servants may regulate the recruitment and conditions of services of
civil servants. Further the President/Governor may frame the law relating to these
services. The following set of service rules have been framed under Article 309 of the
Constitution:1.
Fundamental and Supplementary Rules(Part-I)
2.
Supplementary Rules(TA)
3.
CCS(Pension)Rules,1972
4.
CCS(conduct) Rules,1964
5.
CCS(CCA) Rules,1965
6.
CCS(leave) Rules,1972
7.
GPF Rules,1960.
These rules have been adopted by H.P. Govt. for its employees by issuing
Notification under Article 309 of the Constitution. Whenever any subsequent amendments
118
are carried in these rules by Central government, the state government adopts these as
such or with certain modifications.
1.12
Basis for selection and Non selection Posts:
Classification
Whether
selection
Criteria
Non selection post.
Promotion:
Class I & II
Selection Post.
Merit cum seniority
Class III & IV
Non selection posts.
Seniority cum merit
1.13
for
Master pay Scale:
The master pay scale as applicable for the employees of different categories in the State
rises from minimum to maximum in a master pay scale covering categories of all pay
scales Rs. 2520-23600 (Min. start from 2620)
1.14
Creation of Posts
In view of the financial discipline presently State Government
has
imposed a complete ban on creation of posts except for the post in the functional
department like Health and Education Departments, just not to mention creation of posts,
the State Government has even kept a blanket ban on filling up the vacant posts. The
vacant posts are also filled up only in the functional departments. The state has
embarked upon a regime of downsizing the different cadres. In the recent past, certain
vacant posts have been abolished in various departments. To reduce the financial burden,
new posts are filled upon contract basis, tenure basis and certain activities like sanitation
etc are being outsourced to reduce the financial burden.
1.15
Recruitment
There are two recruiting agencies existing in the state. First, H.P. Public
Service Commission, located at Shimla, is the recruiting agency for gazetted services.
Another agency engaged in this respect is H.P. Subordinate Services Selection Board,
located at Hamirpur. The Board is a recruiting agency for the Class-III services in the
state. In case of Class-IV services, there is no centralized recruiting agency. These posts
are filled up by on the basis of names sponsored by the Employment Exchange. At times,
119
there are deviations in this practice and the process lacks the transparency. In case of
boards, corporations, universities and autonomous bodies, above agencies are not serving
as the recruiting agencies.
1.16
Recruitment & Promotion Rules

Article 309 of the constitution provides that Acts of the legislature may
regulate the recruitment and condition of the service of the persons appointed to public
service and posts in connection with the officers of the state and until provision is made
by or under an act, the executive has been authorized to make rules regulation, the
recruitment conditions of service of persons appointed to such services and posts. The
state legislature has not made any act under Article 309 and as such all R&P Rules for
different services and posts have been framed under proviso to Article 309 of the
Constitution of India.
The R&P Rules for a service or post ,besides providing name of the service
post , number of posts, pay scale and classification, also specify certain provisions as to
the mode of recruitment, method of recruitment, age limit, qualifications and experience
for direct recruitment; service requirement for promotion, probation, reservation,
departmental examination and powers to relax the rules. These provisions of the rules
enable the completed authority to make selections and appointments of the suitable and
eligible incumbents to man different posts.
With a view to maintaining uniformity of R&P Rules for the posts, a standard
proforma has been devised in consultation with HP Public Service Commission and all R&P
rules are required to be drafted on the standard proforma. The procedures adopted for
framing R&P rules is as under:1. Draft rules are first prepared in the administrative department in Secretariat and
placed for consideration and approval of the Secretary and Minister-in-charge.
2. Government has issued instruction to finalize R&P rules with in three months and
to be published in form of booklet.
3. Earlier, in pre 1986 era, the draft rules so prepared were placed before the Rules
Sub-Committee for scrutiny which comprised of representatives of Personnel,
Finance, Law and the Administrative Department. A major change took place in
120
the end of 1986 that provided recruitment & promotion rules or any amendments
are to be processed by
Administrative Department
on their relevant files and
there after submitted to the Personnel Department first and thereafter to Law and
Finance Deptt.
4. The rules so approved as mentioned above are sent Rules Committee for scrutiny.
The Rules Committee comprises of Chief Secretary, Secretary (Finance), Secretary
(Personnel), Secretary (Law), Jt. Secretary (Personnel) and Secretary of the
department concerned.
5. After scrutiny and approval of the recruitment & promotion rules /amendments to
existing rules by the committee, the Administrative Department is required to
consult the HP Public Service Commission for proposed
recruitment & promotion
rules.
6.
Administrative Department has to place the matter before the Council of Ministers
stating in clear terms- the views/comments/ observations of the HP Public Service
Commission in the memorandum which is prepared for taking up the matter to
Council of Ministers. The memorandum is required to contain detailed justifications
for non-acceptance, if so, of the views /comments /observations of the Public
Service Commission. The decision of the Council of Ministers there on is to be
implemented.
7. As per the provisions of the schedule read with the rules 14 to 16 of the rules of
business of Government of Himachal Pradesh, 1971, all rules to be framed under
the provision of article 309, of the Constitution of India excepting routine
amendments which are to be placed before the council of ministers after having
been processed in the manner prescribed above.
8. Thereafter approval of the recruitment & promotion rules or amendments to the
existing rules, the draft notification is to be prepared in Hindi with English
translation by the Administrative Department and got vetted from the Law
Department. After vetting from the Law Department, the notification is to be
issued by the Administrative Department with the approval of the competent
authority. A copy of the notification is sent to Printing and Stationery Department
for publication in the official gazette.
9. The notified rules or amendments to the existing rules after publication in the
official gazette, the same are to be placed before the Legislative Assembly in its
next session.
121
4.2
Ingredients of R & P rules:
The following are the salient features which must be incorporated in R& P rules of
Particular category of Posts:
1.
Entry age in initial recruitment,
2.
Designation of the post,
3.
Pay scale of the post,
4.
Whether selection/Non selection post.
5.
Classification of post.
6.
Essential education/technical qualification/desirable qualification.
7.
Minimum working experience on lower post (qualifying service).
8.
Probation period.
9.
Whether passing of Deptt . Examination necessary.
10.
Mode of recruitment (Proportion between direct and promotion).
Challenges
It has been seen that different departments have prescribed different promotion quotas
for employees in their organisations. Sometimes, it is 100 % by promotion after the one
initial entry to the Cadre, in some departments it is 50:50 between direct and promotion
candidates and some where it is 75:25. This situation becomes quite alarming when
candidates are selected from the one single exam go to different departments. One
candidate going to an organisation with 100% promotion quota has a better career
options in comparison to one
The candidates for different posts are selected in different departments
through a written examination. Such selected candidates are further sponsored by the
recruitment agencies to different department. Different departments have their own
Recruitment & Promotion Rules for the similar or analogous posts. The title for the post
and the selection criteria for this post will be same but the R&P Rules in separate
departments will have heterogonous promotional avenues viz department A is providing
75% quota for promotion, department B provides 50% quota whereas department C
provides 100% promotion quota. As a result of it candidates selected from the same
competitive examination have different career progression scheme. One with 100% quota
owns the opportunity of a bright career whereas his counter part selected through the
same process goes into 50% promotional avenue gets a gloomy future. This leads to a
122
greater dissatisfaction among such employees. It not only affects their morale adversely
but also tarnishes their morale for the work. They dont find any motivation for work.
Suggestions:
1) As a remedy to above challenge, the best alternative will be to have a
set of common R&P Rules for the posts which are filled up through an
identical single examination or process with the identical career
progress plan for promotional avenues. To safe guard their interests
further, it is also suggested that such posts existing in different
department should have a common cadre so that every one can get
equal opportunity for promotion and no discrimination is faced by any
incumbent.
4.
COMPASSIONATE EMPLOYMENT
Most of Govt. Servants and their families are dependent on the salary of
the concerned Govt. Servant. A sudden death of sole bread earning member of the family
leaves the family in indigent condition and in the need of immediate means of
subsistence. It is only in such compassionate and emergent cases, the employment
assistance is envisaged to be provided. Such employment is admissible in respect of a. A government servant who dies while in service leaving his family in
immediate need of assistance.
b. A serving government servant who has been missing for more than two
years and his family in immediate need of assistance
c. A government servant who dies during the period of extension in service ,
but not re-employed leaving his family in immediate need of assistance
The employment assistance under this scheme to be allowed in order of
priority to widow/widower or son/daughter in case of married government servant and
father/mother or brother/unmarried sister in case of unmarried government servant. The
employment on compassionate grounds can be made only to the lowest rung of class IV
and class III posts carrying the initial entry scale in the hierarchy of pay scales. Such
appointments are subject to the fulfillment of the eligibility conditions regarding
Educational, Technical and Professional qualifications and physical standards. In view of
the policy guidelines of government to fill up only the functional posts, there is a long list
123
of pending cases under this category and only the extreme deserving cases are approved
for compassionate employment by peer scrutiny by Finance Department. A major shift in
the policy is that compassionate employment cannot be demanded as a right now. The
government through the mechanism of Deputy Commissioner seeks a report on the
financial status and genuineness of the indigent conditions of the family of the deceased,
only after that the matter is
6.
considered on the basis of merit.
Recruitment Agencies:
All vacancies in the State Government establishment, other than those filled
through HP Public Service Commission or HP Subordinate Services Selection Board or to

filled by promotion, by transfer by deputation or otherwise authorized to be filled under
specific orders of the Government, are to be notified to the nearest employment
exchange or to all exchanges within the State according to the Government order and no
department or office should fill any vacancy by direct
recruitment, unless the
Employment Exchange certify that they are unable to supply suitable candidates.
The Employment Exchange (compulsory Notification of Vacancies) Act,
1959 was enacted in 1559 and came into force with effect from Ist May, 1960.
6.1
Notification of vacancies:
Under the provisions of the Act/Rules and instructions all establishment s in the
Public Sector and all establishments in the private sector normally employing 25 or more
workers are required to notify certain categories of vacancies to the appropriate Exchange
as notified by the State Government.
6.2
Reservations:
While notifying
vacancies to the Employment Exchange(s), it should be clearly
indicated in the requisition whether or not vacancies are reserved for scheduled castes,
Scheduled Tribes, Ex-servicemen, Physically Handicapped persons, Backward Classes,
Children and Grand Children of Freedom Fighters and for members belonging to the
Antodya/ Integrated Rural Development Programme (IRDP) families. The number of posts
reserved for each category is also to be clearly indicated. It may be noted that the
competent authority sending the requisition is required to sign a certificate at the end of
124
the requisition to the effect that he/she has strictly followed the instructions relating to
the reservations with due regard to the roster required to be maintained in accordance
with the Government instructions.
6.3
Incorporation of Technical qualifications:

Requisite technical qualifications are to be invariably incorporated in the
requisition form while notifying vacancies to the Employment Exchange so that the
persons with requisite technical qualifications are sponsored by the Employment
Exchange.
6.4
Reservations of vacancies for Ex-servicemen or Physically handicapped:

Ex-servicemen
and
dependents:
The
Ex-servicemen
(and
eligible
dependents) should get their names registered at the nearest Employment Exchange. The
Employment Exchange will dispatch duplicate registration cards to the Directorate of
Sainik Welfare, Hamirpur. There is State Selection Committee which interviews the Exservicemen for various posts and prepares a panel of eligible candidates. The department
can send requisition in respect of reserved vacancies for Ex-servicemen to the cell which
will sponsor the names of Ex-servicemen for the reserved posts. The names sponsored by
the cell are considered to have been selected for the reserved posts. The department to
have issue appointment letters to the ex-service men candidates sponsored by the cell
without any interview or test.
6.5
Physically handicapped Persons:
A special cell for the placement of physically handicapped persons has been set up at the
Directorate of Employment, Himachal Pradesh, Shimla, with a view to secure speedy
placement of physically handicapped persons against the posts reserved for them and
also to ensure their immediate socio-economic rehabilitation. The requisitions/demands
for filling up the posts reserved for physically handicapped persons are sent direct to
Employment Officer (Placement) at the Directorate of Employment, Himachal Pradesh,
Shimla who will sponsor three names against a post reserved for physically handicapped
person.
125
6.6
Recruitment of daily rated persons in PSUs:
The Government has issued instructions form time to time for strict adherence that no
recruitment of officials shall be made in Public Sector Undertakings/ Boards/Corporations
and other offices where names are not sponsored by the concerned Employment
Exchange.
Challenges
1. The new techniques of employment have also emerged in the State called Tenure
appointments, contract appointment, Para teachers etc., have too any transparent
system is taking neither any centralized policy nor any generalized procedure has
been drafted to have a justified approach to this aspect.
2. It can be concluded that there is no symmetric system prevailing especially in
PSUs and
Universities, other than
the organised
services in government
departments. The diversified systems of recruitment has not only created unrest
among the unemployed youth, but other stake holders
may lose confidence in
such a system.
3. In Public Sector Undertakings and Boards/Corporations etc., practically no set
system is prevailing. The system of references and recommendations has
encroached the complete zone of policy/instructions, as a result of this many
incompetent and undeserving candidates have been inducted in the organisations
who are not contributing to the institution one hand and have become a liability on
the State exchequer on the other.
4. The recruitment system to class-IV posts is most haphazard since there is no
central recruiting agency like Himachal Pradesh Public Service Commission or
Subordinate Service Selection Board for this purpose. It provides and lee way for
bye pass recruitment which at later stages results into their inefficiency in the
organisation. The system not only lacks transparency but also has a bottleneck to
induct favorites.
126
5. There are three Universities in the State Government Sector, there too no
particularly designed policy for recruitment to different categories of post either
teaching or non-teaching. The methods of recruitment differs in different
categories in inter University and intra University cases.
6. In addition to above, there are certain departments who are themselves in the
practice of recruitment for some particular categories of posts. Health department
for all the categories of Para medical staff, Ayurveda and Animal Husbandry
department are also playing the role of recruiting agencies in case of their para
medical staff like Ayurvedic pharmacists and Veterinary pharmacists. Forest
department has also indulged in the practice of recruiting Forest Guards through
their own system of taking a written examination.
7.
Training:
Training has been defined as a planned process to modify attitude, knowledge
and skill through learning experience to achieve effective performance in an activity or

range of activities to satisfy the needs of an organisation.
All matters falling under ambit of sub head Training and Foreign Assignment of the
Rules of Business of the Government of Himachal Pradesh ( Allocation) Rules 1971 are
dealt with in the Departments of Training and Foreign Assignment in Secretariat. The H.P.
Institute of Public Administration is the nodal department for imparting training in the
State. Training is to be seen as a tool to enhance the performance of a civil servant.
Training is above the process of Education, Education provides knowledge only but
training improves knowledge, skills and attitude which make a person fit to work in the
changing environment. It is unfortunate that there is neither a Department of Training
nor a declared training policy in the State.
There are mandatory trainings in the organised services like All India Civil Service,
State Civil Services and certain other organised cadres, but there is lack of co-coordinated
plan which could ensure every employee of State Government gets training at regular
intervals of his career. In view of haphazard system certain employees never get a
chance for training through out their career on the contrary, a few get it repeatedly. A
prudent view is to be undertaken in this respect.
127
8.
Promotion and Selection Grade:

Promotion is one of the modes of filling up a post. The advantage of
promotion as a method is that the promoted person comes to the new job with some
experience of the work and knowledge of the organization and its ethos. On the other
hand where specialized knowledge and qualifications involving academic or technical
disciplines are concerned, promotions may not always be the best method since direct
recruitment is more likely to make available persons well versed in the latest advances
and techniques. In many posts the Rules for filling up of post may, as working
compromise, provide for both direct recruitment and promotion in a definite proportion so
that there is a blend of experience with the fresh blood. From a personnel management
point of view promotions provide incentives for the incumbents and help keep up morale
and efficiency.
8.1
Departmental Promotion Committees:

All cases for regular promotions are to be first considered by the
Departmental Promotion Committees, which have been constituted for each Department
category wise. The D.P.C. is to be guided by the instructions as issued by the Govt. from
time to time and the Department is required to place complete and correct information
before the D.P.C. The D.P.C. has to take care that:1) Every person eligible for promotion as per the relevant Promotion Rules and
in the field of choice is considered for promotion;
2) The Standard for promotion
i.e. qualifications, service in the feeder
category as prescribed in the Recruitment and Promotion Rules are strictly

adhered to and only eligible persons are considered.
3) A uniform standard is followed for making assessment of all the persons.
4) The proceedings of the D.P.C. and the select-lists are prepared strictly in
accordance with the instructions of the Government.
5) Instructions relating to reservations, sealed cover procedure in respect of
Govt.
servants
facing
departmental/
criminal
proceedings
and
recommendation for their adhoc promotion, wherever permissible, are kept

in view while preparing the select lists.
128
8.5 Frequency at which D.P.C. should meet:
The D.P.C. should be convened at regular annual intervals to draw panels

which could be utilized for making promotions against the vacancies occurring during the
course of a year. It has been observed that Departments do not convene meetings of the
D.P.Cs. annually for various reasons even though eligible officers of the lower grade were
available and the vacancies in the higher grade were also available for their promotion.
Sometimes, meetings of the D.P.C. are also not convened annually under the impression
the a penal, prepared by a D.P.C. for filling Selection posts could be kept operative for a
period of
one year and six months and that, therefore, action to convene the next
meeting of the Departmental Promotion Committee need the initiated only after the
expiry of that period.
8.8
Classification of posts for purposes of promotion:
For the purpose of promotion, posts should be classified into the following
two categories:(i)
Selection posts, i.e. posts promotions to which are to be made by

selection, based on merit, with due regard to seniority.
(ii)
Non-selection posts, i.e. posts promotions to which are to be made by

seniority subject to rejection of unfit.
There are different norms for preparing select list for both the categories.
9.
Adhoc appointment:
Recruitment and Promotion Rules of all posts are required to be framed under Proviso to
Article 309 of the Constitution of India. Further all appointments are required to be made
strictly according to the provisions of the Recruitment and Promotion Rules and by
following the prescribed procedure. Any appointment which is made without following the
129
provisions of the Recruitment and Promotion Rules or the prescribed procedure is to be

termed as adhoc appointment.
9.1
Circumstances:
Adhoc appointment is only an exception to meet a certain emergent
situation and has to be for a specified short-term duration. In direct recruitment, since
selection of a suitable candidate is to be made from open market or from amongst the
candidates is to be made from open market or from amongst the candidates sponsored
by the Employment Exchanges, adhoc appointment in direct recruitment is not
permissible.
Adhoc appointments in promotion can be made in the following situations:-
(a)
Where seniority list of feeder category posts has not been finalized;
(b)
Where the Court/ Tribunal has stayed finalization of seniority list or

restrained regular promotions being made.
(c)
The select list prepared by the D.P.C. and approved by the appointing
authority has either been exhausted or is not valid;
(d)
Eligible officials/ officers do
not possess the requisite service or other
requirement of rules and it is essential to fill the post by promotion;

(e)
The Recruitment and Promotion Rules have not been framed for the post ,
but the post is intended to be filled by promotion in consultation with the
Public Service Commission and Department of Personnel; and
(f)
The post has been created for a specific short period and the duration is so
short that it is not desirable to frame the R&P Rules, provided the mode of
promotion in concurred in by the Public Service Commission and the
Personnel Department.
9.2
Adhoc appointments in the absence of R & P Rules:

The Government has considered this matter and has felt that it is not
necessary to consult the Commission for appointment to a temporary post for a period
not exceeding six months only where the recruitment and promotion rules stand notified.
However, where the method of recruitment has not been determined in consultation with
the Commission such action of the Department would be violation of the provision
contained in Article 320 (3) (a) and (b) of the Constitution of India.
130
9.3
Departmental Examination & Adhoc appointments:

Such
gazetted
officers
as
are
required
to
pass
the
Departmental
Examination according to the provisions of the Rules and have not passed such
examination are not promoted to higher posts, even on adhoc basis, unless and until they
pass such examination or exemption is accorded in their case by the Government after
prior consultation with the Commission.
10.
Deputation:
In the R& P Rules, deputation is generally been kept as one of the method
of recruitment in case of non-availability of an eligible candidate in the feeding cadre post

or otherwise.
10.1
Scope:
The detailed guide lines issued by Finance Department, H.P. in 1999 and
revised in 2006 clarifies that the term Deputation will cover only those appointments
that are made by transfer on temporary basis provided the transfer is outside the normal
field of deployment and is in the public interest. In case of appointment on deputation/
foreign service from State Government to State Govt. and in those cases whose the scale
of pay and dearness allowance in the parent cadre post and ex-cadre post are similar, a
person in a higher scale of pay shall not be appointed on deputation to a post in lower
scale of pay.
No deputation allowance is admissible in the state. Finance Department in
the year 2001 has replaced the term deputation with the word Secondment to maintain
the financial discipline. The employees will go on deputation/secondment in their own pay
scales and no deputation allowance will be allowed. The resultant posts in the lending
department(s) will not be filled by any mode of recruitment. It was also clarified that the
borrowing department will bear all expenses on account of salary and other entitlements
of the employees sent on secondment. The term secondment is not tagged with any
financial benefit like deputation allowance. More over to impose strict financial discipline,
Finance Department has also clearly specified that the posts falling vacant on account of
131
incumbents going on secondment basis to other department, will not be filled up by any
mode of recruitment.
10.4
Tenure:
The period of deputation/secondment shall be subject to a maximum of
three years in all case except for those posts where a longer period of tenure is
prescribed in the Recruitment Rules. The AD/borrowing organisation may grant extension
beyond this limit upto one year after obtaining orders of their secretary in the case of the
State Govt. and in respect pf all other cases the equivalent level, whose such extension is
considered necessary in public interest.
The borrowing departments/ organisations may grant extension for the fifth
year or for the second yea in excess of the period prescribed in the R&P Rules where
considered absolutely necessary. Any relaxation of these terms and conditions will require
prior concurrence of Finance Department and Department of Personnel.
Challenges:
1. The state government has formulated the suitable policy on deputation but the
focus issue in the policy is to certain the financial burden on the state
exchequer. The policy was introduced and revised, both by the Finance
Department, however, an appropriate policy could have been drafted by the
Personnel Department who have a mandate for it.
2. The core issue i.e. selection procedure for inviting a candidate for selection is
completely missing in the policy.
3. The roles and responsibilities of both lending and borrowing departments have
not equally weighed which has resulted into and in-balance between the two
parties.
4. The financial accruals to the person going on deputation have been stopped by
the government, there is need to make deputation postings more attractive.
RECOMMENDATIONS:
132
1. A balanced and appropriate policy on deputation needs to be drawn

considering all the aspects i.e. equal weight-age to both the parties as well as
the applicant, time period is sufficient for the NOC by the landing department
and its revalidation etc.
2. In the policy, the selection procedure to be specified clearly giving suitable
weightage to educational qualification, experience and training received etc.
3. A transparence system could be evolved by inducting person through a written
test and an interview.
4. The State Government has curtailed all the financial benefits for the persons
going on deputation thus, the next lower grade candidates should also be
considered for such deputation as per the provisions laid down in the Handbook
of Personnel Matters, i.e. The field for deputation/transfer should, as far as
possible, consist of officers holding analogous posts but may be widened to
include officers working in the next lower grade also with the qualifying service
normally as prescribed for promotion.
11.
REGULARIZATION OF DAILYWAGERS:
There are a large number of employees recruited in the government on
daily wages basis. The government has also framed a policy for their regularization in
different departments against the available vacancies.
After careful consideration, the Government has decided that the Daily
Waged/Contingent paid workers in all the Departments, including Public Works and
Irrigation & Public Health Departments, who have completed 8 years of continuous
service (with a minimum of 240 days in a calendar year except where specified otherwise
for the tribal areas) as on 31.3.2004 may be regularized against vacant posts in various
departments. However, where the vacancies do not exist in the department, the question
of creation of posts for regularization of such eligible daily wagers may be considered on
merit on a case to case basis by the Government. Completion of required years of service
makes such daily wager/contingent paid worker eligible for consideration to be
regularized. Regularization in all cases will be from prospective effect i.e. after the date,
the order or regularization is issued after completion of codal formalities. The
regularization will be subject to the observance of the following terms and conditions:-
133
11.1
NORMS/PRINCIPLES
The norms and principles regarding regularization of daily waged/ contingent paid
workers applicable in the state are as under:a) Daily waged/contingent paid workers who have completed 8 years of continuous
service (with a minimum of 240 days in a calendar year except where specified
otherwise for the tribal areas) as on 31.3.2004 may be considered for
regularization against the available vacancies in various departments and the
terms & conditions for such regularization shall be governed as per the instructions
of the government.
b) 8 years of continuous service is only an eligibility criteria and regularization shall
be only from prospective effect i.e. after the date the order of regularization is
issued after completion of codal formalities.
c) The daily waged/contingent paid workers being considered for such regularization
shall possess minimum educational qualification as prescribed in the Recruitment
& Promotion Rules of such post.
d) In case of a Daily waged/contingent paid worker, who has worked for less than 8
years on higher wages, on a higher pay scale post, he will be considered for
regularization by combining the service both in the lower scale post and higher
scale post but he shall be regularized on a lower post because for regularization on
a higher post, 8 years complete daily wage service on the higher pay scale post
shall be essential.
e) The daily waged/contingent paid workers may be regularized against the
posts/vacancies of relevant categories purely on seniority basis subject to rejection
being unfit and by doing so incase any roster point for reserved/feeder category
remains under utilized, these shall be made good in future recruitments by filling
up the backlog first.
f)
Such daily waged/contingent paid workers, who were within the age limit
prescribed for direct recruitment at the time of engagement on daily wages basis,
may be given relaxation in age limit while regularizing their service, if they have
crossed the maximum age limit as prescribed in the Recruitment and Promotion
Rules.
134
g) Such daily waged/contingent paid workers, who have been engaged without being
sponsored by the Employment Exchange, may be given relaxation while
regularizing their services.
h) The department(s) are not required to make prior consultation with the HP Public
Service Commission for regularization of services in case of those posts which fall
within the purview of the HP Public Service Commission.
i)
The Seniority of the Daily Waged/Contingent Paid Workers as are regularized

under this policy vis--vis employees appointed on regular basis shall be
determined on the date of issue of these policy instructions. The inter-se-seniority
of such Daily Waged/Contingent Paid Workers shall be determined in accordance
with order of regularization of such daily wager based on seniority as daily wager.
j)
There shall be no resultant vacancy by way of such regularization because such

vacancies shall be abolished.
12.
ASSURED CAREER PROGRESSION SCHEME:

As a result of a revision of pay scales w.e.f. 1.1.1996, assured career
progression scheme for regular employees of government was introduced by Finance

Department Notification in 1998 which was effective from 1.1.1996. Clarification on
various terms used in the notification have been issued from time to time. The silent
features of this scheme are as under:
i)(a)
After a service of 8 years in a post or posts in the same cadre an employee

who is not promoted to the next higher level on account of non availability
of vacancy at such higher level or non existence of a promotional level in
the cadre shall be granted the pay scale which is next higher in the
hierarchy of pay scales given in the scheduled next to rules 1998. An
employee becoming an entitled to a higher pay scale on account of
protection under the said rules, pay shall be grant such higher pay scale.
(b)
On the grant of higher pay scale as in the para (a) above, the pay of the
employee shall be fixed at the next higher stage in the master scale and he
shall be allowed next increment from the date he would have earned his
next increment had he continued in the lower pay scale. If the minimum of
the higher scale is higher than the stage arrived at, his pay shall be fixed at
135
such minimum and next increment shall be allowed after qualifying service
of 12 months.
ii)
A proficiency step up shall be grant such an employee after 16 years of service

and a second proficiency step up shall be granted after 24 years of service if the
employee still continues in the same post. Service rendered by an employee in the
lower and higher pay scale granted as per para (a) above shall be reckoned as
service in the same post for this purpose.
iii)
In case an employee continues to serve in the same post even after 32 years of
service he shall be placed in the next higher pay scale in the hierarchy of pay scale
as indicated in the first schedule next to the rules.
iv)
Service in the same post rendered before 1.1.1996 or the date opted for by an
employee shall count for the purpose of this scheme, subject to the fulfillment of
other conditions.
v)
Pay of an employee who was in service before 1.1.1996 shall be first fixed in the
revised pay scale admissible to him under Rules 1998 and than regulated as
under:a)
An employee who has render 8 years but less than 16 years service in the
same post and has availed the benefit of one proficiency step up under the
existing instructions shall be placed in the higher scale without benefit of
any increment i.e. his pay will be fixed at the same stage in the master
scale, since he has received one progression and has received a
commutative benefit at the time of pay fixation in lower revised pay scale.
He shall be treated to have been placed in the higher pay scale on the date
he has given the proficiency step up. He shall be eligible for further benefits
under this scheme as per paras (ii) & (iii) above.
b)
An employee who had completed 16 years of service but less than 18 years
of service in the same post and has been allowed benefit of one proficiency
step up under the existing instructions shall be placed in the higher pay
scale after giving him benefit of one increment. He shall be deemed to have
136
been placed in the higher scale after 8 years of service and grant first
proficiency step up after 16 years of service he shall be eligible for second
proficiency step up and grant of higher pay scale as per (ii) & (iii) above.
c)
An employee who had completed 18 years of service in the same post and
has been allowed benefit of 2 proficiency step up under the existing
instructions shall be placed in the higher scale without benefit of increment
by adjusting his proficiency step up granted after 8 years of service. He
shall be notionally treated to have been placed to the higher pay scale after
8 years and granted first proficiency step up after 16 years. He shall be
eligible for second proficiency step up and placement in the higher scale
when he completes 24 years and 32 years in the same post.
vi)
If an employee promoted to the next higher promotional post in the regular way at
any time before one of the benefit under the scheme become due, the grant of such
benefits shall stand postponed accordingly and shall be granted after completion of
service of 8 years in such promotional post. If the promotion of an employee to higher
post occurs after having got placement in higher scale or the proficiency step up under
this scheme, the benefit of only one increment in stead of 2 increment normally
admissible on promotion shall be given in fixing his pay in the scale of pay of the
promotional post.
vii)
An employee shall be entitled to the maximum of two placement in the higher
scale and a maximum of two proficiency step up in his entire service career under this
scheme.
viii) ELIGIBILITY AND PROCEDURE
The eligibility and procedure for placement in higher scale/proficiency step
up has been specified as under;a) Placement in higher scale and proficiency step up under this policy shall be
granted only to those employees whose overall service record is adjudged as
GOOD.
If a departmental test is prescribed or acquisition of higher
qualification is a pre-requisite for promotion to the higher level, then only
137
those employees who clear such test or acquire such qualifications should be
eligible for benefits under this scheme. The clarification with regard to term
Over-all Service Record is adjudged as GOOD has been explained that
50% report shall be good and above, including at least two of the last three
annual confidential reports. The rest of the annual confidential report may be
satisfactory.
b) The competent authority for the grant of benefits under this scheme shall be
the same as in the case of promotion. Representation/Appeals against the
grant of higher pay scale/proficiency step up under this scheme shall also lie in
the same manner as in the case of promotion.
ix)
On placement to the next higher pay scale under this scheme an employee to do
the same work with same designation. Their will be no need for creation of any
separate posts etc. and the employee shall remain on the strength of the same
cadre.
12.1
Career progression scheme Junior Engineer
of PWD
and IPH
Departments
The above scheme is not applicable to Junior Engineer in the department of Public Works
and IPH for whom a separate career progression scheme has been circulated as under;1.
SALIENT FEATURE OF SCHEME:

a) After a service of 8 years in a post in the same Cadre , a Junior Engineer in the
existing Revised Pay scale of Rs. 5800-9200 in the State, who is not promoted to
the next higher level on account of non availability of a vacancy at such higher
level or due to non existence of a promotional level in the Cadre, shall be
granted next higher scale in the hierarchy of Pay Scales give in column No. 3 of
the First Schedule annexed to the Himachal Pradesh Civil Service (Revised Pay)
Rules, 1998 (hereinafter referred to as the Rules, 1998) i.e. shall be granted next
higher scale of Rs. 6400-10640 with same designation;
b) On the grant of higher pay scale in sub-para (i) above, the pay of the employee
shall be fixed at the next higher stage, i.e. his pay shall be stepped up to ensure
138
benefit of at least one increment at the time of such placement in the higher scale
so allowed and he shall be allowed next increment from the date he would have
earned his next increment had he continued in the lower pay scale. If the
minimum of the higher scale is higher than the stage arrived at, his pay shall be
fixed at such minimum and next increment shall be allowed after a qualifying
service of 12 months;
c) After a service of 16 years in a post in the same Cadre , Junior Engineer in the
scale of Rs. 6400-10640 in the State, if he still continues in the same post, shall
be granted next higher scale of Rs. 7200-11320 with Class-II (Gazetted) status
and designation of additional Assistant Engineer. Service rendred by an employee
in the lower and higher pay scale granted as per (i) above shall be reckoned as
service in the same post for this purpose, and his pay shall be fixed as mentioned
in sub para (ii) above.
d) With the grant of Class-II (Gazetted) status and designation of Additional Assistant
Engineer, there will be no additional to the cadre strength of Junior Engineer.
e) The officials placed in the higher scale and granted status of Additional Assistant
Engineer will continue to discharge the same duties and exercise same powers.
2.
Pay of an employee shall be fixed subject to the provisions of Revised Pay Rules
notified from time to time. If the promotion of an employee to higher post occurs after
having got placement in the higher scale under these instructions, benefit of only one
increment instead of two normally admissible on promotion shall be given in fixing his
pay in the scale of the promotional post.
a) Where an employee has already completed more than 8 years but less than 16
years of service and has availed benefit of placement under the instructions
bearing No. Fin(PR)B(7)51/98, dated 15th December 1998, he shall be placed in
the scale of Rs. 6400-10640 with effect from the date of implementation of
these decisions without benefit of any increment i.e his pay shall be fixed at the
same stage in the higher scale since he has received one progression on
placement to the next higher pay scale under the Assured Career Progression
Scheme i.e under the instruction dated 15th December, 1998(ibid).
b) Where an employee has already completed 16 years of service and has already
been allowed the benefit of placement in higher scale and proficiency step up
under the Assured Career Progression Scheme in view of the instructions
bearing No. Fin(PR)B(7)51/98, dated 15 th December, 1998 as on the date of
139
implementation of these decisions or who has been allowed a revised equivalent

of Rs. 7220-11320 under the Himachal Pradesh Civil Services (Revised Pay)
Rules, as a measure personal to him, such incumbents shall be placed in the
Revised Pay Scale of Rs. 7220-11320 with Class-II (Gazetted) status and
granted designation of Additional Assistant Engineer without benefit of any
increment i.e. his pay shall be fixed at the same stage in the higher scale so
allowed under these instructions.
3.
Only regular service rendered by an employee in the Cadre of Junior Engineers
before the issue of these instructions shall count for the purposes of these decisions.
4.
The entire service adjudged as satisfactory from entry scale of Junior Engineer
onwards shall be taken into consideration. The procedure for assessing the work and
conduct for placement in the higher scale shall be the same as is applicable to a case of
promotion. The placement in the higher scale shall be allowed only to those employees
whose overall service record during the span of satisfactory service is adjudged as Good
and the employee is otherwise suitable for promotion. Good record shall mean that
more than 50% Annual Confidential Reports are good and out of last three years available
reports at least two are Good. For all the remaining years the benchmark may be
Average.
5.
The case for placement to the next higher scale shall be taken up at least three
months before the due date. For a case becoming eligible before 30 th June of a financial
year, the annual confidential reports up to the 31 st March of the preceding year only shall
be considered.
6.
In case an employee is found unsuitable for the grant of higher scale on a
particular date, his case will be reviewed thereafter for the grant of benefit under these
instructions on year to year basis and he will be granted that benefit from the date when
he is found suitable for the same. The suitability for this purpose shall be determined
after taking into consideration the Annual Confidential Reports of the employee concerned
upto the 31st March, of each year.
7.
Non-grant of benefit under these instructions shall not be considered as a
punishment under the Central Civil Service (CCA) Rule, 1964.
140
8.
Competent authority for the grant of benefit under these instructions shall be the
same as in the case of promotion. Representations/Appeals etc. against the order of nongrant shall also be dealt in the same manner as in the case of promotion.
9.
The decisions contained in these instructions will primarily be implemented in the
department of Public Works and Irrigation and Public Health Department. In the
Department where specific higher/different pay structure has been allowed the decisions
contained in these instructions shall not be application.
13.
Annual Confidential Reports:
The ACR of a Govt. servant is a performance appraisal by his superiors of his official
work. The reports give an account of the good and bad qualities of a Govt. servant with
regard to his official assignments, temperament, behaviours, character, integrity, conduct
etc. while performing his official duties and in context of his behaviour with his
colleagues, superiors and public. In the case of gazetted officers, the annual targets/
assignments and the corresponding achievements are given as self-appraisal by the
officers concerned, which are commented upon by the superiors. The ACRs recorded over
a period of time is a dissertation of the traits and abilities of a Government servant which
are used to consider his career advancement plan.
13.2 Purposes
Purposes for which Annual Confidential Reports are considered Annual confidential reports
of a Govt. servant are or can be made use of in his service career in the following
matters: (i) Determination of working/conduct during probation period;
(ii) Confirmation;
(iii) Suitability for a particular type of post or assignment;
(iv) Grant of Senior Scale(s) in the present service/post;
(v) Grant of Selection Grade in the present service;
(vi) Crossing of efficiency bar;
(vii) Promotion to higher service/post;
141
(viii) Punishment, appeal, memorial etc.

(x) Premature retirement;
(x) Grant of extension/re-employment;
(xi) Grant of awards;
(xii) Approval of service for the grant of full Pensionary benefits etc.
The Annual Confidential Reports are accordingly be maintained properly and the
confidential
reports
dossier
are
should
always
be
kept
updated.
The need for maintaining up-to-date confidential reports had been stressed by the Govt.
from time to time. The confidential reports of an officer have to be consulted for various
purposes
e.g.
promotion,
confirmation,
punishment,
appeals,
memorials
or
the
preparation of pension papers. If there is failure to maintain these reports properly, such
failure can cause serious inconvenience in connection with the disposal of cases
concerning the above matters and thus lower the standards of administration. It is
therefore emphasized that the due dates on which the reports are to be written and
submitted to the higher authorities must be strictly adhered to and that a certificate
should be furnished by all Heads of Departments to their Administrative Secretaries
concerned to show that all confidential reports have been recorded in their respective
departments on or about the due dates.
It has been observed by the Government that the ACRs were not written in
time and the adverse remarks appeared in the ACR were not being communicated to the
officials concerned well before the report for the subsequent year are drawn up. It has
also been stressed that the main purpose of communicating adverse remarks was to
afford an opportunity to the concerned government servant to amend their faults and
deficiency before the next year.
PROVISION OF ANNUAL TARGETS:
The State Government decided that the ACRs of all Class-I and Class-II
officers including heads of departments (excluding the IAS and HAS officers) shall contain
physical and financial targets/ objectives/ goals fixed during the year and actual
achievements their against with reasons for short comings as also the targets for
inspection/tours with actual achievements with regards to inspection and tours.
CHALLENGES:
142
It has been generally observed that the ACRs of the employees remaining
pending for a long period of time and the prescribed dates for writing ACR are not actually
followed. The situation further deteriorates when the controlling officers are transferred
and the subordinate staff is deprived off promotion due to non-completion of ACRs. At
certain times there are adverse remarks in the ACRs which are either not conveyed to the
affected persons or conveyed at a later stage of time resulting into harassment to the
employee. It has also been noticed that some times personal retaliation also comes as a
player for writing ACRs and the matter becomes sub-judicious.
RECOMMENDATIONS:
It should be made a mandatory column in the charge handing over format
to clearly indicate that the departing officer has written the ACRs of all the employees
under him and nothing is pending on account of ACRs. The time limit prescribed for
writing ACRs needs to be monitored in a time bound manner by the next officer in the
hierarchy.
EXTENSION AND RE-EMPLOYMENT
The term
extension is different
from
the term
re-employment.
Extension in service is continuance in service and the incumbent does not superannuate
or retire on reaching the date of superannuation. Further the period of extension counts
for qualifying service for the purpose of pension, gratuity and other retirement purposes,
besides entitling the incumbent to full pay and allowances and increment etc. in addition
to this the incumbent remains a member of the service to which he was appointed and is
governed by specific rules governing the service.
Re-employment is quite different employment after actual superannuation
or retirement is called is re-employment. A re-employed person gets pension and his pay
his fixed under special orders. A reemployed person is governed by the general rules
governing service condition of a government servant and such a other rules as may be
specified in the terms of re-employment. The period of reemployment does not qulify as
service for pension and other benefits on retaining the age of superannuation, retirement
is automatic and in the absence of his specific order to the contrary by the competent
143
authority, a government servant must retire on the due date. Each case of extension or
re-reemployments, it is not only the next man who misses promotion but often several
people miss consequent
promotion or allowed the hierarchy strata. Criteria and
procedure have been evolved with a view to ensure that extension and reemployment of
superannuated officers are resulted to only in really a exceptional a circumstances.
CRITERIA
The
instructions
issued
with
regard
to
the
grant
of
extension
reemployment, following provision have been specified:

1.
No
proposal
for
extension
of
service/reemployment
beyond
the
age
of
superannuation should ordinarily be considered.

2.
Extension of service/reemployment can be justified only in very rare cases and
exceptional circumstances. Even in such cases a deadline of attainment of 60 years of

age has been fixed for non-scientific/non technical posts and 62 years in case
scientific/technical posts.
3.
The over ridding consideration for the grant of extension of service/reemployment
is that it must be clearly in the public interest and in addition it must satisfied one of the
following two conditions:
4.
a.
That officer/officers/ are not right enough to take over the job or
b.
That the retiring officer is of outstanding merit.
No extension of service/reemployment should be considered on ground that a
suitable successor is not available unless it is established that action to select a successor
has been taken well in advance but the selection could not be finalized in time for
justifiable reasons.
5.
A proposal for grant of extension of service/ reemployment based merely on the
consideration
that
the
predecessors
of
the
officers
had
been
given
an
extension/reemployment should not obviously be accepted.

6.
In case of the honorary appointment i.e. appointments on the board of Directors of
public sector undertakings, the age limit may be 65 years provided that the
reemployment is really does not carry any substantial remuneration.
PAY
144
The pay of the superannuated government servant reemployed in the State

civil department which was earlier a regulated in accordance with the instructions issued
by Ministry of Finance, Government of India will now be fixed and regulated under HP
State Civil Services (Fixation of Pay of re-employed pensioners) orders 1988.
CHALLENGES
A tendency has been percolated in the State where a large number of
retiring employees seek extension or re-employment. The political nexus and influence is
the main player of this game. It has been generally found that extension /reemployment
has been provided to different categories of employees without adopting any norms or
criteria. No transparent or justifiable system has been adopted for this purpose and just
to woo the intimate relations extensions have been provided irrespective of the class or
category of the post. This has led to great resentment among the different strata of
hierarchy.
SUGGESTION
As a matter of principle and policy extensions/reemployment
should be totally banned. There is no body indispensable for the system and no one is
above the system. In case government finds it is most genuine to give extension or
reemployment, it should be once again given reconsideration and to be dropped finally.
This will establish a transparent system and strengthen the faith of other employees in
government that every body will get his due time and due right without discrimination.
TRANSFERS AND POSTINGS
Initially consolidated instruction on transfer and posting were issued in the
year 1972 by Department of Personnel Government of Himachal Pradesh. Later
government constituted a committee under the Chairmanship of Sh. Narayan Singh
Sawamy, MLA to advice on the transfer policy and on the basis of the report of the
committee government formulated a policy for posting and transfer of government
servants in the year 1979 which in force till date. Subsequent tot his government from
time to time has issued amendments and clarifications in this regard but all this is a
matter of ideal and principles only. Thereafter many committees have been constituted by
145
the different governments at different times but a consensus policy could not be arrived
at till date. The reason for this is lack of prudent zeal and discerning effort.
The policy which is applicable in paper provides that the matter of posting
and transfer has the public interest as upper most consideration. The policy also aims at
taking into account the personal problems of the government servant and also provides
facilities with regard to married couples, widows, handicapped employees etc. A lee way
has also been provided for transfers on request or mutual transfer on request subject to
the conditions that no transfer traveling allowance or joining time and financial
implication is allowed in such cases. The reasonable tenure for posting according to the
service requirement will be three to five years in general cases and no officer/official can
remain posted on a sensitive post such as establishment, account, purchase-sale etc. for
a period exceeding three years. In principle the policy has also made declaration for
postings of police guards posted on bridges, treasuries, sub-treasuries and barriers for 6
months, police constable in general for two to three years, inspectors for three years and
two years for barrier/brewery duty official
of Excise and Taxation Department and so
on. The policy has also made prescription for tenure transfer and concession etc in tribal,
difficult and backward areas.
CHALLENGES:
What so ever has been mentioned in the policy has always remained as a
principle but in practice it has hardly been followed.
The transfers and postings have
emerged as biggest industry in the State with patronage of political bosses and pecuniary
powers. The labeling of employees in the name of political parties and their victimization
on the same grounds is a common fashion. The powers of transfers and postings,
contrary to the provisions prescribed in the policy, have been centralized in one supreme
political executive heading the State. The workers and supporter of the party in power is
the main instrument to facilitate the postings, transfers and adjustments. The employees
due to their vested interests also join the game since adequate demonstration of such
successful patronage has been presented to them.
In the Chief Minister office four
branches have been constituted and the main function of these branches are to process
the transfer notes/requests received from
different quarters and then to issue
orders/approvals/rejections on such requests. Senior officers posted in the CM Secretariat

have to devote their maximum time in examining and processing such cases which could
have been better utilized elsewhere. In such a warranting situation the role of financial
146
forces can not be ignored and it is not to the astonishment of anybody that in future the
involvement of some rackets is discovered in such cases.
SUGGESTIONS
Keeping in view the above alarming situation, it is the need of the time to
discard with the filthy forces and think of an appropriate policy with a visionary political
will, administrative support and ideology of providing better citizen centric administration.
With the support of above ingredients, a policy may be drafted on the analogy of transfer
policy applicable in Public Sector, Banks and Life Insurance Corporation of India where a
proper heed is given to the stakeholders and everybody gets its due.
DEPARTMENTAL EXAMINATION
Himachal Pradesh Departmental Examination Rules were notified in the
year 1976 with the approval of the Public Service Commission and the Government of
Himachal Pradesh. The rules govern the departmental examination in respect of
i)
the
members
of
Himachal
Pradesh
Administrative
Services
ii)
the members of Himachal Pradesh Forest Services.
iii)
Tehsildars/Niab Tehsildars
iv)
All gazetted officers working in Himachal Pradesh and not

including in categories (i) to (iii) above.
v)
Any other class or category of officers which may be

included by the government from time to time.
The departmental examination prescribed in these rules. In its relation to

Indian Administrative Services and Indian forest Service
Officers, is deemed to be the
departmental examination or examination contemplated in rule 6(1) of the IAS (pay)

Rules 1954 and Rules 6(1) of the Indian Forest Service (pay rules), 1968 respectively.
The government has decided that every gazetted officers working in connection with the
affairs of the state shall pass a departmental examination at least once during his service.
The government has issued directions to all the departments to make provisions in
various service rules relating to Recruitment and Promotion of gazetted officers in the
State for incorporating the clause of qualifying the departmental examination. The
provision in the services rule of the gazetted posts/services prescribes that every member
147
of the service shall pass departmental examination as prescribed in the Himachal Pradesh
departmental Examination Rules 1976 as amended from time to time, failing which he
shall not be eligible to
(i)
cross the efficiency bar next due,
(ii)
confirmation in the service even after completion of the probationary

period and
(iii)
promotion to the next higher posts.
The departmental examination needs to be qualify by the technical officers

as well non technical officers of the different departments. Here technical officers means
an officer who at the time of the entry into the gazetted service is require to posses a
professional qualification for example Bachelor degree in agriculture, engineering,
veterinary science etc. or is imparted training at specialized institutions and the training
was deemed to complete only after the completion of course.
In the matters relating to relaxation, the concerned department after fully
satisfying the merits of the case of relaxation will refer the matter to department of
personnel (Training & Foreign Assignment) which after consulting the Board of
Departmental examination, if necessary, shall take a decision and convey the same to
the concerned department.
However, the matters relating to interpretation, the
department concerned may correspondence directly with the Himachal Pradesh Board of
Departmental Examination.
CHALLENGES:
It has been observed that the officers of different categories seek
relaxation from passing the departmental examination on numerous grounds which is
generally accepted as a result of canvassing by the officer itself and following the
movement of file from person to person in the government. Earlier a blanket exemption
was provided to the officers who have attain an age of 55 years from passing the
departmental examination which has been amended recently. The tendency leads to a
practice of escaping from the principle laid in the policy on one hand and leads to in
efficiency of the employees on the other.
148
RECOMMENDATIONS:
The departmental examinations needs to be strengthened in a more
effective way and should be made foundation for the eligibility for promotion to the next
higher post. The promotion on the basis of departmental examination will provide suitable
candidate on the higher post as well as a competent and deserving officer to decorate the
chair. It will not only provide the promotion to the deserving one but will also put a check
on the dead woods to reach the higher levels in the hierarchy.
***************************************
149

Personnel System

Uploaded by

Document Information

Copyright

Available Formats

Share this document

Share or Embed Document

Sharing Options

Did you find this document useful?

Is this content inappropriate?

Copyright:

Available Formats

Personnel System

Uploaded by

Copyright:

Available Formats

PERSONNEL ADMINISTRATION

depend to a great extent upon the quality of the

employees engaged in their operation. Personnel Administration helps an organisation in

STATE CIVIL SERVICES IN HIMACHAL PRADESH

STRATEGIC REVIEW OF MACHINERY OF GOVERNMENT

STRATEGIC REVIEW OF MACHINERY OF GOVERNMENT

STRATEGIC REVIEW OF MACHINERY OF GOVERNMENT

Education. The Department of

STRATEGIC REVIEW OF MACHINERY OF GOVERNMENT

and sanitation. The department is headed

departments are filled up from the

STRATEGIC REVIEW OF MACHINERY OF GOVERNMENT

STRATEGIC REVIEW OF MACHINERY OF GOVERNMENT

STRATEGIC REVIEW OF MACHINERY OF GOVERNMENT

Entry age, qualification etc. for HIMACHAL PRADESH ADMINISTRATIVE SERVICES

Name of the Post(s)

HAS Class-I (Gazetted)

Ordinary time scale Rs. 7880-13500 (plus

HPS Class-I (Gazetted)

Ordinary time scale Rs. 7880-13500 (plus

sanctioned by the Government from time

District Panchayat Officer Class-

Rs. 7000-10980 (plus allowances)

Rs. 7000-10980 (plus allowances)

STRATEGIC REVIEW OF MACHINERY OF GOVERNMENT

District Treasury Officer Class-I

Rs. 7220-11660 (plus allowances)

Rs. 7220-11660 (plus allowances)

Controller Class-I (Gazetted)

Tehsildar Class-I (Gazetted)

Rs. 7000-10600 (plus allowances)

Excixe & Taxation Officer Class-I

Rs. 7000-10910 (plus allowances).

Rs. 7000-10980 (plus allowances)

Rs. 7000-10980 (plus allowances)

Rs.7000-10980 (plus allowances)

Assistant Controller, Weights &

Rs. 6400-10640 (plus allowances)

Measure Class-II (Gazetted)

STRATEGIC REVIEW OF MACHINERY OF GOVERNMENT

STRATEGIC REVIEW OF MACHINERY OF GOVERNMENT

H P Public Service Commission is at its discretion to call the number of

A candidate must possess a Bachelor's Degree or its equivalent from a

Knowledge of customs, manners and dialects of Himachal Pradesh and

A candidate must be a citizen of India.

Scheduled Castes/ Scheduled Tribes/ Other Backward Classes and Children/Grand

STRATEGIC REVIEW OF MACHINERY OF GOVERNMENT

Undertakings/Corporations /Autonomous Bodies which are wholly or substantially owned

Mathematics and Statistics;

Of the Engineering subjects, viz. Mechanical Engineering, Electrical Engineering

Agriculture, AND Animal Husbandry and Veterinary Science;

Political Science, International Relations AND Public Administration;

Commerce & Accountancy AND Management;

Sociology and Anthropology;

Management AND Public Administration;

Horticulture AND Forestry;

Horticulture, Agriculture AND Animal Husbandry & Veterinary Science;

Forestry, Agriculture AND Animal Husbandry & Veterinary Science.

The annual confidential report is considered to be a confidential

Training is one of the most effective and

trusted tools for performance enhancement as well as up-gradation of knowledge and

sensitization to professional, socio economic and political environment in which

Brining about right attitudinal orientation.

STRATEGIC REVIEW OF MACHINERY OF GOVERNMENT