UNIT 8 ROLE OF CABINET SECRETAMAT AND

PRIME MINISTER'S OFFICE IN

POLICY-MAKING
Structure
Learning Outcome
Introduction
Role of Cabinet Secretariat in Policy-Making
Role of Prime Minister's Office in Policy-Making
8.3.1 Advisory Committee/Councils to Prime Minister
8.3.2 Prime Minister's Office: Intervention
8.3.3 Role of Prime Minister in Policy-Making
The Role of Cabinet and Prime Minster's Office in Policy-Making-UK
Conclusion
Key Concepts
References and Further Reading
Activities

8.0 LEARNING OUTCOME

After studying this Unit, you should be able to:
a HighIight the importance of cabinet secretariat in policy-making;
a Describe the role of Prime Minister's Office and its advisory bodies in policy-making;
Discuss the cases showing how the Prime Minister's Office intervenes in the policies of other
ministries and other departments; and
a Examine the role of British Cabinet and Prime Minister's Office in policy-making.

8.1 INTRODUCTION
Public administration cannot exist in apolicy vacuum. It must have administrative structures that
are directed by leaders who wish to do something. This calls for creation of organisations,public
agencies, and bureaus which, in t ~ ~ rneed
n , to create more policies that give guidanceto organisations
and employees on how to put into practice the overall public policy.
In a parliamentary democracy, policy-making is the major function of the politicalexecutive. In this
process, entire political system is involved in policy-making and implementation. In country like
that is, the Cabinet. In this Unit, we will
India the policy-makingis vested in the political exec~ti~ve,
be discussing the role played by the Prime Minister's Office and Cabinet Secretariat in formulating
public policy.
/?ole of Cabinet Secretariat and Prime Mirzister's Office in Policy-Making 107

8.2 ROLE OF CABINET SECRETARUT TN POLICY-

G
The Cabinet Secretariat has a very important place in the central administration. The Cabinet
Secretariat is under direct charge of the Priine Ministec The administrative head of the Secretariat
is the Cabinet Secretary who is also the ex-officio Chairman of the Civil Services Board. In the
Government of India (Allocation of Business) Rules, 1961 "Cabinet Secretariat" finds a place i n
the First Schedule to the Rules. The subjects allotted to this Secretariat are:
e Secretarial assistance to the Cabinet and Cabinet Committees.
e Implelnentation of the rules of business.
The Cabinet Secretariat is responsiblefor the adminis~ttionof the Government of India (Transaction
of Business) Rules, 1961 and the Governinent of India (Allocation of Business) Rules 1961,
facilitating smooth transaction of businessin Ministries/Deptme of the Govemnent by ensuring
adhesence to these rules. The Secretariat assists in decision-making in government by ensuring
inter-ministerial coordination,ironing out differences amongst ministlies/depai-trnentsand evolving
consensus throughthe instrumentality of the standingladhoc Cormnittees of the [Link]
this lnechanism new policy initiatives are also promoted.
The Cabinet Secretariat ensures that the President, the Vice President, and Ministers are kept
informed of the inajor activities of all ministriesldepartmentsby means of monthly sumnary of their
[Link] of major crisis situations in the count~y,and coordinating activities of various
~ninistriesin such a situation is also one of the f~inctionsof the Cabinet Secretariat.

Support to Cabinet Committees

The secretarial assistance provided by Cabinet Secretariatto the Cabinet and Cabinet committeesy
includes:
e Convening of the meetings of the Cabinet on orders of the Prime Minister.
a Preparation and circulation of the agenda.
e Circulation of papers related to the cases on the agenda. ,/

e Preparation of a record of discussions taken.

e Circulation of the record after obtaining approval of the Prime Minister.
0 Keeping a watch on the irnple~mentationof the decisions taken by the Cabinet.
The Cabinet Secretariat is custodian of the papers of the Cabinet meetings.

Promotion of Inter-Ministerial Coordination

Among the inter-ministerial matters, the coordination is required for removing difficulties, sorting
out differences, overcoming delays, and for relating administrativeaction to policies.
implementation of government
While each ministry is responsible for acting on its own for expedilio~~s
policies, plans, and programmes. Howevel; where inter-ministerialcooperation is involved, tliey
often seek the assistanceof the Cabinet Secretariat. The inter-ministerial problems are dealt within
the meetings of the committee of SecretQries(COS).Committees are constituted for discussing
specific niatters and proposals emanating from va~iousSecretaries to the Government, and meetings
are'held under the chairmanship of the Cabinet Secretary. These committees are intended to break
bottlenecks or secure mutually supporting inter-ministerialaction.
 108 Public Policy and Analysis

The discussions of the COS take place on the basis of a paper formulated by the principal
Department concerned and the Department with a [Link] of view, if any, providing a
supplementary note. The decisions or recommendations of the COS are unanimous. These
proceedings are also circulated to the departments and are followed up.
There are other important functions, which the [Link],viz. monitoring,coordination, and
plornotion of new policy initiatives. The Cabinet Secretariat is seen as a useful mechanism by the
departments for promoting inter-ministerialcoordination since the Cabinet Secretary is also the
head of the civil services. The Secretaries find it necessary to keep the Cabinet Secretary informed
of developments from time to time. The Transaction of Business Rules also require them to keep
the Cabinet Secretary informed of developments from time to time, especially if there are any
depal-turesfrom these rules.

Cabinet Secretary
The office of the Cabinet Secretary and its functions has evolved over the years. As head of the
civi I service, he presides over the committees of Secretaries. These committees examine inter-
~ninistrymatters and other issues that concern the government as a whole. As arule, the Cabinet
Secretariat does not prepare papers for the Cabinet or its Committees; this function is performed
by thl: concerned ministries. However, the Cabinet Secretary only oversees the agenda papers. It
is only on rare occasions that the Cabinet Secretary prepares a paper for the Cabinet. He,
however, attends all the meetings of the Cabinet and its Committees. He is also responsible for
preparing the agenda, priority of items and allocation of subjects to Cabinet Committees on the
direction of the Prime Minister. He also prepares minutes of the Cabinet meetings and Coinmittees
to the concerned ministries. Ishwar Dayal and others opine that there is no system of briefing the
Prime Minister on the agenda items although the Cabinet Secretary may assist him during the
meetings. The process of decision-making in the Cabinet is a long and complex process and
~najor differences among the members are often assigned to acommitfee,or to the Cabinet Secretary
to Inquire and report.
The Cabinet Secretary, therefore, plays avery significantrole in the policy apparatus but, essentially,
in a servicing sense, except in personnel matters where he, as the head of the civil service, has a
much greater influence. However, the s i ~ i c a n cofe his positiondepends upon the style of functioning
of the Prirne Minister and the amount of confidence he reposes in the Cabinet Secretariat. All the
.-
same, the Cabinet Secretariat has establisheditself,over the years, as a significantinstitution in the
policy-making process.

Administrative Reforms Commission (1966 - 1969) on Cabinet Secretariat

The AdministrativeReformsCommission was appointed by the government to study the machinery
of the government of India and its procedures of work. Important recommendations relating to
cabinet Secretariat are as under:
e Every sub-committee of the Cabinet should be supported by a Committee of Secretaries in
the Cabinet Secretariat to consider in advance all matters to be taken up in the Cabinet
sub-committee. . .
e The role of the Cabinet Secretary should be limited to that of co-ordination. The Cabinet
Secreta~yshould also act as the principal staff adviser to the Prime Minister, the Cabinet and
the Cabinet Committee on important policy matters. l

e The Department of Personnel should be headed by a secretary who should work under the
general guidance of the Cabinet Secretary. -
/:ole ~f Cabinet Secretariat and Prime Minister S Office in Policy-Making 109

The Cabinet Secretary should have a tenure of at least three years to provide effectiveleadership
to the civil services.
The above recommendation that the Cabinet Secretary should be appointed for a period of three
years to enable him to provide effective leadershipto the civil service was accepted by the National
Democratic Alliance (NDA)Government. However,,inpractice, the Cabinet Secretary is appointed
for a fixed term of two years. Recently on August 10th 2006, the United Progressive Alliance
(UPA)Government approved aminimum tenure of three years for the Cabinet Secretary. Looking
at the various functions and role of the Cabinet Secretariat it should be noted that it is essentially a
staff agency for providing assistance and it does not have a major role in policy formulation. As
most of the issues originate from the ministries/departments,and the basic input as also the policy
frame is furnished by administrativeMinistry, concerned. In crucial and important cases the Cabinet
Secretary and the Committee of Secretaries provide useful insights and offer a wider perspective.
It appears that the f~lnctionof Cabinet Secretariat is of'servicing the proceedings of the Cabinet,
Cabinet Committees, and Committee of Secretaries. We can conclude that the Cabinet ~ecsetariat
is neither enforcement agency nor it is an activity instrumentfor policy formulation.
- -

8.3 ROLE OF PRIME MINISTER'S OFFICE IN

POLICY MCA G-
The Prime Minister of India is the Head of theunion Government, as distinct from the President of
India who is the Head of State. Since India has adopted the Westminster model of parliamentary
democracy, it is the Prime Minister who oversees the day-to-day functioning of the Government of
India. The Prime Minister is assisted in this task by his Council of Ministers,comprising Cabinet
Ministers, Ministers of State with independentcharge, Ministers of State who work with Cabinet
Ministers, and Deputy Ministers,
As head of the Council of Ministers, the Prinie Minister oversees the work of all @eministries. He
presides over the Cabinet meetings. The Union Cabinet functions on the principle of "colIective
responsibility". The Prime Minister is also the Chairman of the Planning Commission of India. The
Prime Minister's Office (PMO) provides secretarial assistance to the Prime Minister. It is headed
by the Principal Secretary to Prime Minister. The PMO includes the Anti-Corruption Unit and the
Public Wing dealing with grievances. The subject matter of files required to be submitted to the
Prime Minister depends on whether he is holding direct charge of the Ministry or whether there is
a Cabinet Minister or Minister of State (independent charge), in-charge of the Ministry. In the
case of the latter, most matters are dealt by the Cabinet MinisterIMinister of State, in-charge.
Only important policy issues, which the Minister concernedfeels should be submitted to the Prime
Minister for orders or information, are received in the PMO.
In cases where the prime ~inisteris the Minister-in-charge, all matters requiring ministerid approval
are not delegated to the Minister of State / Deputy Minister, if any, are submitted for orders. The
Prime Minister has traditionallybeen the Minister-in-chargeof the Departments of Space, Atomic
Energy, and Ministry of Personnel, Public Grievances and Pensions.
Since the Prime Minister is Chairman of the Planning Commission, &levantfiles are forwardedto
the PMO for comments and clearance. The Prime Minister's National Relief Fund CPMNRF) and
the National Defence Fund (NDF) are operated directly from the PMO,
Some of the irnpokant matters that require the Prime Minister's personal attention include:
o important defence-related issues;.
 110 Public Pol~cyand Analysis

e decorations, both civilian and defence, where Presidential approval is required;

e all important policy issues;
9 proposals for appointment of Indian Heads of Missions abroad and requests for grant of
agreement for foreign Heads of Missions posted to India;
e all important decisions relating to the Cabinet Secretariat;
0 appointments to the State AdministrativeTribunals and the Central Administrative Tribunal,
Union Public Service Commission,Election Commission, appointmentof members of statutoryl
constitutional committees and Commissiolls attached to vxious Ministries;
9 all policy matters relating to the administration of thecivil services and administrativereforms;
e special packages announced by the Prime Minister for states. (These are monitored in the
PMO and periodical reports submitted to Prime Minister); and
o all judicial appointments for which President's approval is required.
It shows that the PMO deals with almost every aspect of the Union Government. Work distributionin
the Prime Minister's Office is presented below:
Work Distribution in PMO
(As on 22.02.2006)
--
States
P

AS 1 JS Ministriesrnepartrnents Assisted by
Additional Cabinet Secretariat and ACC, Personnel, Public Director
Sccrctary Grievances and Pensions, Law and Justice, Anti-
corruption Unit
Deputy
National Common Minimum Programme,Thrust Areas
of Government, Computerisation of PMO Secretary
National Advisory Council
Joint Heavy Industries & Public Enterprises, Commerce & UP, Uttaranchal Director
Secretary- l Industry, PM's Council on Trade & Industry, Industly
Associations, Administration
Steel Director
Finance, Planning, Infrastructure Commitee, PM's Director
Economic Advisory Council'
Shipping, Road Transport and Highways, Railways, Deputy
Civil Aviation, Mines, Non-Conventional Bhergy Secretary
Sources
Communications & IT, Group on Telecom & IT Deputy
Convergence Secretary
Power, Petroleum & Natural Gas, Coal, Task Force on Director
Petroleum Chemicals and Petrochemicals Investment
Regions, Trade & Economic Relations Committee,
Energy Coordination Committee
PMO Security Officer on
Special Duty
Minority Affairs MP, Director
. Joint Chhattisgarh
Secrelary-2 Urban Development, Urban Employment & Poverty Punjab, Director
Alleviation, Chemicals & Fertilizers Haryana
Food Processing Industries, Information &Broadcasting Bihar, Himachd Director
Pradesh
Health &Family Welfare, Water Resources,Environment Andhra Director
&Forests, Textiles, Tribal Affairs, Panchayati Raj, Rural Pradesh,
Development, Committee on Rural Infrastructure Karnataka
Role of'Cabinet Secretariat and Prime Minister's Officein Policy-Making 111

Tourism, Culture Deputy Secretary

Jhslrkhand Deputy Secretary
'farnil Nadu, Director
Kerala
Join1
Secretary-3 National Knowledge Commission Deputy Secretary
External Affairs Two Directors
Defence, Space, Overseas Indian Affairs, Atomic Energy
National Security Council Director
Joint
Secretary-4 .Labour & Employment, Development of North Eastern
NEStates, Director
Region, Agriculture, Consumer Affairs, Food & Public Sikkh,
Arunachal Deputy
Distribution, Parliamentary Affairs (incl. Parliament
Work), Agriculture Coordination Committee,Youth Pradesh Secretary
Affairs & Sports, Science & Technology
Company Affairs Director
Statistics Sr Programrlle Implementation, Human Orissa, Director
Resource Development, Youth Affairs & Sports, Science West Bengal Deputy .
& Tecl.~nology,PM Funds, Public Wing Secretary
Home Affairs J&K, UTs, Goa
Director
Social Justice &Empowerment
Small Scale Industries, Agro & Rural Industries, Ocean Maharashtra,
Rajasthan, Deputy
Development, National Commission for Enterprises in
Gujarat Secreta~y
the Unorganised Sector

Officers of PMO

Designation ' Pay Scale Work Distribution in PM0

I
(As on 22.02.2006)
National Security Adviser MOS Rank
Principal Secretary (I) Rs. 30,000 (fixed)
Media Adviser ( I ) Rs. 26,000 (fixed)
Additional Secretary (1) Rs. 22,400-525-24,500
Joint Secretary to PM (4) Rs. 18,400-500-22,400

Private Secretary to PM (2) Rs. 14,300-400-18,300

\
Director (lo) Rs. 14,300-400-18,300

PS to MOS (PMO) - 1 Rs. 14,300-400-18,300

Deputy Secretary (3) Rs. 12,000-375-16,500

Under Secretary (Admn.)-1 Rs. 10,000-325-15,200

Under Secretary (Parl,) - 1 Rs. 10,000-325- 1 5,200
Under Secretary (Pub;) - 1 Rs. 10,000-32515,200
 112 Public Policy and Analysis

It looks almost all the aspects of the Union ~overnment

are being dealt with/by the PMO. The
above distribution is indicative of the same.

8.3.1 Advisory Committee/Councils to ~ r i m ~ h i n i s t e r

From time to time, the Prime Minister appoints committees,councils and co,mmissions to advise
him on specific policy matters. We will be looking into some of the committees,councils, and
co~nmissions,which have been constituted by the Prime Minister.

Scientific Advisory Council to Prime Minister

It is 28-member Scientific Advisory Council to the Prime Minister headed by chemical scientist,
C.N.R. Rao. The members, who would advise the Prime Minister on all issues relating to science
ai-~cltechnology development in the country, have been chosen to cover a wide range of fields and
different sectors including government research centres, academic institutions, and industry.

Advisory Group dn Foreign Affairs to Prime Minister

Advisory Group onl~oreign ~ f f a i rto
s the Prime Minister is headed by National Security Advisor.
This group advises the Prime Minister on a wide range of international issues and provides for
coordination between the National Security Advisor and the External AffairsMinistry,

The Economic Advisory Council

The Economic Advisory Council (EAC) to the Primi: Minister was constituted with
Dr. C. Rangarajan, (former Governor and Chairman, 12th Finance Commission) as the Chairman,
with Cabinet rank. It has four other members of the rank of Minister of State.
.Apartfrom advice on policy matters referred to the Council by the Prime Minister from time to
time, the EAC prepares a monthly report on economic developments at home and abroad for the
Prhne Minister. It also monitorseconomic trends on a regular basis and brings to the Prime Minister's
attention important developments at home and abroad, and suggests suitable policy response.

The Trade and Economic Relations Committee

The Trade &Economic Relations Committee is aninstitutional mechanism for evolving the extent,
scope and operational parameters of our economic relations with other countries in a coordinated
and synchronised manner.
The Committee is serviced by the Prime Minister's Ofice, which may obtain assistanceas required
from any Ministry/Department/Agency of the Government.

Composition
The composition of the Trade and Economic ~ e l a t i hconinittee
s is as follows:
a) Prime Minister (PM) - Chairman
b) Finance Minister;/
/
c) Commerce & Industry Minister
d) External Affairs Minister
e) .Deputy Chairman, Planning Commission
f) Chairman, Economic Advisory Council
Rolc of Cul7i1zetSecretariat and Prinze Minister's Office in Policy-Making

g) Chairman, National Manufacturing Competitiveness Council

11) National Security Adviser
i) Principal Secretary to PM - Convenor
The Secretaries of the Departments of Economic Affairs, Revenue,Commerce,Industrial Policy
& Promotion as well as the Secretary, Planning Coln~nissionand Foreign Secretary are petmanent
invitees to the meetings of the Committee,

The Energy Coordination Committee

The Energy Coordination Committee was constituted to enable a systematic approach to policy
Sol-mulation,promote inter-depa~hnentalcoordination, and function as alcey mechanismfor providing
institutional support to decision-makingin the area of energy planning and security.
The frime Minister is Chairman of the Energy Coordination Committee, and the members are:
r Minister of Finance
e Minister of Petroleu~nand Natural Gas
e Minister of Power
e Ministerofcoal
MOS for Non- conventional energy sources
e Deputy Chairman,Planning Colnmission
9 Member ( Energy ) Planning Colnrnissio~l
o Chairman, Economic Advisoly Council to PM
e Chairman, National Manufacturing Competitiveness Council
e+ National Security Advisor
Principal Secretary to PM - Convenor
Member Secretary, Planning Commission, Cabinet Secretary and the Secretaries of Department
ol'Economic Affairs, Ministry of Finance; Ministry of Petroleum and Natural Gas, Ministry of
Power, Ministry of Coal, Ministry of Non Conventional Energy Sources, Ministry of Atomic
Energy, Economic Advisory Council to PM, are permanent invitees to the meetings ofthe committee.

Atomic Energy Commission

The Indian Atomic Energy Coinmission was first set up in August 1948 in the, then, Department of
Scientific Research. The Department of Atomic Energy (DAE) was set up on August 3,1954
under the direct charge-of the Prime Minister through apresidential Order. Subsequently, in
accordance with a Government Resolution dated arch 1,1958, the Atomic Energy Commission
(AEC) was established in the Department of Atomic Energy. The Secretary to the Government of
India in the Department of Atomic Energy is ex-officioChairman of the Cofnmission. The other
Members of the AEC are appointed for each calendar year on the recotnmendationof the Chairman,
AEC and after approval by the Prime ~ i n Q t e n
Task Force on Petroleum, Chemicals and Petrochemicals Investment Regions
Government hqs constituted aTaskFosceon Petroleum, Chemicals and Petrochemicals Investment
Regions, in orderto enable quick and coordinated decision-making,and to provide an appropriate
policy frameworkfor the development of investment regions of requisite scale and level of fa~il~ties,
with the involveient of world-class developers and investors, in the fields of petroleum, cllemicals
and petrochemicals.
 Public Policy and Analysis

om position
The Pril~cipalSecretary to Prime Minister is the Chairman of the TaskForce,and the following are
members:
e Member Secretary,Planning Commission
e Secretary,Department of Chemicals and Petrochemicals
e Secretary, Ministry of Petroleum and Natural Gas
Secretary, Department of Industrial Policy &Promotion
o Secretary, Department of Commerce
e Secretary,Department of Economic Affairs
e Secretary, Department of Revenue
0 Chief Secretaries of the States concerned
o Representative of the NRI Task Force.
Chai~lnan,Railway Board and Secretaries of the Department of Shipping, Department of Road
Transport and Highways, Departmentof Civil Aviation, Ministry of Power, Ministry of Environment
and Forests,and Ministry of Labour are special invitees. The Task Force is serviced by the Prime
Minister's Office.

Investment Commission
4!
The Prime Minister had constituted an InvestmentCommission under the chairmanship of Shri
Ratail Tata to recommend policies that the Government can takeup to step up the rate of investment
ill India.

National Knowledge Commission ,

The Prime Minister of India constituted the National Knowledge Commission, with the mandate of
devising and guiding reforms that will transform India into a strong and Gidrant knowledge economy
in coming years. Knowledge is an indispensable asset that hasthe potential to accelerate social
and economic progress. A successful knowledge economy is one that uses knowledge as an '

effective tool for development. -

The inethodology of the Commission is to form Working Groups within each of its focus areas,
and make concrete proposals for refom directlyto the Prime Minister through a seriei of White
Papers. This task involves working in close collaboration with the union and State governments,
prof~ssionals,academics, scientists, regulat~rybodies,national think tanks, industry?epresenhtives,
civil society organisations etc. The tenure of the Commission is three years. The first chairman of
the commission is Mr. Sam Pitroda. Besides the Chairman, it has eight members.

National common Minimum Programme

ThePi-ime Minister with the assistanceof PMO, reviews the status of implementation of the National
Common Minimum Programme (NCMF'). The duty of the Prime Minister is to monitor the extent
to which the specific palicy initiatives listed in the NCMP have been implemented. The PMO
officials do a regular monitoring of implementationand follow-up work with ministries and state
governments grid also keep a close vigil on NCMP implerne*tation, and [Link] ministry-
wise statvs reports on NCMP implementation. $

, /
I Rolo of Cal7inet Secretariat and P r i ~ n eMinister's Oflice in Policy-Mnkirzg 115

1 8.3.2 Prime MirSister's Office: Intervention

*
Here we will be discussing few cases, sllowing how the Prime Minister's Office intervenes in the
policies of other ministries or departments,in the nationalinterest.

Case One
-. Coal Mining: PMO Backs Public Units (As reported i ~ the
, Irzdialz Express, dated Septenzher
26, 2005)
I
The Coal battles being fought on industry turf due to the supply-demand mismatch have acquired
a new twist with the PMO coming lo rescue to public sector to give them parity wit11 the private
sector as far as mining rights in explored coal blocks are concerned.
The PMO has quashed a proposal by the Coal Ministry, wl~ichsuggested [Link] should be
kept out of the allocation of explored blocks of 'coal for captive mining. The Ministry had been of
the view that allocation of explored captive blocks should not be made to public sector company
applicants like GEB, MSEB, Orissa Power Generating Company, MP Mineral Development
, Corporation. This was pursued on the basis that they could be considered and allocated coal
blocks outside the captive list uncler the government company route.
The move was dictated by the logic that captive blocks that have been explored in detail ase few
and the eligible applicants in the private sector are many, so it would be prudent to allot the latter
to private players. According to the deliberations in PMO, the proposal to precludePSUs from
~lllocationofcaptive blocks is fraungllt with serio~~s
implications. For instance, since power genesation
is lnostly in the hands of PSUs, depriving them of rights on captive blocks, wouldhave inlplications
on energy generation.
However; the PMO has shown sensitivity towards the need to encourage players to take up coal
, minh~;. In this context, the PMO has indicated to the Coal Ministry that unexplored coal
blocks inight be considered for allocation for captive mining to the PSUs that are interested in
exploring them. The other measure underlined by the PMO to encourage coal mining is to allocate
unexplored blocks to private companies as it was done earlier to expedite exploration tllrough
outsourcing.

PMO for Joint Effort on Tribal Bill (As Reported in Zndinvi Express, dated Octoher.29,2005)
The Gover~llllentis keen on tabling the ScheduledTribes(Recognition of Forest Rights) Bill, 2005
in Parliament in the winter [Link] final draft of this Bill would be prepared by h e Union Tribal
AffairsMinistry. This was conveyed to 20-odd palticipants who were invited to alneeting convened
by the Prime Minister's Office to thrash out differences this the issue.

. After the conservationists joined the Ministry of Environment And Forests (MoEF) officials have
raised [Link] objections to the original draft tdbal bill at the workshop organised by t11ePrime
Minister's Office The PMO asked the Ministry of Tribal Affairs to hold consultations with the
MoEF over the next 10 days.
During the six-hour discussion, the MoEF was allowed to make a presentation and
circulate its draft bill among particip:~ '. Wit11 the PMO keen to have a Final draft ready in
roughly two week's time, official, +e Tribal Affairs Ministry and the MoEF were
tight-lipped after the meet. Accorcil, wrces, the course of action to be followed over the
next two weeks: -
 I

Pciblic Policy and Analysis

e Participants will submit written inputs to the Ministry of Tribal Affairs within a week. The
Tribal Affairs Secretary was directed to hold one-to-onemeetingswith few participants, who
pointed out technical lacunae in the draft. 1
e The Tribal Affairs officials were asked to examine the inputs, and also alternative draft bill in
consul tation with the MoEF officials before modifying the original draft bill.
9 This modified draft will be sent to participants in the workshop for comments.
e Finally, the Principal Secretary to PM will sit with the top officials from the ministries and i
finalise a draft for the Cabinet's approval.
Case Three
Spectrum: PMO annoyed at delay (As Reported irz Hindustan Times, dated March 06,2006)
The Prime Minister Dr. Manmohan Singh seems to have taken a serious view of the delay to
1.eso1veallocation of Spectrum for telecom operators in India. Based on the outline sent by the
PMO on strategies and priorities for the year 2006 on Spectrum, the DOTis likely to submit this
week a list of strategies and priorities seeking final approval of the Prime Minister on allocation of
Spectrum.
'
TI is not clear whether the proposal to be submitted by the DOTon Spectrurewpuld be discussed
by a Group of Ministers on Spectsurnto resolve this issue or finalised by the PMO in consultation, 4

wit11 DOTand the Defence Ministiy.

PMO - Overstepping
In the earlier paragraphs, we have seen the PrimeMinisterYsOffice intervening to bring out some
uniformity or to sort out the differences in policy-making. There are also cases of unnecessary
intederence by PMO. In this respect we may cite a recent observalion by the Delhi High Court.
The Delhi High Court, on Nove~nber30,2005,questioned the authority of PMO to frame guidelines .
on c&stmction/alteration to official bungalows allotted to politicians and bureaucrats in Lutyen's
Zone of capital and-further observed, "Any power to make such alterations or constructions
should emanate from a statue or legislation in force. We wonder how the PMOcan frame any . ?
guideline in this regard". The directive followed a submission by the AdditionalSolicitor [Link]
the Government that the matter pertaining to issuance of fresh guidelines for demolition and
" "
regularisation of unauthorised constructionsin the Lutyen's zone, was under the consideration of
the PMO.

8.3.3 Role of Prime Minister in Policy-Making

I

111a parliamentary democracy the Prime Minister is, at least theoratically, the first among the
equals. But over a period oftime, this aspect has changed andchanged substatially even in Britain.
The prime ministership of Margaret Thather brought out the Prime misterial type of government in
Britain more vividly. The picture in Indiais in no way different. This trend about the Pdme Minister ,
type of government in India came into focus when [Link] Gandhi became the Prime Minister. .
When Late Rajiv Gandhi took over as the PrimeMinister he brought a new hope and created lot
of expectations of a more open and democratic government, but after sometime he also reverted f+

to the prime ministererial model of functioning. The trend is more pronounced in case of coalition
governments b'ecause the Prime Minister who is heading the coalition government has to bring a a I
balance between various coalition partners. The worldover, where the head of the government is
powe~ful,naturally, everything revolves around him and every policy or decision he will take after
discussing with his advisors. The westminster type of democracy is also becoming more and more
prime ministerial type of government not only in England and India but also in many other
I
Role oj'Cubirzet Secretariat and Prime Minister's Office in Policy-Making 117

democracies. The reasons attributed according to P.N. Dhar in his article "This Prime Minister's
Office- Seeing Through the Mystic" to the increasingcomplexity of governance in India today, ,
which makes the Prime Minlster deal with the contendersfor power and at the same time cope up
with the socio-economic and political complexities at home and abroad. These matters cannot be
dealt by him with the help of his Cabinet only and without a score of specialised advisors on the
pattern of the US President. That is the reason why Prime Minisrer's Office enjoys a special
position in the realm of policy-making. Most of the crucial policy decisions are taken in inter-,
departmental committees, in Cabinet committees or on the advice of the committees constituted
by the Prime Minister or in conversation between the Prime Minister and the Minister concerned.
This itself speaks about the imporlance of the Prime Minister or himself becoming the crucial
element in the decision-makingprocess. Nevertheless, the policy initiatives may come frommany
sources, from the Prime Minister himself, from the ruling party, from coalition partners, from civil
servants, from the media, from organised pressure groups, from the general p~~blic or fi-om pressuse
from abroad and home. However, the final shape of any policy corning from any quarter would
depend upon the Prime Minister himself.
-

8.4 THE ROLE OF CABINET AND PRIME MINISTER'S

OFFICE IN POLICY MAKING - LTK
n ~Peter Self, in UK the Cabinet in general and the Prime Minister specifically have staff
~ L c o r d i to
;~sistancefrom the Cabinet Secretariat. As the work of poli~yco-ordination has grown, the PM'S
Secretariat has been strengthened and the arrangement whereby the same official was permanent
secretary at the Treasury and secretary to the Cabinet was ended in 1962. Nonetheless, size of
the Cabinet Secretariat, even adding to it the Prime Minister's personal staff, is extremely small
when compared to that of the U.S. President or the French Prime Minister.
The functions of the Cabinet Secretariat also remain limited. Its main task is the formidable one of
servicing the proceedings of the Cabinet itself and of the complex array of Cabinet committees.
Poised at the top of the heap, the Cabinet Secretariat has the essential function of smoothening this
fonnidable work of co-ordination, and of seeing that 'Cabinet' decisions (which include the decisions
of all its dependent bodies) are duly understood and noted. However, the PM's Secretariat is not
a control or enforcement agency -that duty rests with the departments -nor it is a very active
instrument for policy formation. Policies and plans emerge from the departments within the
framework of the general strategy laid down by the Cabinet. On the whole, this strategy has a
broad, political character and does not usually include detailed analysis by the Secretariat of possible
policies and plans. The secretariat occupies a middle ground between the two main sources of
policy-making in the British government, which are party policy and departmental policy. Thus,
the Secretariat performs only with some of the minimum staff functions. It is, indeed, as much an
instrument for 'doing' as for 'thinking7.
In terms of staff-andLline theory, the position of the British Prime Minister has caused frequent
confusion. he of the prime ~ i n i s t erests
r upon his sight to hire and fire other ministers, his
personal and political appeafas'partyleader, and his role as the chief representativeof the nation
in foreign relations. All these sources of power are subject to strong limitations. However, the
enhanced significanceof all three roles in modern times has exploded the constitutional myth that
the Prime Minister is just primus interpares, and has led some commentators to talk of the
replacement of Cabinet by 'Prime Ministerial' government, and of the effective elevation of the
Prime Minister to a position almost cornparabld with an elective President.
The aforementioned trends about the evolving role of the British PrimeMinisterare cited to emphasise
the point that similar changes are taking place in the case of his Indian counterpart too.
118 P~iblicPolicy arzd Analysis

8.5 CONCLUSION
In a parliamentary democracy, the Cabinet initiates and decides public policy concerning almn,ost
every sphere of government activity. Without its approval no policy proposal can become effective.
In this Unit, we have attempted to discuss the role of Cabinet Secretariat and Prime Mihi'ser
Office in policy-making. After going through the role and functions of Cabinet Secretariat it was
found that whether in India or Britain its main task is a formidable one, of servicing the proceedings
of the Cabinet itself and of the complex asray of Cabinetcomrnittees. The Cabinet Secretarjat is
neither an or enforcement agency nor it is avery active instrumentfor policy fo~[Link]
and pians elnerge from the departments within the framework of the general strategy laid down by
the Parliament. As rightly observed by the Peter Self that the Cabinet Secretariat occupies the
iniddle ground between the two main sources of policy-making in government, which are party
policy and departmental policy. Thus, the Cabinet Secretariatperfoimsonly some of the minimum
staff f~~nctions. The Prime Minister is the head of the Council of Ministers, leader of Parliament,
the supreme leader of the party,often the leader of masses, serves as a channel of communication
between the President: and the Council of Ministers, also a spokesperson of the country on all
matters of foreign policy and is also expected to keep a close watch and control on the economic
situatio~~ of the country. Analysing the powers of the PrimeMinister, we note ;hat he enjoys
tremendous powers and influence, both in the executive and legislative spheres. He is the key
person in government. The entire structure of Cabinet is built around him. According to Gladstone
h e u the keystone ofrhe Cabinet 'arch', and Ivor Jennings describesJim as the'sun around
wlziclz tlze planets 7-evolved'. He is also known as first among the equals; according to Peter G.
Richard, 'Prime Minister is Primus Inter Pares '. Ramsay Mukobserves that the 'Cabinet is
the steering wlzeel of the state and Prirne Minister is the steersman'. In conclusion, whether
it is in Britain or India the Prime Minister occupies a key position in policy formulation. No doubt
the policy initiatives have to come from theconcernedministries or departments; the responsibility
of ilnplementation also lies with them. As the leader of party and the legislature,the Prime ~ i n i s t e r
lnay like to usc his office as a forum for discussion on important policy issues. On matters of critical
importance, the PiimeMinister may use his office to review and monitorthe policies and activities
of some ministries or to seek information on development on certain fronts. He may also create
special agencies for advice, and monitoring of specific policy areas. We lnay conclude that in the
Indian context the Prime Minister plays avery important role in policy form~llation.

8.6 KEY CONCEPTS

The National Knowledge : It focuses on certain key areas that can help India to achieve
Cominission this goal. These areas include education, science and
technology, agriculture, industry, and e-governance. Broadly
speaking,Indianeeds to become a globally recognised player
in the creation, application and dissemination of knowledge.
Public Law : A legislative act that deals with the citizenry as a whole; a
statute that applies to all. This is in contrast to a private law,
which affects only one person or group.
Role of Cabinet Secretariat and Prinze Minister's Office in Policy-Making 119

8.7 REFERENCES AN? FURTHER READMG

Anderson, James E., 1975, Public Policy Making, Praeger, New York.
Denhardt, Robert B. and Joseph, W. Grubbs, Public Administration :An Action Orientation
(4'"ed), Thornson, Canada. -
Dror, Yehezkel, 1968, Public Policy Making Re-examined, Scranton, Pennsylonia.
Dror Yehezkel, 197 1, Ventures in Policy Sciences : Concepts and A~~plication.s,
American
lElsevier,New York.
Mslzoomdaar, Jay, "PMO for Joint Effort on Tribal Bill", Indian Express, October 29,2005.
Mishra, Prerna K., "Coal Mining: PMOBacks mtblic Units", Indian Express, September 26,2005.
"PMO can't frame sules for Lutyen's bungalows: H C , Hindustan Enzes, December 1,2005.
Sahni, Pardeep, 1 987, Public Policy: Coceptual Dimensions, Kitab Mahal, Allahabad.
Self, Peter, 1977, Administrative Theories and Politics : An Inquiry into the Strucutre and
Processes of M o d e ~ nGovernment, George Allen &JJnwin Ltd.,London.
Shafritz, Jay M. and [Link],2003, Introducing Public Administva tion Addison Wesley,
Longman, New York.
Website: [Link]

1) Describe the role of the Cabinet Secretariat and the PMO in the policy process.
2) It is said that the Indian parliamentary system is moving towards a 'Prime Ministerial' model.
Discuss the statement.
3) Discuss the role of the Indian Prime Minister in the policy process.
4) Outline the organisational structure of the Cabinet Secretxiat and the PMO's office in India.