Analysis of Central Government Personnel: 7th CPC Report
3.1 The Seventh CPC has been mandated by its terms of reference to examine, review and recommend changes in the principles that govern the emoluments structure for a number of employees’ categories viz., Central Government employees, those belonging to All India Services, personnel of Union Territories, officers and employees of the Indian Audit and Accounts Department, Members of Regulatory Bodies, Officers and employees of the Supreme Court and personnel belonging to the Defence Forces. The focus of the Commission is primarily on personnel serving the Central Government. Therefore an essential aspect of the work of the Commission involved obtaining a clear picture of the size, composition and profile of Central Government personnel.
Background
3.2 The III, IV and V CPCs undertook an analysis of the composition of Central Government personnel. The III CPC, in its Chapter titled ‘Employment under Central Government,’ analysed the distribution of posts among major departments; distribution of posts in terms of classes-I, II, III and IV (as was classified at that time); distribution of posts among permanent and temporary and distribution of employees according to pay ranges.
3.3 The IV CPC, in a separate Chapter titled ‘Civil Employment under the Central Government,’ analysed the strength of the civil Central Government broadly in terms of (a) distribution of posts in terms of major departments (b) distribution of posts in terms of groups- Group `A’, Group `B’, Group `C’ and Group `D’ (c) distribution of industrial workers in terms of major departments and (d) distribution of permanent and temporary posts by major departments.
3.4 The V CPC in its Chapter titled ‘Size of employment under Central Government’ analysed the strength of the civil Central Government broadly on the lines of the IV CPC, adding greater details. It concluded inter alia that the statistics did not provide pointers to whether “the bureaucracy as a whole is ‘bloated’ or not.” It did however note that the rate of growth had been arrested and that the government, if it had the will, could reduce manpower. It also supported the trend towards an officer oriented administration.
3.5 The VI CPC Report did not carry a separate analysis of Central Government personnel.
Approach of this Commission
3.6 The Commission decided to elicit data relating to personnel from all ministries/departments so as to get a comprehensive view on personnel serving the government in terms of certain broad attributes. To do so data on personnel position over time was sought along with their age profile. Further, in the context of implementation of the National Pension System w.e.f. 01.01.2004, disaggregation in terms of those recruited before or after this event was sought.
Information was also obtained regarding expenditure on pay and allowances of personnel working in the Central Government; extent of deployment of contractual staff and training and skill development of personnel. The data template in which information was sought is at Annex A, B, C, D1 and D2.
3.7 To ensure integrity of data the Commission validated the data on personnel with reference to other data sources in the government on personnel viz., - (a) Expenditure Budget, Volume 1, Annex 7 of the Ministry of Finance and (b) Census of government employees prepared by the Directorate General of Employment and Training, Ministry of Labour and Employment.
While undertaking this exercise infirmities in data as and where noticed were reconciled in consultation with the ministries/departments. With regard to expenditure on personnel the ministries/departments were requested to furnish this data after having it vetted by their Chief Controller of Accounts.
Scope of Analysis
3.8 Based on the data received, an analysis has been undertaken by the Commission to bring out the existing position on Central Government civilian personnel and the pointers it provides to policy makers in the government.
3.9 The Commission has obtained data regarding 33.02 lakh Central Government civil personnel, in Civil Ministries/Departments, Defence (Civilians), Posts and Railways5. The analysis includes 0.77 lakh personnel of Delhi Police, who are paid salaries from the Police grant of the Ministry of Home Affairs. A separate section has been added on contracted manpower in the government.
3.1 The Seventh CPC has been mandated by its terms of reference to examine, review and recommend changes in the principles that govern the emoluments structure for a number of employees’ categories viz., Central Government employees, those belonging to All India Services, personnel of Union Territories, officers and employees of the Indian Audit and Accounts Department, Members of Regulatory Bodies, Officers and employees of the Supreme Court and personnel belonging to the Defence Forces. The focus of the Commission is primarily on personnel serving the Central Government. Therefore an essential aspect of the work of the Commission involved obtaining a clear picture of the size, composition and profile of Central Government personnel.
Background
3.2 The III, IV and V CPCs undertook an analysis of the composition of Central Government personnel. The III CPC, in its Chapter titled ‘Employment under Central Government,’ analysed the distribution of posts among major departments; distribution of posts in terms of classes-I, II, III and IV (as was classified at that time); distribution of posts among permanent and temporary and distribution of employees according to pay ranges.
3.3 The IV CPC, in a separate Chapter titled ‘Civil Employment under the Central Government,’ analysed the strength of the civil Central Government broadly in terms of (a) distribution of posts in terms of major departments (b) distribution of posts in terms of groups- Group `A’, Group `B’, Group `C’ and Group `D’ (c) distribution of industrial workers in terms of major departments and (d) distribution of permanent and temporary posts by major departments.
3.4 The V CPC in its Chapter titled ‘Size of employment under Central Government’ analysed the strength of the civil Central Government broadly on the lines of the IV CPC, adding greater details. It concluded inter alia that the statistics did not provide pointers to whether “the bureaucracy as a whole is ‘bloated’ or not.” It did however note that the rate of growth had been arrested and that the government, if it had the will, could reduce manpower. It also supported the trend towards an officer oriented administration.
3.5 The VI CPC Report did not carry a separate analysis of Central Government personnel.
Approach of this Commission
3.6 The Commission decided to elicit data relating to personnel from all ministries/departments so as to get a comprehensive view on personnel serving the government in terms of certain broad attributes. To do so data on personnel position over time was sought along with their age profile. Further, in the context of implementation of the National Pension System w.e.f. 01.01.2004, disaggregation in terms of those recruited before or after this event was sought.
Information was also obtained regarding expenditure on pay and allowances of personnel working in the Central Government; extent of deployment of contractual staff and training and skill development of personnel. The data template in which information was sought is at Annex A, B, C, D1 and D2.
3.7 To ensure integrity of data the Commission validated the data on personnel with reference to other data sources in the government on personnel viz., - (a) Expenditure Budget, Volume 1, Annex 7 of the Ministry of Finance and (b) Census of government employees prepared by the Directorate General of Employment and Training, Ministry of Labour and Employment.
While undertaking this exercise infirmities in data as and where noticed were reconciled in consultation with the ministries/departments. With regard to expenditure on personnel the ministries/departments were requested to furnish this data after having it vetted by their Chief Controller of Accounts.
Scope of Analysis
3.8 Based on the data received, an analysis has been undertaken by the Commission to bring out the existing position on Central Government civilian personnel and the pointers it provides to policy makers in the government.
3.9 The Commission has obtained data regarding 33.02 lakh Central Government civil personnel, in Civil Ministries/Departments, Defence (Civilians), Posts and Railways5. The analysis includes 0.77 lakh personnel of Delhi Police, who are paid salaries from the Police grant of the Ministry of Home Affairs. A separate section has been added on contracted manpower in the government.
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