From Red Tape to Red Carpet: Bureaucratic Reforms and their Impact on BRO

Modi’s MGMG. The idea of “MGMG” (Minimum Government, Maximum Governance), championed by the Prime Minister Narendra Modi since assuming office a decade ago, is a vision that resonates deeply with the aspirations of a modern and progressive Bharat. While this vision has indeed driven significant reforms and progress over the years, there remains a critical bottleneck: the bureaucratic framework. For India to achieve the status of a developed nation by end of Amrit Kaal (2047), a comprehensive overhaul of our governance model, inspired by innovative ideas such as Trump’s DOGE (Department of Government Efficiency) initiative, is imperative.

Bureaucratic Resistance to Change

Indian bureaucracy has long been criticized for its inefficiencies and resistance to change. While few reforms have been introduced intermittently, their impact has been limited due to following systemic issues :-

  • Unlimited Power with Zero Accountability. The bureaucratic system in its current form wields enormous powers but remains frustratingly unaccountable, leading to widespread inefficiency. This gap between authority and responsibility is glaring in central ministries, where delays, red tape and lack of consequences for inaction have become the norm. The lack of accountability is seen in several ways :-
    • Decisions are delayed indefinitely, often without justification.
    • Policies and approvals are mired in unnecessary procedural red tape.
    • Bureaucrats operate with impunity, as there are no mechanisms to penalize inaction or inefficiency.
    • Files are often delayed unnecessarily due to lack of clarity, excessive reasoning, misinterpretation of rules and policies, or viewing policies through biased perspectives. Furthermore, the tendency to route files through multiple departments unnecessarily complicates and prolongs the process, making it both inefficient and frustrating.
  • Resistance to Time-Bound Action. A glaring deficiency in the current governance model is the absence of time-bound mandates. Bureaucrats and departments operate without strict deadlines, resulting in a culture of sheer complacency. This systemic inertia is detrimental to India’s developmental goals.

The Compelling Bureaucratic Process Reforms

There is a compelling need for Structural/Institutional, Administrative and Procedural/Process driven reforms which should be undertaken in consonance with various studies done by numerous committees from time to time on the subject. However, biggest block to these reforms is the bureaucracy itself. Even the lateral entry of experts and officers from other departments has been effectively resisted by bureaucrats with an unfounded fear of losing control of absolute power on the intrinsic systems of governmental framework. Even if we go slow on structural/institutional reforms and focus on procedures/processes alone by integrating decentralization, technology, and accountability, we can turn the traditional governance frameworks into more transparent, efficient, and citizen-focused. Here are certain elemental process reforms which can inspire efficient governance to pave the way for India’s journey to Amrit Kaal.

  • Decentralization and Technology Integration. One of the most innovative aspects of the impending bureaucratic reforms is its emphasis on decentralization. Instead of consolidating power at higher levels of government, decision-making must be distributed across various levels, enabling quicker and more localized responses. Block-chain technology plays a pivotal role in this system :-
    • Block-chain for Transparency. It provided a secure, tamper-proof ledger for recording decisions, approvals, and transactions. This ensures that every action taken by authorities could be tracked and verified, eliminating opportunities for corruption and inefficiencies.
    • Empowering regional and local administrative units with greater autonomy.
    • Reducing dependency on central ministries for routine approvals.
  • Citizen-Centric Approach. The citizens should be placed at the heart of governance, encouraging public participation and ensuring that policies are aligned with the needs of the people:
    • Open Platforms for Feedback. Citizens can directly interact with governance systems, providing feedback, raising concerns and monitoring progress.
    • Accountability to the Public. By involving citizens, the model creates a direct accountability loop, where authorities are more answerable to the people.
  • Performance-Based Governance. We must have a performance-driven governance framework, where the efficiency and effectiveness of government officials are regularly evaluated based on measurable outcomes:
    • Data-Driven Metrics. The performance of bureaucrats and departments needs to be tracked using clear, quantifiable metrics, such as project completion rates, adherence to timelines and quality of outcomes.
    • Incentives and Accountability. Officials demonstrating exceptional performance to be rewarded, while those lagging behind to face accountability measures.
  • Introducing Time-Bound Governance. Time-bound action plans must become the cornerstone of governance. This involves:-
    • Mandating strict deadlines for decision-making at every level of bureaucracy.
    • Implementing penalties for delays that are not justified by exceptional circumstances.
    • Regular audits to ensure adherence to timelines and to identify bottlenecks.

In Govt offices, most processes rely on physical files and noting sheets initiation for the approval of the competent Authority, which often leads to inefficiencies. There is a common tendency to send files back and forth for unnecessary queries, many of which should be addressed by the decision-making authority. A lack of coordination among the stakeholders further exacerbates delays. Files are routed through so many hands that the original intent and urgency of the project are often lost, with the process taking a completely different direction.

To address this, offices should implement a robust online tracking system to monitor the movement of files. This system should record how long a file remains at each level, how many times it is sent back, and the reasons for such actions. Such a mechanism would not only improve transparency but also help evaluate the efficiency of both the office and the officers handling the files, ensuring greater accountability and faster decision-making.

  • Streamlining Processes with Technology. Leveraging technology is essential to cut through bureaucratic inefficiencies. Digital platforms can :-
    • Enable real-time tracking of project approvals and sanctions.
    • Facilitate inter-departmental coordination, reducing redundancies.
    • Provide a transparent interface for citizens and stakeholders to engage with governance processes.

Amrit Kaal Beckons

My first-hand experience as Director General Border Roads for three years dealing with strategic infrastructure development post Galwan conflict under most trying conditions of climate and terrain, and operating through tight schedules of execution of crucial projects in 11 border states and 3 Union Territories, negotiating through few central ministries, reveals a concerning pattern that the decision-making process within governing structures is not aligned with the urgency required for execution of strategic projects specifically on our Northern Borders. Delays in land acquisition processes, granting forest and wildlife clearances, environmental clearances, approval of designs, and project sanctions etc are routine. These delays push the projects back by years thus exponentially increasing project costs. This also creates a cascading effect, delaying other interlinked projects and slowing down overall progress.

BRO stands at the start line of Amrit Kaal, poised to redefine the boundaries of national security and socio-economic development. With its rich legacy spanning over six decades, BRO has evolved from humble beginnings to become a formidable force in its present incarnation, driving progress along India’s border regions in unprecedented manner, where the pace of construction of strategic projects was accelerated to 2.5 times despite bureaucratic delays in sanctioning of projects and approvals of Annual Works Programs.

Minimal Immediate Reforms within MoD

  • Financial Reforms. There is a need for financial reforms in the BRO to ensure incremental fund flow and their efficient utilisation. This would involve greater budgetary oversight, improved financial management practices and better monitoring and evaluation of on-going projects. Also the sanctioning powers need an immediate review in step with growing economy.
  • Modernisation of Equipment. There is a need to revise existing archaic norms for authorisation of equipment and allotment for funds for procurement of machines to undertake ensuing works. In fact the power to decide the type of equipment and machines required to undertake the strategic works should be delegated to the DGBR to avoid delays in prevalent procurement cycle.
  • Infusion of New Technology. The new technology and products not only enhance the quality of projects but also reduce time of construction and long term costs. There is a need to look at this aspect with open mind in the larger national interest while creating strategic roads and other projects.
  • Skill Development. The BRO workforce needs to be equipped with the necessary skills to operate modern equipment effectively and adopt the latest technologies and construction methodologies to ensure effective execution of strategic works specially tunnels.
  • BRO Act.  BRO is an integral part of Indian Armed Forces under Article 33 of the Indian Constitution and BRO is also probably the only uniformed organisation which is not governed by an exclusive Act. GREF cadre is governed by CCS (CCA) Rules, 1965; whereas Army component of the organisation is dealt by Army Act, 1950 and Army Rules, 1964. It is strongly recommended that BRO Act should be brought in for curtailing anomalies in the pay structure, to deal with disciplinary cases in just and fair manner and bring in more transparency and accountability in functioning of BRO towards Nation building.
  • One Border-One Agency. There have been too many agencies constructing roads in the same space. Such arrangement creates confusion of duplication of connectivity due to lack of inter-ministerial coordination and final accountability of poor quality or speed of work as at times 3-4 agencies are allotted patches of stretch on the same road. It is recommended that there should be “One Border- One Agency” policy promulgated to have clear demarcated areas of operation. Till that happens at least we must ensure “One Axis – One Agency” principle to ensure speed and accountability. Also roads built by BRO should not be handed over to state PWDs but continued to be maintained by BRO itself.
  • Abolition of BRDB. BRO was formed in 1960 and placed under Border Roads Development Board (BRDB) with Prime Minister as its Chairman, for ease of funding and close monitoring. Today RRM is the Chairman of BRDB. This arrangement too has lost its relevance, as BRO has been functioning directly under Defence Secretary since Jan 2015. The last meeting held under Chairman BRDB was in 2017 and a JS level officer officiates as Secretary BRDB. It is prudent to review this dual control as it creates two power centres and defies the very logic of Prime Minister’s vision of “Minimum Government, Maximum Governance”.
  • DGBR as HOD. Amongst all uniformed central organisations, BRO is the only department where its Director General has been deprived of Head of Department status. He is responsible and accountable for execution of projects but most of the crucial administrative powers are held and operated by a JS level officer thereby creating undesired delays related to critical HR matters.
  • Making up the Cadre Deficiencies. The existing deficiency of officer (25%) and subordinate (21%) cadres of GREF should be made up on urgent basis. The BRO’s work is increasing exponentially every year due to strategic compulsions but there is negative growth in the cadre strength every successive year due to high attrition vis-à-vis induction.
  • Approval of Study on Simplification of Processes. There is an essential requirement for simplification of administrative and technical processes and procedures, revision of sanctioning powers and easing out of bureaucratic control on day to day functioning of BRO. A comprehensive study undertaken through KPMG on the subject has been pending approval by MoD for quite some time and should be expedited in larger national interest.
  • BRO Videsh. There is an urgent need to create a foreign wing of BRO to enable it to undertake infrastructure projects in friendly foreign countries to establish sub regional connectivity to promote trade, commerce and strengthening diplomatic ties.

Daring to Dream

As we match our steps with Surging India, we look at BRO with increased expectations through a prism of operational optimization and strategic expansion, where it can play a greater role in nation building. It is imperative to recognize the organization’s true potential to transcend conventional boundaries and catalyse revolutionising reconstruct. With streamlined processes and time-bound actions, infrastructure and development projects can progress at an unprecedented pace, contributing significantly to economic growth. It is time for BRO to march beyond borders.

Conclusion

India stands at the crossroads, with the potential to emerge as a global powerhouse by 2047. However, this aspiration hinges on our ability to overcome systemic inefficiencies in governance. The Prime Minister’s vision of Minimum Government, Maximum Governance provides the ideological foundation for this transformation, but it must now be translated into actionable reforms.

Drawing inspiration from global best practices, India must embark on a path of bureaucratic reform that prioritizes efficiency, accountability, and citizen-centric governance. The time is ripe for a bold, decisive shift in our governance model—one that aligns with the ambitions of a new India and sets the stage for an era of unprecedented growth and progress. Let this be the moment when we reignite our latent desire for transformation and take the bold steps necessary to turn this vision into reality.

ABOUT THE AUTHOR

Lt Gen Rajeev Chaudhry, VSM, during his last assignment of DG Border Roads, doubled the pace of work to meet stringent targets post Galwan clash and worked to get an incremental budget allocation of 160% for GS roads during his tenure. He infused at least 18 new technologies and procured the latest machines and equipment to enhance speed and quality of projects. He brought transparency in expenditure through increased use of GeM and ensured timely payments to the firms for which BRO was awarded Gold Certificate for two consecutive years. He also ensured desired dignity, social security, and visibility to the unsung BRO Karmyogis.


Leave a Reply

Your email address will not be published. Required fields are marked *