(Report) 2nd Administrative Reforms Commission : Ethics in Governance

Contents :

Chapter 1 Introduction 1

Chapter 2 Ethical Framework 8

2.1 Ethics in Politics 8
2.2 Ethics in Public Life 18
2.3 International Approach 21
2.4 Ethical Framework for Ministers 22
2.5 Ethical Framework for Legislators 28
2.6 Office of Profit 37
2.7 Code of Ethics for Civil Servants 41
2.8 Code of Ethics for Regulators 45
2.9 Ethical Framework for the Judiciary 47

Chapter 3 Legal Framework for Fighting Corruption 58

3.1 Evolution of the Anti-Corruption Laws in India 58
3.2 The Prevention of Corruption Act, 1988 60
3.3 Corruption Involving the Private Sector 71
3.4 Confiscation of Properties Illegally Acquired by Corrupt Means 74
3.5 Prohibition of ‘Benami’ Transactions 77
3.6 Protection to Whistleblowers 77
3.7 Serious Economic Offences 79
3.8 Prior Concurrence for Registration of Case: Section 6A of 86
the Delhi Special Police Establishment Act, 1946
3.9 Immunity Enjoyed by Legislators 87
3.10 Constitutional Protection to Civil Servants - Article 311 89
3.11 Disciplinary Proceedings 98
3.12 Statutory Reporting Obligations 105

Chapter 4 Institutional Framework 106

4.1 Existing Institutions/Agencies 106
4.2 Evaluation of the Anti-Corruption Machinery in India 108
4.3 The Lok Pal 111
4.4 The Lokayukta 116
4.5 Ombudsman at the Local Level 120
4.6 Strengthening Investigation and Prosecution 122

Chapter 5 Social Infrastructure 125

5.1 Citizens’ Initiatives 125
5.2 False Claims Act 130
5.3 Role of Media 132
5.4 Social Audit 133
5.5 Building Societal Consensus 134

Chapter 6 Systemic Reforms 135

6.1 Importance of Systemic Reforms 135
6.2 Promoting Competition 137
6.3 Simplifying Transactions 138
6.4 Using Information Technology 140
6.5 Promoting Transparency 142
6.6 Integrity Pacts 143
6.7 Reducing Discretion 144
6.8 Supervision 145
6.9 Ensuring Accessibility and Responsiveness 147
6.10 Monitoring Complaints 149
6.11 Reforming the Civil Services 149
6.12 Risk Management for Preventive Vigilance 150
6.13 Audit 152
6.14 Proactive Vigilance on Corruption 153
6.15 Intelligence Gathering 155
6.16 Vigilance Network 156
6.17 Sector Specific Recommendations 157

Chapter 7 Protecting the Honest Civil Servant 158

Chapter 8 International Cooperation 163

Chapter 9 Relationship between the Political Executive and 166

the Permanent Civil Service Conclusion 172

Summary of Recommendations 173

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