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While some ethical approaches consider an action to be ethical based on results, other focus on means. Taking the example of Indian bureaucracy, compare and examine how these approaches have played out for the benefit of citizens.

Ethical approaches often take a conflicting approach between the means and results or ends. Some believe that an action resulting in an outcome which is moral is independent of the means used. While for others, instrumental value is an end in itself as a wrong mean cannot justify a right end. Indian bureaucracy has often faced this dilemma of means vs. ends, because bureaucracy has both means-oriented as well as goal-oriented values. Rules, hierarchy, specialisation, division of labour, merit based recruitment, impersonal orders, etc are the characteristic features of bureaucracy aiming to achieve the larger goal of public service. These features have helped citizens in following ways:

• Rules and procedures lead to consistency. It facilitates bureaucracy’s interaction with public and

realisation of the values of impartiality and fairness in treating citizens.

• Duties and responsibilities are clearly defined leading to efficiency and helps in extracting

accountability in delivery of public services.

• Selection process and promotions are based on merit and expertise which helps in the realisation of justice as an ideal. Further, there is optimum utilisation of human resources.
• Division of labour improves performance considerably which enhances economy and larger public good.
• Impersonal orders ensure that there is no conflict of interest while taking a decision or issuing a directive. It helps bureaucracy realise the ideal of honesty and integrity.

These instrumental values have made bureaucracy a tool for fulfilling citizens’ aspirations. It undertook large development and welfare projects and provided India with satisfactory development and growth. However, an undue emphasis on these means also hindered equity, progress, social justice and inclusive development. Means often become end in themselves which hinders public service delivery. Citizens’ plight and concerns are superseded by following rules and procedures. But, bureaucracy has become mindful of these limitations. Many bureaucrats have risen above means and tried to achieve the results even if it means discarding or working around typical bureaucratic features.

• Success of grand development projects like Konkan Railways points to the fact that bureaucracy was not procedure and rule bound but it was innovative and imaginative and shed many bureaucratic features to deliver.
• Even though rules cannot be bypassed, innovative routes to accomplish tasks, such as where rules are silent, have been resorted to. For example, electronic delivery of services has been started in many districts without explicit order or directive of the state. It were zealous bureaucrats who were able to find ways to deliver public services without the interface of public office between state and citizen.
• Many officers have undertaken development projects without government’s help. They have used crowd funding etc. for the same.

Being target oriented or ‘ends-based’ does not mean that rules can be compromised. It means that rules are minimized with the objective that they may not become a hinderance in achieving the ultimate goal. Thus, Indian bureaucracy has used both ends and means for public good. Having a chequered history, it is gradually moving towards citizen-centric approach and overcoming its obsession with bureaucratic features for the larger good of public.