The Roles and Functions of Chief Secretary of

a State:
Though the Chief Secretary is at the apex of the administrative hierarchy of a state, the Indian
Constitution does not list his powers and functions. His functions are defined in the Rules of
Business, which each state government frames for itself. These are amended from time to time.
Some of the functions, however, have also evolved through custom and conventions.
Role in Policy Formulation:
The Chief Secretary of a state acts as the ex-officio Secretary to the Council of Ministers and, in
that capacity, he is known as the Secretary to the Cabinet. His role in this capacity may be studied
under the following heads:
Head of the Cabinet Secretariat Department:
The Cabinet Secretariat Department works under the overall control of the Chief Secretary with the
Chief Minister acting as the political head.
The functions of the Cabinet Secretariat are also prescribed by the Rules of Business of each state.
But, in broad terms, its functions are: providing secretarial assistance to the cabinet, ensuring the
implementation of decisions, acting as the policy coordination centre, serving as a data bank of
information, organizing conferences etc.
Each state government specifies certain matters, which have to be sent to the Chief Secretary for
his endorsement or approval. For instance, the standing orders of the Cabinet Secretariat
Department of Rajasthan provide that the following matters be sent to the Chief Secretary for his
approval:
(a) All papers relating to cabinet meetings.
(b) Matters which affect Centre-state and intra-state relations and the conduct of Zonal Council oil
meetings.
(c) Establishment matters, relating to Governor, C.M., ministers etc.
(d) Matters relating to senior officers, conferences and regional meetings.
(e) Parliamentary and Assembly questions relating to the Chief Minister /ministers.
(f) Functions relating to census.
(g) Approval of incentives to civil servants.
(h) Medical aid to be given outside the state.
Work Pertaining to Cabinet Meetings:
The Chief Secretary decides whether the memo submitted by a particular department regarding the
case to be discussed is adequately furnished with required facts and data. He is also responsible for
the preparation of the agenda papers.
In his capacity as the ex-officio Secretary to the Council, he attends all the cabinet meetings and
also of the sub-committees of the cabinet. He arranges for the recording of the decisions taken in
the cabinet meetings and forwards a copy to the Governor, the C.M. and the council of ministers.
Participation in the Policy Formulation Process:
The Chief Secretary, while attending the meetings of the cabinet, may be asked to express his views
on important matters. He acts as the main source of information and advice to the C.M. and other
ministers. As the Secretary to the Council, he attends all the meetings of the cabinet.
His presence in the cabinet meetings becomes crucial because the ministers present are elected by
the masses and, they are prone to be easily swayed by the winds of public opinion and, sometimes,
only to please their constituency, they pressurize the C.M. to take decisions that might not be
proper in the long run. Here, the Chief Secretary, with his long administrative experience, "may be
in a position to strike a balance between the policy preferences of the politicians and their
implementation ramifications."
Role in the Follow-up of the Implementation of Cabinet Decisions:
When a decision is arrived at by the cabinet, it is the task of the secretary of the concerned
department to implement that particular decision. Here, the Chief Secretary plays an effective
supervisory role, as the most important cases of the various departments are sent to the Chief
Secretary for final decision or for onward transmission to the C.M. or the concerned ministers.
All-important cases involving adoption of new schemes have to be approved by the Chief
Secretary. He is also empowered to ask for any paper relating to any case of any department and
such a request has to be complied with by the secretary of the department concerned.
In the Central Government, although the Prime Minister has a few ministries and departments
under him, the convention regarding the Cabinet Secretary has been otherwise.
The Cabinet Secretary is not the administrative head of any specific executive departments except,
of course, the Cabinet Secretariat. On the other hand, at the state level, the Chief Secretary is
generally the administrative head of a few departments, the most important among them being
General Administration, Personnel, Administrative Reforms and Planning.
There is no uniformity among the various states in regard to the administrative departments directly
under the charge of the Chief Secretary. However, as a rule, only those departments, which have a
crucial role in the coordination and supervision of state administrative departments/agencies, are
given this status when a department works directly under the Chief Secretary, its overall influence
increases substantially. Concomitantly, with a view to enhancing the status and influence of a
department, it is brought under the charge of the Chief Secretary.
Traditionally, the Planning Department is placed under the Chief Secretary. In Rajasthan, for about
four decades, the Chief Secretary functioned-.as the Planning Secretary and it was only in 1992 that
a separate post of Planning Secretary was created in the state. Even after the introduction of this
change the overall responsibility of the Chief Secretary in matters of planning remains.
He represents the state at the national level consultations concerning the annual and the five-year
plans. Besides, he continues to be chairman of the Planning and Development Coordination
Committees, which are instrumental in effecting interdepartmental/agency coordination for
undertaking, associated developmental activities.
In several states, the Chief Secretary continues to be the Planning Secretary and, in that capacity, he
has to supervise the formulation and monitor the implementation of the plans and effect close
collaboration of the Planning Department with the Finance Department and other executive
agencies.
Another department that is generally placed under the charge of a state Chief Secretary is the
Department of Personnel. It may be recalled that the Administrative Reforms Commission of India
had recommended that the Department of Personnel of each state should be put under the charge of
the Chief Secretary.
Accordingly, in a number of states, the Chief - Secretary functions today as the Personnel
Secretary. In that capacity, his role involves the following functions:
(a) He is responsible for personnel matters of the state cadre officers of the IAS, the highest state
service, and any other service described in the Rules of Business of the state. He deals with all
matters relating to vacancies, appointments, transfers, placements, seniority, promotions and
retirement of personnel of the higher civil services.
He also plays a crucial role in the promotion of state service officers to the IAS. All matters
pertaining to determination of seniority of the above-mentioned officers are sent to him for
consideration.
(b) His approval is sought for amendments in service rules.
(c) He is also generally consulted by the Chief Minister while making appointments to the posts of
chairman and members of the State Public Service Commission.
(d) As personnel Secretary, the Chief Secretary has to ensure that conduct rules are followed
strictly by the state civil servants. Hence, cases regarding disciplinary action against all the services
mentioned under his charge are brought up before him. The decisions of the Chief Secretary on
disciplinary proceedings against all-India service officers, heads of departments and other state
civil service officers are generally endorsed by the Chief Minister.
(e) He also writes the Annual Confidential Reports (ACRs) or performance appraisal reports
(APRs) of the officers of all-India services posted in his state.
(f) Some states have the office of the Lok Ayukta to examine complaints made by citizens against
defaulting officers. The C.M. may consult the Chief Secretary while appointing the Lok Ayukta.
The annual reports of the Lok Ayukta are routed through the Chief Secretary, before being sent
through proper channel to the legislative assembly of the state.
(g) He can intervene in matters involving staff welfare and service conditions of state government
officials.
(h) He is the overall in charge of training and career management of the Civil servants of the state.
In Rajasthan, he also works as the chairman of the State Advisory Committee on Training and the
Training Coordination Committee.
In certain states, a separate post of Personnel Secretary has been created. In Rajasthan, this post
was created in 1992. However, by virtue of being the head of the civil service, the Chief Secretary
continues to be directly involved in the regulation of personnel administrative matters. A number of
important cases relating to personnel matters are routed through the Chief Secretary before being
sent to the Chief Minister, who generally happens to be the Minister for Personnel in the state
government.
Another department, which in some states is directly under the Chief Secretary, is the
Administrative Reforms Department that deals with the reorganization of the administrative
machinery and revamping of procedures in government. Even when a separate secretary is in
charge of this subject, the role of the Chief Secretary in matters of guiding, directing and
monitoring administrative reforms remains crucial.
It may be mentioned that in most of the states in India, the Chief Secretary functions as the
Secretary, General Administration. This department is responsible for taking care of the general
administrative matters of different state government departments and provides miscellaneous
facilities to the departments and officers.
This can be done effectively under the leadership of the senior most civil servants, whose judgment
and controlling authority are trusted and accepted. The role of the Chief Secretary regarding
general administration involves a number of tasks.
(a) During visits of dignitaries to the state, he looks after all the necessary arrangements.
(b) He chairs an expert body, which decides matters of awarding honours and distinctions.
(c) All the matters relating to the property of and compensation to ex-rulers and freedom fighters
are referred first to the Chief Secretary and then to the C.M.
(d) He deals with matters relating to inter-state disputes.
(e) The Chief Secretary can initiate changes in Rules of Business but, the final decision in this
respect rests with the cabinet
(f) Matters concerning motor garage and state vehicles are under his jurisdiction.
(g) Cases concerning grants-in-aid to NGOs engaged in social and cultural development are routed
through him to the C.M.
(h) All matters of housing accommodation and government buildings and circuit house fall under
his jurisdiction.
These responsibilities of the Chief Secretary affect all the departments and, therefore, the role of
the Chief Secretary as head of the General Administration Department remains of substantial
significance.
The last but, by far the most important, function of the Chief Secretary is to coordinate the
activities of the entire state government machinery.
Main Functions of the Chief Secretary of a
State:
These wide ranging activities and operations that skirt around the office of chief secretary
render him the centre of gravity, a hub around which the political and administrative
machinery rotates. Some of these powers and functions are enumerated in the rules of
business, but most of them emanate from conventions and inter-relationships between
political institutions and the people.

Broadly speaking these functions can be classified as under:

1. Adviser to the CM:
The chief secretary acts as the principal advisor to the chief minister on all matters of
state administration. The chief minister consults him on all policy issues related to the
governance of state. He explains to the chief minister about the administrative
implications of the proposals forwarded by the state ministers.

He also serves as a link between the chief minister and other secretaries of the state
government. This advisory function becomes too broad when the administrative
implications of a particular policy make the CM think and revise his policy decisions. As a
confidence booster and conscience keeper of the CM, the CS works on policy options in
terms of their administrative viability and costs.

2. Secretary to the Cabinet:

The chief secretary acts as a secretary to the state cabinet. He is the administrative head
of the cabinet secretariat and attends the meeting of the cabinet and its sub-committees.
He prepares the agenda for cabinet meetings and keeps records of its proceedings. He
takes steps for the implementation of the decisions taken in such meetings. He acts as
the ex officio secretary to the council of ministers and while acting in this capacity, he
may be called as the secretary to the cabinet.

3. Head of State Cabinet Secretariat:

The functions of the cabinet secretariat are prescribed by the Rules of Business of each
state. But, in broad terms, these functions are: secretarial assistance, implementation of
decisions, policy coordination and providing information. The cabinet secretariat works
under his overall control and command.

4. Resource Person of State Government:

The chief secretary is often asked to express his views on important matters. His
information and advice as secretary to the council facilitate political decision-making. His
administrative experience, “may sway policy preferences and shift implementational
consequences”. He plays a supervisory role, as a resource person in tendering advise for
final decisions or for their onward transmission to the proper quarters.

5. Head of Civil Services:

The chief secretary acts as the head of the state civil services. Important cases
pertaining to appointments, transfers and promotion of senior state civil servants go to
his desk. He plays an important role in maintaining the morale of the civil services. As a
conscience-keeper of all state civil servants he determines vacancies, appointments,
transfers, placements, seniority, promotions and retirement of public servants.

He is also consulted by the chief minister in amending service rules and making
appointments to senior positions. As personnel secretary, he has to ensure that conduct
rules are followed and disciplinary actions are taken. The Annual Confidential Reports
(ACRs) or Performance Appraisal Reports (PARs) of senior officers of all-India services
posted in his state are written by him. He initiates matters involving staff welfare and
service conditions of state officials and is overall in charge of training and career
management of civil servants of his state.

6. Coordinator of Civil Service Efforts:

The chief secretary ensures inter departmental coordination. He advises the secretaries
on inter departmental difficulties. He is the chairman of coordination committees which
are set up for resolving inter departmental disputes. He presides over the meetings of the
department secretaries and divisional commissioners, district collectors and the heads of
departments of district administration to effect coordination. This coordination in state
administration has to be between Centre and state, between administrations of various
states, and between various levels of hierarchy in the state administration itself.
The Union ministries, the Planning Commission, the NDC and cabinet secretariat of the
Central government operate through the office of the chief secretary. He is the formal
channel of communication and informal network of consultative agencies which operate
through his office. The Chief Secretaries Conference, the zonal councils and interstate
council provide him forums for inter- and intrastate level coordination.

He is an effective link to resolve interstate disputes relating to boundaries or river waters

as an adviser to the CM. He is also the chairman of the Planning and Development
Coordination Committees. To provide effective coordination at regional and district levels
he calls conferences of senior officials like divisional commissioners, district collectors,
heads of the departments and superintendents of police every year.

7. Head of Secretariat Departments:

The chief secretary may also act as an administrative head of some secretariat
departments. His position varies from state to state but in most of the states, the general
administration department, personnel department, planning department and
administrative reforms department are kept by the chief secretary under his direct
charge.

The general administration department in the state secretariat is usually under the chief
minister who is concerned with sensitive matters affecting the entire business of the state
government. The Administrative Reforms Commission recommended that the personnel
department in all the states should be directly headed by the chief secretary.

In times of crises like flood, drought, communal disturbances and others, the chief
secretary plays a significant role by providing guidance and leadership to field officers
and agencies engaged in relief operations. He chairs all such committees which take
high level policy decisions during crisis situations. In fact, he acts as the disaster
manager and virtually represents the state government for all the officers concerned with
relief operations.

8. Residual Legatee:
The chief secretary also acts as the residual legatee, that is, he looks after all those
matters which do not fall within the purview of other secretaries. He acts as secretary, by
rotation, of the zonal council of which the state concerned is a member and exercises
general supervision and control over the entire state secretariat.

The administrative control over the secretariat building, the staff attached to the
ministers, the central record branch, the secretariat library, the conservancy and watch
and ward staff of the secretariat departments vests in him. He is the principal channel of
communication between his government and the Central government and other state
governments and in this capacity plays a significant role in the administration of law and
order and planning.

He attends the annually held chief secretaries conference presided over by the Cabinet
Secretary of the Union government and acts as a spokesperson of the state government.
As the chief advisor to the Governor when President’s rule is imposed in the state and if
the Central advisors are not appointed he runs the administration.

The CS attends the meetings of the National Development Council. In some states the
chief secretary looks after the Administrative Reforms Department and monitors
administrative reforms. He functions as the secretary, general administration and
provides necessary facilities to departments and officers.

Functions like looking after the visits of dignitaries to the state, chairing of expert bodies
which decides matters of awarding honours and distinctions fall in the purview of GAD
which also looks after matters relating to compensation to ex-rulers and freedom fighters.
He is authorised to initiate changes in Rules of Business. Cases concerning grants-in-aid
to NGOs are routed through him to the CM.

Similarly, matters of housing accommodation and government buildings and circuit house
fall under his general jurisdiction. These responsibilities of the chief secretary affect all
the departments and therefore, become significant and even decisive. Lately the office
has been criticised for its over politicisation and several competent seniors have been
ignored in the name of seniority-suitability selection process by political leaders of
various categories.

It opens a flood gate of manipulations, in-service rivalries and political manipulations of

administrative seniors. It is unfortunate that a chief secretary is known as chief minister’s
man and becomes persona non-grata on change of the incumbent of the office of CM.
Perhaps association of a High Court Judge in the selection process can be of some help.
Those superceded in the selection of CS post should compulsorily be sent on deputation
rather than to languish disgruntled and demoralise their colleagues.

To improve the functioning of the chief secretary’s office, the ARC has made several
recommendations. The commission said: “The secretarial organisation needs
coordination and discipline. This can be done by strengthening the position of the chief
secretary who is to function as the chief coordinator under the chief minister. Being the
captain of the team of secretaries to the government, the chief secretary should be a
senior person of outstanding ability.

He should not only command respect and confidence of all the services in the state but
also enjoy good reputation at the Centre so that he can deal with the secretaries to the
Union government on equal terms.” In ARC’S view “The selection of the chief secretary
should be made with great care. He should usually be the senior-most fit person who by
virtue of his ability, experience, integrity and impartiality commands the respect and
confidence of all officers. The chief secretary should be the senior-most person; due
regard being paid to merit. He should have a minimum tenure of 3 to 4 years. He should
be relieved of routine and non-essential work and, where necessary, given proportionate
staff assistance to enable him to ensure quick implementation of cabinet decisions and
effective co-ordination in the policies and programmes of the state government.”