PMO & Cabinet Secretariat: Function & Role in Indian Governance

“PMO is one of the youngest organization of Union Government, but has tended to emerge as tallest at different points in time.”

PMO as the Pillar of Leadership in Indian Governance

Prime Minister’s Office (PMO) is a staffing agency assisting the Prime Minister in the efficient discharge of his role, functions, and responsibilities. It is mainly concerned with providing assistance in decision-making at the top level of the government of India.  

The Evolution and Impact of the Prime Minister’s Office

• PMO was originally set up as the Prime Minister’s Secretariat (PMS) in 1947. 
• PMS changed to the Prime Minister Office (PMO) in 1977.
• Leadership of the PMO: The PMO is headed by the Principal Secretary (Currently Pramod Kumar Mishra).
• Elevation to Departmental Status: It got the status of department under Allocation of Business rules 1961. 
• Structure and Composition of PMO: PMO consists of the immediate staff of the PM of India, as well as multiple levels of support staff reporting to the PM.
• PMO Strength and Influence: PMO being closer to the Prime Minister, today PMO is stronger than the Cabinet Secretariat. 
  • The Principal Secretary is near to the PM. 
  • Terms and conditions of the Principal Secretary are set by the PM.
  • Despite its importance, it is accorded an extra-constitutional body.

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Composition of PMO: Key Players in Government Decision-Making

• Politically headed by the Prime Minister.
• PMO Administratively headed by Principal Secretary (Usually senior retired IAS)
• One or two additional secretaries.
• 5 joint secretaries
• National Security Advisor (NSA)
• A number of directors, deputy secretaries and under secretaries

Functions of the PMO in Indian Governance (As per the Allocation of Business Rules 1961): Assisting the Prime Minister’s Leadership

• Secretariat’s Main Function: The main task of the secretariat is to help the Prime Minister in the performance of his functions as the head of the government
• Secretariat’s Role in Official Liaison: Assisting the PM in maintaining official communication with union ministers, the president, governors, chief ministers, and foreign government representatives.
• Public Interface: Handling various requests or complaints from members of the public addressed to the Prime Minister from the public side.
• Secretariat’s Broad Jurisdiction: The jurisdiction of the Secretariat may be said to extend over all such subjects and activities which are not specially allocated to any individual ministry department

Other Functions: Strategic and Operational Dimensions of the PMO in India

• Dual Role: Provides secretarial assistance to the PM and acts as a think tank.
• Handling of References: It deals with all references which under the Rules of Business comes to the PM.
• Support in CEO Role: Helps the PM in discharge of his overall responsibilities as CEO and as head of NITI Aayog.
• Public Relations Oversight: Looking after the public relations of the prime minister like contact with the press and general public.
• Settlement Facilitation: Provide Prime Ministerial assistance in examination of cases submitted to him for orders under prescribed rules so it acts as settlement house to finalize decisions concerning administrative doubts.
• Operational Oversight: The Prime Minister’s National Relief Fund (PMNRF) and the National Defence Fund (NDF) are operated directly from the PMO
• However, the PMO is not responsible for duties that fall on the Prime Minister as the head of the cabinet, except for matters managed through personal correspondence between him and individual ministers, 
  • It also do not involve in handling correspondence, either relating to party policies or of a domestic nature

The Cabinet Secretariat’s Path from 1861 to India’s Constitutional Recognition

• Historical Perspective: Catalyst for Governance Change
  • Evolution of the Executive Council: The Councils Act of 1861, enacted during Lord Canning’s tenure, legalized the Governor-General-in-Council (the earlier name for the Cabinet Secretariat) procedure. This led to the introduction of the portfolio system and the formation of the Executive Council of the Governor-General.
  • Evolution of the Cabinet Secretariat: In September 1946, with the establishment of the Interim Government, the Executive Council’s Secretariat was officially renamed the Cabinet Secretariat.
    • Consequently, the Secretary of the Executive Council of the Viceroy was renamed as the Cabinet Secretary. 
• Definition of Cabinet: Article 352 defines the “Cabinet” as the Council consisting of the Prime Minister and other ministers of cabinet rank as per Article 75.

Crucial Roles of the Cabinet Secretariat in Governance and Decision-Making

• The Cabinet Secretariat functions directly under the Prime Minister.
• Cabinet Secretary’s Key Roles: The administrative head of the Secretariat is the Cabinet Secretary who is also the ex-officio Chairman of the Civil Services Board the Indian Administrative Service (IAS) and head of all civil services under the Government’s rules of business.
• Mandate of the Cabinet Secretariat: Under the Government of India (Allocation of Business) Rules, 1961, the Cabinet Secretariat is tasked with providing secretarial assistance to the Cabinet and its Committees, as well as managing the Rules of Business.
  
• Role in Administering Government of India: The Cabinet Secretariat is responsible for the administration of the Government of India (Transaction of Business) Rules, 1961 and Government of India (Allocation of Business) Rules  facilitating smooth transaction of business in Ministries/ Departments.
• Coordination and Decision Making: The Secretariat aids governmental decision-making by fostering inter-ministerial coordination.
  • It resolves disparities among Ministries/Departments and fosters consensus through the utilization of standing/ad hoc committees of secretaries.
    
• Secretary Assistance: Cabinet Secretariat is the PMO which provides secretarial assistance to the Cabinet .
• Agenda Preparation and Record-Keeping: Preparation and circulation of the agenda and Circulation of the record of discussions after obtaining the approval of the Prime Minister.
• Monitoring the execution of decisions made by the Cabinet and its committees.
  
• Management of major crisis situations in the country.
• Approval for Senior-Level Appointments: All senior level appointments (including Cabinet Secretary) are done with the approval of the Appointments Committee of the Cabinet (headed by the Prime Minister).

Exploration of Wings and Units in India’s Cabinet Secretariat

• Civil Wing: Providing assistance to cabinet and cabinet committees.
• Military Wing: Providing assistance to the National Defence Council and other bodies dealing with defence.
• Intelligence Wing: Research and Analysis Wing (RAW), 1967 sits in Cabinet Secretariat.
• Directorate of public grievances
• Cabinet Secretary
• National Authority for Chemical Weapons Convention 
• Performance Management Division (Group): Manages Performance Management and Evaluation System (PMES)
• The Office of Principal Scientific Adviser was placed administratively under the Cabinet Secretariat in August, 2018.

Strategic Leadership of PMO and Cabinet Secretary in Indian Governance 

The Central Secretariat’s dual role in Shaping and Executing policies in India.

• The Government of India works on a split system i.e. policy making and policy implementation.
• Central Secretariat: At Central level
• State Secretariat: At State level
• Cabinet Secretariat is not a part of any ministry, so it is not part of the central secretariat. 
• Secretariat is a policy-making organ, whereas Directorate acts as implementing agency.
• Within the Central Secretariat, three services offer support and maintain the continuity of the governmental system in the Central Government Secretariat.

1. 1. Central Secretariat Service (CSS)
   2. Central Secretariat Stenographers Service(CSSS)
   3. Central Secretariat Clerical Service (CSCS)

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Functions of Central Secretariat: Policy Formulation, Administrative Support, and Legislative Functions.

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