(a) Transformation of the police State into the welfare State has been the greatest single factor in the growth of powers and functions of the State. Formerly, the State was mainly concerned with the maintenance of law and order and defence of the country against external aggression.
Now the State has become a service State. It has been assuming an increasingly important role in the economic life of the people. It exercises control over production and distribution. It maintains public utility services like railways, telegraph and telephone system.
It is adopting planning and entering directly in the economic sphere either by nationalizing trade and industry or developing the public sector. It undertakes to perform certain social services in the sphere of education, health, medical relief etc. In short, the State now-a-day exercises far greater control over the life of the people than in the past.
(b) Technological progress, growth of population and the growing complexity of life are some other factors which are responsible for the increase in the sphere of executive authority.
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(c) Finally, war and national emergencies, both political and economic, have contributed no less towards the increasing growth of its powers.
Need of Consultative and Advisory Bodies:
The functions of the State in the 20th century have increased so enormously and have become so technical and complex and for efficient handling demand so much of expert advice that it is no more possible for the State to depend exclusively upon its own administrative services. State is no more a self contained system as it was during the 19th century. It had to seek advice from outside and this led to the emergence of advisory bodies.
The administration must keep in contact with the scientific world which can be done through such committees. The general responsibility of the State, which the economic prosperity brings with it and the need of mutual understandings between the trade unions, industry and the government require setting up the consultative committees.
The social services that the State manages or controls undergo rapid changes and constant improvement and development. It is only through advisory committees that the department can keep in touch with such developments and can thereby maintain efficient services.
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In democracy, there is constant need for associating the people with the day-today processes of legislation and execution, if it is to respond to their needs. The various functional and vocational groups must be associated with the formation of policies and legislation concerning their respective interests. The consumers must be associated with the administration of social utility services. This can be possible only through such committees.
These bodies are very often set up by ministers when they want to follow a new policy. With persuasion, a committee may come to accept that policy and the urgency and need for it. This committee can then propagate that policy and thereby persuade a wider circle to accept it. Thus the task of the government and the minister becomes easier.
Sometimes, a minister may appoint a committee to have a shield to cover his decisions. He can present those decisions as those of the high committee.
In another ease, an advisory body consisting of non-officials and experts may be appointed with wide powers to administer where it is required to detach the administrative work from governmental machine.
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Public corporations or semi-independent bodies arc appointed in the working of which a minister normally docs not interfere but retains the general power of supervision and control. The University Grants Commission is an example.
Another reason for the growth of such committees particularly in the administrative sphere below the level of ministers was the democratization of public administration.
People have a direct share in the sphere of legislation through the election of Parliament but had no such share in the administration of laws. Administrative consultative bodies at lower levels help the people to share in the execution of laws and at the same time help the administrative officials to explain their policies to the people at large.
There is greater appreciation of officers’ viewpoint; at the same lime, he is more responsive to the needs of the people under his charge. Grievances can be easily and speedily got redressed. These committees arc formed over the whole range of governmental activity.
Functions and Nature of these Committees:
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These committees arc advisory. Even when a committee like the University Grants Commission with large powers of administration is appointed, the ministers retain the final powers of approval, supervision, direction and control. The responsibility is finally that of the departments and ministers; policies and decisions arc made by them for which they are answerable to Parliament through the Cabinet. These committees therefore cannot enjoy the power of decision.
These committees make recommendations, submit reports, carry on research and hold meetings and discussions. They develop liaison with other bodies. They may receive petitions from the people and ask for information from the departments. The effectiveness of a committee depends upon its initiative and strength and comprehensiveness of its members.
The publication of its reports evokes public opinion which no minister can ignore. They influence the policies of ministers widely- They proceed by discussion and compromise, by argument and agreement; they constitute a policy-making machinery for government at lower levels. They bring rationality to government policies.
Advantages:
The advantages of these advisory bodies are many, some of which are:
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1. They provide training to the people in the art of government.
2. They make the government responsive to the needs of the people.
3. They provide technical and expert opinion to the government.
4. The government can explain its policies to the interests affected and the public at large.
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5. The administrators remain alert and hence cannot become bureaucratic. They work under the constant and direct supervision of the people’s representatives.
6. The policies of government will be more practical. The representatives of the interests affected by legislation can point out to the lay minister the adverse effects or impracticability of execution of his policies and in the light of this advice he can make modifications. They introduce realism in State policies.
7. If there are many and diverse interests involved, compromises can be reached without public glare.
8. They provide a focus of attention. Though their recommendations and advice may be rejected, yet these can be rejected only by producing counter-arguments. Their reports are discussed in public and may be taken up by the Opposition in Parliament, where the government has to justify its conduct. Public attention gets focused on the issue and may lead to an agitation.