Questionnaire*
Reform of Public Sector Undertakings (PSUs) in India Today: A Study based on a Survey of Top and Middle Level PSU Managers
for middle and top level managers of PSUs in India The study is being carried out by Profs. Sebastian Morris and SK Barua of the Indian Institute of Management, Ahmedabad and is supported by the Shastri Indo-Canadian Institute, New Delhi
Please do read the instructions carefully and after filling in the schedule kindly use the enclosed envelope to mail to
Prof. Sebastian Morris Indian Institute of Management, Ahmedabad Vastrapur AHMEDABAD 380015 079-6306896 (FAX) 079-6307241 (PBX) 079-6306380 (D) 079-6308093 (R) email: morris@iimahd.ernet.in
*website of IIMA's SOE REFORM STUDY http://www.iimahd.ernet.in/psuindia You may download this schedule from http://www.iimahd.ernet.in/psuindia/shastri/survey/questionnaire.pdf in PDF form
INDIAN INSTITUTE OF MANAGEMENT, AHMEDABAD
SURVEY OF PSU MANAGERS, Dec.2000
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Dear Manager, Since the 'liberalisation' of the economy, the environment of PSUs has undergone substantial change. Given the stated objectives of government to divest and privatise, entry of private firms into markets earlier reserved for public sector, many PSUs would have responded to these changes in some manner. Currently the government is pursuing disinvestment, which is driven more by budgetary considerations. It is not yet clear as to how strong have been the intention of the government to improve the task orientation performance of PSUs through increased autonomy to the managers. This is a study focussed on managers of PSUs, with a view to understand how you have understood, and interpreted the changes. We are concerned with your views, feelings and opinions, however different they may be from conventional wisdom or from those of your organisation or government. The study is motivated by the belief that true change can occur when a core group of top and middle level managers internalise a particular form of change and push it through. Such change would of course presume that managers have the autonomy or the space to push through the changes. Similarly, the policy and the external environment, especially the relationship with government is vital in the pursuit of change. Managers' views and diagnoses as regards the public sector situation and the remedies have not yet been a focus of serious analyses. As a result, little is known about this aspect in a formal and statistically reliable manner. As academics in the field of management we do think that your views and opinions are most important in the construction of an overall strategy of reform and change. Many PSU managers have contended that the liberalisation has meant an increasingly challenging environment, with the constraints nevertheless continuing. Others may have had an increasingly hostile environment. Still others may possibly have been able to take advantage of the situation, to bring about considerable improvement in performance and task orientation. Still others may have found favorable environments for autonomy and task orientation. We would expect the manager to respond frankly and freely (there are no right answers and we are interested in your impressions and assessment). Your response would be kept completely confidential. It would be used only for academic purposes, and never in way that reveals either the identity of the company or the individual. The survey is planned to cover a fairly large number of managers and board members in PSUs, and we hope that the analysis would be useful to the government and policy makers in their design of programs for change including privatisation and disinvestment. The analyses and findings would also be useful in our research and training. (The IIMA plans to launch a major effort in developing executive programs for top managers of PSUs and this specific study would be most useful) As you would realise, the schedule of questions and issues that we have raised in the survey would require about half to three-quarters of your time. We are concerned about this aspect of the survey and have gone ahead with a rather detailed schedule, so that we can understand your responses holistically. Your cooperation is the key to the success of the study, and we thank you in advance for your response.
We promise to make available the findings of this study as soon as we are ready. The study has the formal approval of the government of India, and is being sponsored by the Indo-Shastri Canadian Institute. The project team consists of S. K. Barua, and Sebastian Morris (coordinator). We have set up a website, which ought to evolve a resource for the concerned with the reforms of SOEs. Please do visit the site: http://www.iimahd.ernet.in/psuindia We will be putting the principal tabulations on this site for your convenience. We would be obliged for your comments. Our deepest thanks for taking time off to respond to this schedule. Sebastian Morris SK Barua
INDIAN INSTITUTE OF MANAGEMENT, AHMEDABAD
SURVEY OF PSU MANAGERS, Dec.2000
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Reform of PSUs in India Today: A Study based on a Survey of Top and Middle Level PSU Managers
(QUESTIONNAIRE)
1. 2. 3. 5. 6. 7. Your name Organisation where you work presently Years of work in the present organisation Description of present position (b)
CEO
4. Description of present position (a)
board member/ director
Line
Staff
other
top management
middle management
How many years have you been in your current position? Functional experience in middle management levels and above. Based on your own assessment and past experience, in which of the following areas would you have had adequate experience ? (You may encircle /tick more than one option if you think you have diverse experience).
General management Finance /audit /acounting R&D /design and development Production /engineering Commercial /marketing and advertising Law /company secretaryship HRD /personnel /labour management
any other
Purchase /vendor development
Computers /MIS /
8.
Your background. Please feel free to encircle/ tick as many of the items below as apply to you.
graduate/ post graduate in Engg. doctoral degree in Engg. /Science other doctoral degree belonged at one time to the IAS /Central services cadre have other technical /professional degree
any other aspect? (Please write)
belonged at one time to the Indian Management Pool
continue to be part of IAS /central services cadre worked in three or more organisations
management /MBA degree
Chartered Accountant degree /ICWA etc worked only in the PSUs
have significant experience in the private sector
have significant experience of working in government
any other aspect? (Please write)
INDIAN INSTITUTE OF MANAGEMENT, AHMEDABAD
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Please read all the options under a topic and then tick in the appropriate column to reflect your view/opinion/feeling. You may avoid answering some of the options only if you have absolutely no familiarity with the underlying issue.
Objectives "Objectives" of an enterprise go far beyond those that are actually stated, many may not be truly intended and the "top management" could deviate from them with time. How important are the following objectives in actual practice (as you have inferred or sensed)? (Tick any of the options from very important to Not at all) In what manner have the following objectives changed over the nineties: Has the importance attached to each of the following increased (+), remained unchanged (0) or decreased (-)? (Please use the last column marking +, 0, or - as your response may be).
Very Quite A little Hardly Notat all +/0/-
1. Financial performance 2. Achieving dominant position through higher market share 3. Being in the forefront of technology 4. Maximizing shareholders' value 5. Providing employment 6. Serving the needs o the governing political masters 7. Serving the needs of the governing beaurocracy 8. Serving the neds of the top management
Functioning of the board We would like to have your impressions about the working of the board of PSUs. It is not necessary that you should have been part of the board of any PSU at any point of time. Rather, your impressions and feelings are important. How do you feel about the following statements? (Tick any of the options from strongly agree to strongly disagree)
Strongly Agree Agree Neither Disagree Strongly disagree
1. The boards of PSUs have little independence. 2. The government nominees on the board, in a situation of conflict between the government and the company, would typically go against the interests of the company on many occasions undermine. 3. Appointment of independent external directors has served a very useful purpose. 4. The nominees of financial institutions and joint venture partners play a positive role, which is in the interest of the company. 5. The board is only a mask and the real power lies elsewhere with the concerned ministry.
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The PSU as "State" Some observers have argued that entities with major government ownership being treated as "State" constitutes a major drag on the performance of PSUs. (Tick any of the options from strongly agree to strongly disagree)
Strongly Agree Agree Neither Disagree Strongly Disagree
1. Although courts have ruled PSUs to be state, there is scope for commercial orientation within this constraint 2. The status of state constrains PSUs in the settlement of labour related disputes in relation to similarly placed large private corporations 3. Observers contend that disinvestment below 50% will free the PSU of this constraint and would bring autonomy in decision making. Do you agree?
The Bureau of Public Enterprise(BPE) / Dept of Public Enterprise(DPE) Your impressions about the influence of BPE/DPE on the working of PSUs. It is not necessary that you should have personally dealt with BPE/DPE at any point of time. But impressions and feelings are important. (Tick any of the options from strongly agree to strongly disagree)
Strongly Agree Agree Neither Disagree Strongly Disagree
1. While the BPE/DPE has no authority, its involvement in a staff capacity in activities like project clearance and the MoUs result in delays in decision making. 2. Cash rich and large PSUs, PSUs with greater bargaining power or with a powerful CEO were never constrained by the BPE guidelines. 3. There is no justification for BPE's role in an advisory or policy-making capacity, now that most large PSUs have large boards with external directors
Vigilance Your impressions about the vigilance inquiries faced by managers in the PSUs. How do you react to the following statements? (Tick any of the options from strongly agree to strongly disagree)
Strongly Agree Agree Neither Disagree Strongly Disagree
1. A vigilance inquiry adversely affects a manager's self esteem even when he/she is not corrupt. 2. Vigilance inquiries on managers are part of the routine, and it need not affect careers of managers if they have not deliberately made a mistake. 3. Vigilance inquiries are sometimes politically motivated to punish particular manager. and could derail the careers of bright managers. INDIAN INSTITUTE OF MANAGEMENT, AHMEDABAD SURVEY OF PSU MANAGERS, December 2000
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4. Fear of vigilance increases risk-avoiding behaviour of managers. 5. Many PSU managers use vigilance as an excuse for their own lack of initiative and dynamism. 6. Most vigilance inquiries have proven to be correct expost, in the sense that the concerned managers were corrupt or had gained personally. 7. Most vigilance inquiries look into situations of oversight or neglect of rules and procedures rather than intention to defraud or gain personally. 8. Many vigilance inquiries are pointless in the sense that many managerial decisions could result in superficial loss, which the vigilance may fail to understand. 9. Vigilance has rarely uncovered any important case of fraud and corruption by powerful managers and civil servants. 10. Fear of vigilance in restricting managerial performance has declined in the 90s 11. Politically motivated vigilance inquiries have declined in the 90s 12. The number of vigilance cases has increased in the 90s The Auditor and the PSU Your impressions about the appraisal of companies by the Auditor. How do you feel about the following? (Tick any of the options from strongly agree to strongly disagree)
Strongly Agree Agree Neither Disagree Strongly Disagree
1. Statutory Audit (SA) exists only to appraise the PSU's performance. 2. SA is the only way by which moral hazard in PSUs can be overcome. 3. SA has been able to prevent corruption in PSUs. 4. SA is entirely ex-post hoc, so it is not useful to management in decision making. 5. In many PSUs there is a supra-CEO authority in the Statutory Auditor. 6. Audit queries lead to risk-avoiding behaviour of managers. 7. 'Audit constraint' does not exist for the truly dynamic managers who can always work around audit with appropriate explanations. 8. The fear of audit has declined in the 90s
INDIAN INSTITUTE OF MANAGEMENT, AHMEDABAD
SURVEY OF PSU MANAGERS, December 2000
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The Concerned Administrative Ministry Your impressions about the influence of the concerned ministries on PSUs. It is not necessary that you should have been personally interacting with the ministry officials. Rather your feelings about them are important. How do you feel about the following: (Tick any of the options from strongly agree to strongly disagree)
Strongly Agree Agree Neither Disagree Strongly Disagree
1. Administrative ministries wield much power over PSUs. 2. Administrative ministries are generally staffed with people who do not have the requisite skills or experience to deal with PSUs. 3. The administrative ministry also interferes in administrative and operational decisions, employment rules, labour relations. 4. The concerned ministry interferes much more today in the working of the PSUs than what it did in yesteryears 5. The ministry's involvement in PSUs has become far more functional and restrained in the nineties
The PSU and Parliament Questions about the working of PSUs are often raised in the Parliament. How would you react to the following statements? (Tick any of the options from strongly agree to strongly disagree)
Strongly Agree Agree Neither Disagree Strongly Disagree
1. Parliament is truly concerned with the functioning and efficiency of the PSUs 2. Top management has to devote considerable time and resources trying to provide answers for the frequent questions raised by the parliament. 3. The administrative ministry/holding company usually answers all questions on behalf of the PSU. 4. Many of the questions raised by Parliament are part of routine and call for information, which is anyway publicly available/or made available with little effort. 5. With proper information gathering and retrieval systems, as well as Management Information Systems (MIS), parliamentary questions should not take up much time. 6. Without the pressure of parliamentary questions, many PSUs would drift away from their social goals. 7. Parliamentary questions do not directly affect the managers, so they don't have to worry about them. 8. Parliament is today unduly worried about privatisation rather the worrying about performance improvement. 9. The fear of Parliament questions can be used by managers, to thwart dysfunctional interference by politicians and civil servants. INDIAN INSTITUTE OF MANAGEMENT, AHMEDABAD
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CEOs of PSUs The question of what type of CEOs have been able to deliver thus far in the Indian public sector system remains little known and is controversial. How would you respond to the following statements? (Tick any of the options from strongly agree to strongly disagree)
Strongly Agree Agree Neither Disagree Strongly Disagree
1. CEOs have to be very politically savvy to be able to manage civil servants ,politicians and board members 2. CEOs have a great deal of responsibility without having the requisite power to deliver 3. The task of PSU CEOs is typically more challenging than that of similarly placed private sector CEO 4. The power the CEO commands vis-à-vis the government depends a great deal on the performance of his/her company. 5. The power the CEO commands vis-à-vis the government depends a great deal on the size of his/her company. 6. Managing the external boundary of the organisation (esp. with the Administrative Ministry) becomes the chief task ot the CEO Privatisation There is a lot of debate amongst policy makers, managers, government on the advantages and disadvantages of privatisation. How do you feel about the process of privatisation? (Tick any of the options from strongly agree to strongly disagree)
Strongly Agree Agree Neither Disagree Strongly Disagree
1. Privatisation will result in efficient and effective use of resources 2. Proposal of divestment is meant only for increasing the revenue of the government and not for any serious operational improvements 3. MoUs or contract plans could have worked well had government given the PSU the required autonomy 4. Government will never really give the PSUs requisite autonomy 5. Privatisation is the only option which will result in greater autonomy and responsibility at all levels 6. But it might take away job security 7. Work culture will change drastically with Privatisation 8. PSU are inefficient because they are starved of resources. Instead of Privatisation availability of more funds will increase their efficiency 9. Social objectives of the PSUs will be ignored 10. Prices of goods and services provided by PSUs will increase with privatisation. 11. Monitoring by shareholders will be more effective with Privatisation. 12. The existing monitoring system is adequate enough INDIAN INSTITUTE OF MANAGEMENT, AHMEDABAD
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although it sometimes leads to delays. 13. PSUs are not particularly slow in decision-making and also implementation compared to leading large private corporations. 14. Involvement of external consultants (to benchmark functioning of the PSUs and to determine strategies) will be more effective than any change in ownership 15. It is important that the correct mode of Privatisation be pursued for it to lead to better performance 16. Without Privatisation PSUs will not be able to respond to the challenges of Globalisation.
Sources of Constraints Today Since the many changes in policy and environment in the nineties, the constraints to good performance and growth could possibly have changed. What are the constraints today? How significant are the following in constraining PSUs today? (Tick any of the options from very important to not at all important). A relaxation or loosening of the constraint over the nineties we would call improvement (+). No change (0), and a tightening of the constraint (-). Please respond in the last column bringing out the change in the constraint over the last few years. (Please write in the last column +, 0 or -)
Very imp. const. Quite imp. const. somew hat imp. Hardly Not at all a const. +/0/-
1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19.
Internal procedures and processes Procedures insisted upon by Government Interface with the bureaucracy Interface with the administrative ministry Politicians and powerful civil servants Vigilance Statutory Audit Parliament (Committees and Questions) Legal status of PSUs being "State" Labour inflexibility Quality of management Lack of resources to modernise Lack of resources in general Continuing price controls Corruption within the organisation Govt policies /controls Inability to retain highly skilled managers and technicians Any other? (Please mention if selected) Any other? (Please mention if selected)
If you were forced to pick the two most important constraints that effects most PSUs today then what First: Second: would those be? (Please enter serial no from the previous question) INDIAN INSTITUTE OF MANAGEMENT, AHMEDABAD SURVEY OF PSU MANAGERS, December 2000 9
INDIAN INSTITUTE OF MANAGEMENT, AHMEDABAD
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Dimensions of Autonomy Rate the folllowing aspect /dimensions of decision making in terms of the autonomy that managers of PSUs actually have today. (Please tick selecting from a great deal to nothing at all). Also indicate whether on that aspect there has been an improvement (+), no change (0), or a deterioration, over the nineties, in the autonomy that managers have over that particular aspect. (Please use the last column to enter +, 0 or -).
a great deal much some autono my hardly any nothing at all +/0/-
1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18.
Recruitment of managerial staff Recruitment at senior top management levels Labour administration in general Performance incentives for labour Performance incentives for management Pricing Financing in general Raising capital from the market Technology and equipment choice Joint ventures and tie-ups Investments and projects Locational choice of projects Contracts and purchase Managerial remuneration Workers remuneration Diversification, expansion Disinvestment decision Any other? (Please mention)
N. A.
Ownership Structure and Management Control What in your view is the desirable ownership structure in general after reform? (Please encircle /tick at best two options)
majority with govt; with little disinvestment majority with govt; with sign. ownership by other parastatals of govt. and FIs bare majority with govt; with the rest largely disbursed among small shareholders very little govt holding; and rest generally disbursed bare majority with govt; with the rest largely held by a private partner
large minority govt holding with sign. holding by private groups
large minority with govt; with much of the rest disbursed among small shareholders
very little govt holding but rest with single /few large private parties
INDIAN INSTITUTE OF MANAGEMENT, AHMEDABAD
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In a situation where the majority of PSUs are privatised, in your view it would be desirable (in most cases) to (choose from the options below any one):
retain govt majority retain dominant holding of govt so that govt has veto power govt holding such that it would necessarily have to share power control with other groups govt holding small so that it has given up nearly all control
Please choose one of yes, no or can't say to the questions /statements below: (Please chose can't say only if you really cannot chose either of yes or no) Non govt. shareholding in PSUs after disinvestment should be sufficiently dispersed /held by FIs /workers such that the threat of management takeover is minimised. Do you agree? Shares at discounted prices should be sold to workers and employees to create a positive interest among them towards privatisation A golden share for government would become necessary in many cases A golden share for government would arise only in a rare situation Multinationals must be kept out from the disinvestment process Multinationals must not be allowed to control PSUs after they are privatised While MNCs should be allowed to participate in disinvestment, but a 'handicap' should be provided for domestic buyers There should be no restriction on MNCs buying up stock of privatising PSUs The surpluses from divestment of profitable PSUs should be used to pay off employees in other firms for which only asset sales are possible In disinvestment, the entire portfolio of PSUs should be considered, so that the value realised for the portfolio as a whole is maximised In many sectors lack of regulatory institutions and policy (especially with regard to competition) stand in the way significant disinvestment Profitability and current cash flows should be the principal basis in valuation for offloading the shares Capital market valuations of the stock should be an important guide in pricing of shares offered for sale INDIAN INSTITUTE OF MANAGEMENT, AHMEDABAD
yes no can't say
yes
no
can't say
yes yes yes yes yes
no no no no no
can't say can't say can't say can't say can't say
yes yes
no no
can't say can't say
yes
no
can't say
yes
no
can't say
yes
no
can't say
yes
no
can't say
SURVEY OF PSU MANAGERS, December 2000
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Govt should go ahead with disinvestment without waiting for a clear cut and acceptable policy for labour especially as regards retrenchment No serious restructuring is possible without a clear cut retrenchment policy that has the acceptance of unions For significant and transparent privitisation it would be necessary to set up a constitutional and expert authority Government has to keep itself off from the operational aspects of privaisation, once it defines the strategy and policy Privatisation in India would only progress in fits and starts Today there is a consensus among the elite for privatisation Privatisation in India has little chance of taking place in a transparent and corruption free manner Your own statement on disinvestment (1) Please write Your own statement on disinvestment (2) Please write Your own statement on disinvestment (3) Please write
yes
no
can't say
yes
no
can't say
yes
no
can't say
yes
no
can't say
yes yes yes
no no no
can't say can't say can't say
yes yes yes
no no no
can't say can't say can't say
Groups /forces for disinvestment or privatisation From which quarters /factors do the pressures for disinvestment and privatisation arise? Please rate the following factors /quarters: (Please tick choosing from predominantly from to never from against each group of force).
predomina ntly from very much from in some manner from hardly from never from
Workers and unions Junior managers Supervisors White collar workers All empoyees Administractive Ministry Politicians and senior civil servants Top management Middle level management Dependent businesses like subcontractors, dealers etc Mass media Foreign Financial Institutions Multilateral Agencies INDIAN INSTITUTE OF MANAGEMENT, AHMEDABAD
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Finance Ministry Declining budgetary resources Low internal generation of resources
Groups /forces acting against disinvestment /privatisation From which quarters /factors do the pressures against disinvestment and privatisation arise? Please rate the following factors /quarters: (Please tick choosing from predominantly from to never from against each group of force).
predomina ntly from very much from in some manner from hardly from never from
Workers and unions Junior managers Supervisors White collar workers All empoyees Administractive Ministry Politicians and senior civil servants Top management Middle level management Dependent businesses like subcontractors, dealers etc Mass media Foreign Financial Institutions Multilateral Agencies Finance Ministry Declining budgetary resources Low internal generation of resources
We would like to have your response to the following questions/ statements which finally confirm and summarise your views.
(a) There is no need for privatisation of most PSUs (b) Reform and restructuring by giving more autonomy to PSUs is politically, legally and administratively possible (c)Labour retrenchment is the in the reform of PSUs most important
agree agree
disagree disagree
one of the many
not significant
problem/s
(d) Significant privatisation would require a special constitutional body to be set up
agree
disagree
can't say
INDIAN INSTITUTE OF MANAGEMENT, AHMEDABAD
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(e )Govt in all likelihood would
most certainly to a large extent to some extent marginally not at all pursue a privatisation that is in the national interest yes no
(f) Would you like to receive a copies of the studies based on this survey ? (g)Any other comments / statements thay you would like to make?
Thanking you
Professor Sebastian Morris Professor SK Barua Indian Institute of Management Ahmedabad
INDIAN INSTITUTE OF MANAGEMENT, AHMEDABAD
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Indian Institute of Management, Ahmedabad (IIMA) was set up by the Government of India in collaboration with the Government of Gujarat and Indian Industry as an autonomous institution in 1961. The Institute provides education, training, consulting and research facilities in management. The major programmes conducted by the Institute are as follows: Two-Year Post-Graduate Programme in Management (equivalent to MBA) Fellow Programme in Management (equivalent to Ph.D.) Management Development Programmes (MDPs) for industry, business, agriculture and rural sectors, and public systems covering health, education, transport and population. In the last 36 years, over 30,000 persons have participated in these MDPs Faculty Development Programme for teachers in universities and colleges
Disciplinary Areas : Business Policy, Communications, Economics, Finance and Accounting,
Marketing, Organizational Behaviour, Personnel and Industrial Relations, Production and Quantitative Methods
Interdisciplinary Centres and Groups : Centre for Management of Agriculture, Centre for
Regional Management Studies, Computer and Information Systems Group, International Management Group, Public Systems Group, Ravi Mathai Centre for Educational Innovation
Shastri Indo-Canadian Institute The Shastri Indo-Canadian Institute (SICI) is a unique educational enterprise that promotes understanding between India and Canada, mainly through facilitating academic activities. The Institute funds research, links institutions in the two countries, and organizes seminars and conferences. It is named after Lal Bahadur Shastri, the Prime Minister of India from 1964 to 1966 and a distinguished mediator and statesman. Founded in 1968 with a grant from the Indian government, the Institute began by encouraging Canadian teaching and research on India. Focussing on the humanities and the social sciences, it funded fellowships and distributed books and journals to the libraries of its Canadian member institutions. The Institute's success in sparking interest in India studies among Canadian academics led to a greater interest in Canada among Indian scholars. In the early 1980s, SICI began to promote Canadian studies in India and, in the late 1980s, it expanded its activities into development studies. Shastri membership has expanded from four to twenty-one Canadian universities and the Canadian Museum of Civilization; its scope has expanded as well to include law, management, education, and the arts. Recognizing the importance of reaching a broader public, the Institute has launched summer programmes for Canadians in India, binational conferences, a project for microfilming historical and cultural documents in India, and a programme that sends distinguished speakers to both countries and more recently an International youth Internship programme as well as programme which brings members of the media from India to Canada and from Canada to India.
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