Citizen’s Charter

Citizen’s Charter is one of the most practical instruments of good governance, because it directly connects citizens with service delivery. If governance is about outcomes, then the Citizen’s Charter is about promised outcomes.

Let us understand this concept:

What is a Citizen’s Charter?

According to the Second Administrative Reforms Commission (2nd ARC), a Citizen’s Charter is:

A public statement that defines the entitlements of citizens to a specific service, the standards of that service, the conditions to be met by users, and the remedies available in case the standards are not met.

In simple terms

A Citizen’s Charter tells the citizen:

• What service will be provided
• Within what time
• At what standard
• What to do if the government fails

👉 The core idea is citizen empowerment.

Traditionally, public services were supply-driven (government decided what to give).
Citizen’s Charter makes them demand-driven (citizens demand committed standards).

Origin and Concept of Citizen’s Charter

The concept originated in the United Kingdom.

• Introduced in 1991 by the Conservative Government led by John Major
• Objective: Empower citizens in public service delivery

Six Original Principles (1991)

1. Quality – Improve service quality
2. Choice – Where feasible
3. Standards – Clearly specify expectations and remedies
4. Value for Money – Respect taxpayer money
5. Accountability – Of individuals and organisations
6. Transparency – Clear rules, procedures, and grievance mechanisms

Re-launch as “Services First” (1998)

In 1998, the Labour Government under Tony Blair re-launched the programme as “Services First”.

It expanded the framework into nine principles of service delivery:

1. Set service standards
2. Be open and provide full information
3. Consult and involve citizens
4. Encourage access and choice
5. Treat all fairly
6. Correct mistakes when they occur
7. Use resources effectively
8. Innovate and improve
9. Work with other service providers

👉 The focus shifted from rules to results, and from departments to citizens.

Significance of Citizen’s Charter

Citizen’s Charters are important because they:

• Make public institutions transparent and accountable
• Act as a tool against corruption
• Improve service delivery standards
• Make government responsive
• Enhance people’s participation and trust in governance

👉 In governance terms, Citizen’s Charter converts rights into expectations and expectations into accountability.

Citizen’s Charter in India

In India, Citizen’s Charter is coordinated by the Department of Administrative Reforms and Public Grievances (DARPG) under the Ministry of Personnel, Public Grievances and Pensions.

DARPG:

• Issues guidelines
• Assists implementation
• Evaluates effectiveness of Charters

DARPG Guidelines for Effective Citizen’s Charters

For a Charter to be meaningful, DARPG laid down clear principles:

1. Simplicity – Easy to understand and user-friendly
2. Participatory Drafting – Involvement of:
   • Implementing staff
   • Users and stakeholders
3. Beyond Declaration – Training and sensitisation are essential
4. Clear Service Statement – What service is being offered
5. Defined Entitlements & Remedies – Time limits and grievance options
6. Public Disclosure – Online portals, display boards, booklets
7. Moral Commitment – Though non-justiciable, it is a promise
8. Feedback & Review Mechanism – At least once every six months
9. Service-Specific Charters – Separate Charters for distinct services

Who is a ‘Citizen’ in a Citizen’s Charter?

The term citizen is used in a broad sense. It includes:
→ Citizens
→ Customers and beneficiaries
→ Clients and users
→ Other Ministries and Departments
→ State Governments and UT Administrations

👉 Thus, a Citizen’s Charter is about all stakeholders, not just individuals.

Issues with Citizen’s Charters in India

Despite good intentions, Citizen’s Charters in India suffer from several weaknesses:

Structural and Legal Issues

• No legal backing
• Non-justiciable nature

Design and Implementation Issues

• Poor content and vague standards
• Lack of consultation with end-users and NGOs
• Service providers unaware of Charter philosophy

Awareness and Capacity Issues

• Low public awareness
• Resistance to change from vested interests
• Poor training and sensitisation

Monitoring Issues

• Weak review and updation mechanisms
• Lack of accountability for default

Inclusiveness Issues

• Needs of senior citizens and differently-abled ignored
• Charters not available in vernacular languages
• Absence of grievance officer details

👉 As a result, many Charters exist only on paper.

Recommendations of the 2nd ARC

To make Citizen’s Charters effective tools of governance, the 2nd ARC made comprehensive recommendations:

1. Internal Reforms First

• Reform internal systems before announcing Charters
• Align processes with promised standards

2. Decentralised Approach

• No “one-size-fits-all” model
• Local-level customization within broad guidelines

3. Wide Consultation

• Extensive internal consultation
• Meaningful engagement with civil society

4. Strong Redressal Mechanism

• Clearly defined compensation or relief for default
• Access to grievance redressal forums

5. Periodic Evaluation

• Preferably through independent external agencies

6. End-User Feedback & Benchmarking

• Continuous monitoring after implementation
• Use citizen feedback to assess outcomes

7. Fix Accountability

• Identify responsible officers
• Enforce consequences for non-compliance