BCS's evolution, challenges and lessons during past 45 years

The present structure of Bangladesh's civil service did not emerge overnight. It is the product of a long historical evolution, with each chapter leaving its imprint on today's administrative system. In its current form, the Bangladesh Civil Service (BCS) marks its 45th anniversary this year. To fully understand the BCS, one must revisit the governance traditions of pre-colonial Bengal, the colonial legacy of British rule, the Pakistan era, and finally, the administrative evolution of independent Bangladesh.

 

 

Under the Government of India Act of 1858, the 'Civil Service of India' was formally envisaged for British India. In its wake, the Civil Service Act and the Police Act were enacted in 1861, followed by the Forest Act of 1865 and the creation or amendment of separate rules and statutes for specialized services such as engineering, railways and the medical service. These officers were formally described as the "Covenanted Servants of the Crown in India," though in practice they were more commonly known by the names of their services - for example, the Indian Civil Service (ICS) or the Indian Medical Service (IMS). Alongside the superior Covenanted services, Statutory and Uncovenanted services also existed.

 

 

In its 1886-87 report, the Atchison Public Service Commission recommended reorganizing the covenanted services, then divided among the three presidencies into All-India services. It also proposed that these be designated as "Imperial Services," encompassing professional and technical arms such as the civil, police, political, forest, and engineering services. The commission advised converting the uncovenanted services into provincial services. while the statutory services were subsequently abolished.

 

 

Under the Montagu-Chelmsford reforms of 1919, the "Imperial Services" were restructured into two categories. An "All-India Service" was created, encompassing nine services including the civil, police, education and agriculture services, while a separate "Central Service" was formed for departments such as audit and accounts, customs, political and railways,etc. From 1922, civil service examination centers were established in India alongside those in Britain. Following the enactment of the Government of India Act of 1935, the new law limited All-India Service status to the civil, police and medical services, transferring responsibility for the remaining services to provincial governments to give effect to the new law.

 

 

It is worth noting that during the colonial era army and naval officers held a significant presence within the civil service. Compared with the civil service established in metropole Britain at the time, it is clear that the civil service in colonial India was primarily created to uphold imperial authority and exploitation-a legacy that later influenced the Pakistani administrative system as well.

 

 

After the 1947 Partition the administrative structures of the British period remained largely unchanged. Until 1971 the central government of Pakistan organized its services into two broad categories. The All-Pakistan Services included the Civil Service and the Police Service, while the Central Superior Services comprised the Foreign Service, the Audit and Accounts Service, the Information Service and some ten other branches. Political scientists and public-administration experts observe that under Ayub Khan - operating under the façade of "Basic Democracy" - the Civil Service acquired an unusual and concentrated capacity for control, a reach that was greater than anything seen even during the colonial era.

 

 

After independence in 1971 Bangladesh faced two immediate imperatives: to preserve administrative continuity in order to run a war-ravaged country, and to rebuild institutions in accordance with new ideals that placed the public interest first. Almost at once, in 1972 the Civil Administration Restoration Committee (CARC) and the Administrative and Service Re-organization Committee (ASRC) were formed; these were followed in 1976-77 by the Pay and Services Commission (P&SC).

 

 

Based on the partial implementation of these commissions' recommendations, changes were introduced to the colonial service structure. Initially, on 23 August 1979, the government established the Senior Service Pool (SSP) to manage policy, planning, development, and coordination at the ministerial level. The following year, to ensure effective field-level policy implementation, the government reorganized the pre-independence All, Central, and Provincial Services on 1 September 1980, announcing the formation of a unified civil service comprising 14 cadres, which included 14 sub-cadres. At the same time, to avoid confusion with the broader civil service, it was decided to use the term "Administrative" instead of "Civil."

 

 

On this matter, then-President Ziaur Rahman remarked, "Past attempts in the subcontinent to introduce a new service structure while rejecting the colonial bureaucracy met with only limited success. Yet it was in Bangladesh that, for the first time, far-reaching administrative reforms were implemented without granting any special privileges to a particular service - an achievement that is unique even within the subcontinent, and possibly among Commonwealth countries as well."

 

However, when military rule began in Bangladesh in the 1980s, it was not possible to fully sustain this historic reform. Eventually, in 1989, the government abolished the SSP system. Over time, through successive phases of administrative reforms, the BCS gradually evolved into its present structure. As of 2018, it comprises a total of 26 cadres, divided into three categories: general, technical, and professional.

 

 

This system was designed to manage government functions at both the ministerial and field levels. However, several significant challenges are evident. First, the imbalance within the cadre system often affects overall administration, at times hindering merit and fostering an unhealthy competition among officers of different professional cadres. Second, reforms are frequently stalled due to political interests and pressure from vested groups. Although more than twenty commissions and committees have been formed in Bangladesh over the years with recommendations for civil service reform, their implementation has been minimal.

 

 

The evolution of Bangladesh's civil service is a story of adaptation. It encompasses ancient traditions, colonial legacies, post-independence administrative restructuring, and efforts to enhance democratic and professional standards. As the BCS marks its 45th anniversary, it is time to reflect on what is needed to ensure an effective and contemporary civil service.

 

 

Sustainable reform requires clear policies, independent oversight, and a steadfast focus on merit and public welfare rather than narrow vested interests. The latest Public Administration Reform Commission-2025, established by the current government, has put forward several concrete and highly promising recommendations. If these recommendations are implemented, it can be expected that BCS will move forward with even greater effectiveness.

 

 

Historical experience shows that excessive concentration of power runs counter to good governance and efficiency in the long run. Therefore, by ensuring professionalism, participation, and accountability, the civil service can become an effective instrument of national development. Future progress will depend not on ignoring history, but on drawing lessons from the past to build institutions that are transparent, competent, and just.

The writer is a BCS Officer