CENTRAL SECRETARIAT

MANUAL

OF

OFFICE PROCEDURE

FOURTEENTH EDITION

MINISTRY OF PERSONNEL, PUBLIC GRIEVANCES AND PENSIONS

DEPARTMENT OF ADMINISTRATVE REFORMS AND PUBLIC
GRIEVANCES

MAY 2015

(website: www.darpg.nic.in)
 IMPORTANT WEBSITES

1.President Secretariat : www.rashtrapatisachivalaya.gov.in

2.Prime Minister‟s Office : www.pmindia.gov.in

3.Cabinet Secretariat : www.cabsec.nic.in

4.Department of Administrative Reforms & Public Grievances : www.darpg.nic.in

5.Ministry of Personnel, Public Grievances & Pensions : www.persmin.nic.in

6.Ministry of Finance : www.finmin.nic.in

7.Ministry of Home Affairs : www.mha.nic.in

8.National Informatics Centre : www.nic.in

9.National Archives of India : www.nai.nic.in

s1o ~ ffi6 Dr. JITENDRA SINGH
~ lP.ft (~ "Q1ffi) Minister of State (Independent Charge),
\reX ~ ~ fctq;rn ~­ Ministry of Development of North Eastern Region,
~ lP.ft. "QUA lP.ft ~- Minister of State, Prime Mmister's Office,
q;rflfq;_ 'ffiq; ~ ~ q~ ~­ Ministry of Personnel, Public Grievances and Pensions,
~ "i3i\ili f<Nrr om 3lofter fcrlwr. Department of Atomic Energy and Department of Space,
'l1ffil ~ Government of India

MESSAGE

I am immensely please d to note that the Department of

Administrative Reforms & Public Grievances is bringing out the 14th
Edition of the Central Secretariat Manual of Office Procedure
(CSMOP). One of the important agenda of the Government is
"Minimum Government & Maximum Governance". The revised
edition of the CSMOP has bee n prepared with that endeavour in
mind. The provisions of the revised CSMOP instills a greater sense of
responsiveness. accountability, transparency and public service
excellence in the current syste m of governance and also fulfill the
need for further simplifying the government procedures and
processes.

I am sure that the Manua l would be of help to all who serve in

the Central Secretariat to increase their efficiency & effectiveness
and remove a lot of red tape, for which we are charged. I am sure
that the Manual will form the backbone of process management in
our offices and make office w o rk speedier and rewarding for all the
stakeholders.

(Dr. ~l:':ingh)
MBBS (Stanley. Chennai)
Medicine. Fellowship (AIIMS. NDL)
MNAMS Diabetes & Endocrinology

Vigyan Bhavan Annexe, South Block, New Delhi- II 00 II

Maul ana Azad Road, New Delhi- II 00 II Tel. : 011-23010191 Fax: 011 -23017931
Tel. : 011-23022400, 2302240 I, North l3lock, New Delhi-11000 I
Fax : 011-23062754 Tel. : 011-23092475 Fax: 011-23092716
 FOREWORD

The Department of Administrative Reforms & Public Grievances (DAR&PG) in

the Ministry of Personnel, Public Grievances & Pensions, as nodal Government
agency, is charged with the responsibility of prescribing procedures for secretariat
work. The existing Central Secretariat Manual of Office Procedure (CSMOP) is bulky
and as such often remains unread. The DAR&PG has reviewed the 13th Edition of
the CSMOP, which was brought in October, 2010 and revised it in consultation with
all the Central Ministries/Departments.

The revised 14th Edition of CSMOP, which is being brought out by DAR&PG
has done away with a number of entries which existed earlier and now can be easily
obtained from the websites of various Ministries/Departments. We have also done
away with a number formats of the Appendixes and have left it to the discretion of
the Ministries/Departments to adopt the same catering to their requirements.

The overall aim is to increase productivity in work and make the

administration more responsive. Efforts have been made to maintain concordance
between organizational goals, procedures of work and functionaries entrusted with
the responsibility of discharging them.

For those who are working in the Government and for future entrants, the
Manual will be an invaluable source of training , guidance and reference.

~
(ALOK RAWAT)
Secretary
Department of Administrative Reforms
& Public Grievances
Ministry of Personnel,
Public Grievances & Pensions,
Government of India
 TABLE OF CONTENTS

Sl. Content Para No. Page No.

No
1. CHAPTER I - INTRODUCTION 1
2. CHAPTER II - DEFINITIONS 2-3
3. CHAPTER- III- STRUCTURE OF THE GOVERNMENT 4
Government 1 4
Allocation/Transaction of Government Business 2 4
Ministry/Department 3 4
Attached Offices 3(i) 4
Subordinate Offices 3(ii) 5
Constitutional Bodies 4 5
Statutory Bodies 5 5
Autonomous Bodies 6 5
Public Sector Undertakings 7 5
Functions at various levels 8 6
4. CHAPTER IV - MANAGEMENT OF DAK 9
Receipt of dak 9 9
Acknowledgement of dak 10 10
Registration of dak 11 10
Distribution of dak 12 10
5. CHAPTER V - FILE MANAGMENT 11
Standard Process Sheets 13 11
Level of disposal & channel of submission 14 11
Guidelines for noting 15 12
Modification of notes or orders 16 12
Noting on files received from other Departments 17 13
Aids to processing 18 13
Oral discussions 19 14
Oral instructions by higher officers 20 14
Oral orders on behalf of or from Minister 21 14
Confirmation of oral instructions 22 15
Filing of papers 23 15
Arrangement of papers in a file 24 16
Referencing 25 17
Linking of files 26 18
Use of urgency grading 27 18
6. CHAPTER VI - FORMS & PROCEDURE OF 19
COMMUNICATION
Forms of communication 28 19
Correspondence with attached & subordinate offices 29 28
Single File System 30 29
References to the Attorney-General of India 31 30
References to Constitutional/Statutory Authorities 32 30
References to the Comptroller & Auditor General of India 33 30
Correspondence with Union Territories Administration 34 31
Correspondence with State Governments 35 31
Correspondence with Lok Sabha & Rajya Sabha Secretariats 36 31
 Correspondence with Members of Parliament/VIPs 37 31
Correspondence with Ministers of State Governments 38 32
Correspondence with foreign governments and 39 33
international organisations
Target date for replies 40 33
7. CHAPTER VII - DRAFTING OF COMMUNICATION 34
Procedure for drafting 41 34
General instructions for drafting 42 34
Authentication of Government orders (Ministry of Home 43 34
Affairs)
Addressing communications to officers by name 44 35
8. CHAPTER VIII - FILE NUMBERING SYSTEM 36
Functional file numbering system 45 (I) 36
Subject classification based file numbering system 45(II) 37
Part File 45(III) 37
Unique e-file number 45(IV) 38
Transfer, reconstruction and numbering of files 46 38
Movement of files 47 38
9. CHAPTER IX - RECORDS MANAGEMENT 39
Activities involved in records management 48 39
Stage/procedure for recording 49 39
Categorization of physical records 50 39
Precedent Book 51 39
Record Retention Schedule 52 39
Records maintained by officers and their personal staff 53 40
Requisitioning of records 54 40
10. CHAPTER X - SECURITY OF OFFICIAL INFORMATION 41
AND DOCUMENTS
Communication of official information 55 41
Treatment of classified papers 56 41
Handling of classified papers 57 42
Communication of information to the press 58 42
Use of restrictive classification for printed reports etc. 59 42
11. CHAPTER XI - CHECKS ON DELAYS 43
Timely Disposal of receipts and monitoring of 60 43
Parliamentary Assurances, Parliament Questions,
Applications under RTI Act, MP/VIP References,
CAT/Court Cases, etc.
12. CHAPTER XII - MISCELLANEOUS 44
Departmental instructions 61 44
Maintenance/transfer of records in the personal offices of 62 44
Ministers
Maintenance of Websites 63 44
Citizen‟s/Client‟s Charter 64 45
 CHAPTER-I

INTRODUCTION

The efficiency of an organization depends largely on evolution of adequate

processes and procedures and the ability of its employees to follow them.
Accordingly, the efficiency of persons handling secretarial work in a government
organization can be judged by their ability to dispose of matters – mostly receipts,
cases etc. with speed and quality, following the procedures prescribed for the
purpose. The ultimate object of all Government business is to meet the citizens‟
needs and further their welfare. At the same time, those who are accountable for fair
conduct of business have to ensure that public funds are managed with utmost care
and prudence. It is, therefore, necessary, in each case, to keep appropriate record
not only of what has been done but also of why it was so done.

The procedures prescribed in the Central Secretariat Manual of Office

Procedure (CSMOP), attempt to balance the conflicting considerations of speed,
quality, transparency and propriety. In a dynamic context, this balance cannot be
rigidly or permanently fixed. Every rule and step in the procedure must serve a
definite purpose.

The First Edition of the CSMOP was published in March, 1955 and since then
it has been updated from time to time to take care of the changing scenario. The
13th Edition of the CSMOP came in the month of September, 2010. This edition of
the CSMOP is quite voluminous and hence it does not receive the required attention
of Government Employees to read it. The edition of the CSMOP which is being
brought is the 14th in the series. A number of entries which existed in the earlier
CSMOPs and are also available in different documents & manuals specific to the
subject have been removed. The new CSMOP has been prepared with a view to
remove redundancy, duplication and also doing away with a number material which
can easily be taken from the various Government websites.

It is expected that the revised 14th Edition of CSMOP, which has a lesser
number of pages in comparison to the earlier CSMOPs will receive greater attention
by the Government officials and the work will be performed in a systematic and
faster manner.
1
 CHAPTER II

DEFINITIONS

Definitions – The Definitions of some of the terms used in the Manual are:-

(1) „Appendix to correspondence/file‟:

Detailed/lengthy enclosures to a communication/file.

(2) „Branch‟ – the Unit of a Division and may comprise a couple of

Sections/Units/Cells.

(3) „Branch Officer‟ for a section – the officer who is directly above the section in
the line of control of execution of work.

(4) „Case‟ – a current file or a receipt together with other related papers, if any.

(5) „Central receipt and issue section‟ - A unit within a department consisting of
the central registry and the central issue section.

(6) „Classified dak‟ – dak bearing a security grading – confidential, secret etc..

(7) „Correspondence portion‟ – the portion of file containing „receipts‟ and „office
copies of the communications issued from the file include self-contained inter-
departmental notes but excluding those recorded on the notes portion of the
file itself.

(8) „Current file‟ – A file on which action is not yet complete.

(9) „Dak‟ – All communication received/issued by an office/department.

(10) „Dealing hand‟ – Any functionary entrusted with initial examination.

(11) „Department‟ – Any of the Ministries, Departments, Secretariats and Offices

mentioned in the First schedule to the Government of India (Allocation of
Business) Rules, 1961, as amended from time to time.

(12) „Departmental instructions‟ – Instructions issued by a department to

supplement or vary the provisions of the Manual of Office Procedure.

(13) „Departmental Record Officer (DRO)‟ – Officer nominated under the Public
Records Act 1993.

(14) „Desk‟- A unit within a department with a specific task assigned to it.

(15) „Desk functionary‟ – A functionary assigned with a defined sub-function or

activity in the charge of desk.

2
(16) „Diarist – a functionary within a section charged with the responsibility inter-
alia of maintaining the Section diary.

(17) „Diary number‟ – The serial number assigned to a receipt in the Section
diary/personal staff of officers followed by code letters identifying the Section
Diary („H‟ for section diary for Hindi receipt and „O‟ for section diary for other
receipts)/officers‟ designation, the year and the abbreviated symbol of the
section e.g., 205-H/2010-O&M or 123-O/DS(O&M)/2010.

(18) „Division‟ – A unit of a wing within a Department. A division may comprise of

branches/Sections.

(19) „Docketing‟ – Making of entries in the notes portion of a file about the serial
number assigned to each item of correspondence (whether receipt or issue)
for its identification.

(20) „File‟ – a collection of papers on a specific subject, assigned a number and

consisting of one or more of the following parts:

(a) Notes; (b) Correspondence; (c) Appendices to Notes/ correspondence.

(21) „Fresh Receipt (FR)‟ – Any subsequent receipt on a case which brings in
additional information.

(22) „Information and Facilitation Counter (IFC)‟ – A Facilitation counter, to provide

information/assistance to the citizens/clients about the programmes,
schemes, status of cases, applications, etc.

(23) „Issue‟ – A communication issued in a case.

(24) „Messenger Book‟ – A record of particulars of despatch of non-postal

communications and their receipt by the addressees.

(25) „Minute‟ – a note recorded by the President, the Vice-President, the Prime
Minister or a Minister.

(26) „Night Duty Clerk‟ – A functionary on duty outside office hours who performs
the functions of the central receipt and issue section during such hours.

(27) „Note‟ - The remarks recorded on a case to facilitate its examination and
decision.

(28) „Paper Under Consideration (PUC)‟ – A receipt pertaining to a case, the

consideration of which is the subject matter of the case.

3
 CHAPTER III

STRUCTURE OF THE GOVERMENT OF INDIA

1. Government: The structure of the Government is as under.

President (executive head)

Prime Minister(Head of Council of

Ministers)

Council of Ministers (Cabinet Ministers,

Ministers of State & Deputy Ministers)

Executive (Secretary & subordinate

functionaries)

2. Allocation/Transaction of government business

The Government of India (Allocation of Business) Rules, 1961 hereinafter

referred to as AOB Rules (as amended from to time) allocates the business of
government amongst its various Ministries/Departments. The Government of India
(Transaction of Business) Rules, 1961 and hereinafter referred to TOB Rules (as
amended from to time) seeks to define the authority, responsibility and obligations of
each Ministry/Department, Cabinet & its Committees and the Prime Minister of India
(Rule 12 of TOB). The AOB and TOB rules are available on the website of Cabinet
Secretariat www.cabsec.nic.in.

3. Ministry/Department – A Ministry/Department is responsible for formulation

of policies of the Government in relation to the subjects allocated to it under AOB
rules and also for the execution, monitoring and review of those policies.

(i) Attached Offices provide detailed executive directions required in the

implementation of the policies, as laid down from time to time by the
Ministry/Department to which they are attached. They also serve as a repository of
information and also advise the department on various aspects of matter dealt with
4
by them (e.g. Central Public Works Department, Central Water Commission, Central
Electricity Authority, Directorate General of Foreign Trade, Directorate General of
Factory Advice & Labour Institutes etc.).

(ii) Subordinate Offices generally function as field establishments or as

agencies responsible for the detailed execution of the policies of the government.
They function under the direction of an attached office, or where the volume of
executive direction involved is not considerable, directly under a department. In the
later case, they assist the Departments concerned in handling executive & technical
matters in their respective fields of specialization (e.g. service centre of CPWD,
CGHS dispensary, Directorate General of Mines & Safety etc.)

4. Constitutional Bodies – such bodies as are established under the provisions

of the Constitution of India (e.g. Union Public Service Commission, Election
Commission, Comptroller and Auditor General of India, National Commission for
Woman etc.).

5. Statutory Bodies – such bodies as are established under a statute or an Act

of Parliament (e.g. Central Vigilance Commission, Central Information Commission,
Central Board of Film Certification, National Commission for Backward Class etc.).

6. Autonomous Bodies – such bodies as are established by the Government to

discharge the activities which are related to governmental functions. Such bodies
are given autonomy to discharge their functions in accordance with the
Memorandum of Associations (e.g. Indian Military Academy, National Institute of
Fashion Technology, Indian Institute of Technology, Central Silk Board etc).

7. Public Sector Undertakings – Public Sector Undertakings have been set up

by Government in the form of companies or corporations in which the majority
shares are held by the President of India or his nominees and are managed by
Board of Directors, which includes officials and non-officials (BHEL, NTPC, ONGC
etc.). Some of them may have also been formed as a result of takeover,
nationalization etc. of erstwhile private companies (Indo Burma Petroleum, Balmer
Lawrie & Company Limited, Burn Standards Company Limited, Braithwaite &
Company Limited etc.)
5
8. Functions at various levels

(a) Secretary – A Secretary to the Government of India is the administrative

head of the Ministry or Department, who is the principal adviser to the Minister on all
matters of policy and the administration within the Ministry/Department.

(b) Special Secretary/Additional Secretary/Joint Secretary - One or more

wings may be established with Special Secretary/Additional Secretary/Joint
Secretary, in-charge of each wing under the charge of Secretary.

(c) Director/Deputy Secretary – Director/Deputy secretary holds the charge of a

Secretariat Division and is responsible for the disposal of Government business dealt
within the Division under the charge.

(d) Under Secretary – An Under Secretary is in-charge of the Branch in the

Ministry/Department consisting of one or more Sections.

(e) Section Officer - A Section Officer is the in-charge of a Section who has to
ensure efficient and expeditious disposal of work, recording and weeding out,
indexing and digitization. For this, they shall take all necessary steps including (i)
distribution of work among the staff as evenly as possible; (ii) training, helping and
advising the staff; (iii) management and co-ordination of work; (iv) ensuring
maintenance of order and discipline in the section; (v) maintenance of a list of
residential addresses of the Staff (vi) submit receipts which should be seen by
Branch Officer/Higher officer at dak stage; (vii) dispose of routine cases*, issue
reminders, obtain or supply factual non-classified information; (viii) take intermediate
routine action; (ix) keep a track of all judicial/quasi-judicial matters where the issues
being dealt with by the section are involved; (x) record, where necessary, a note
setting out his own comments or suggestions before submitting the case to higher
appropriate officer.

*„Routine cases‟ will be decided by Departmental instructions.

(f) Desk Officer – A Section Officer may be designated as Desk Officer, who is to
function as per powers delegated by the Ministries/Departments like signing financial
sanctions, affirming affidavits in court etc.

6
(g) Dealing Hands – Assistants and Upper Division Clerks are two different types
of Dealing Hands(DH), who are responsible for:-

(i) Opening, maintenance and custody of files; (ii) put up the file to Section
Officer mentioning precedents/facts, rule position, pointing out any mistake,
incorrect statements of facts ; (iii) go through the receipts and ensure that the
receipts, with urgency grading, are dealt with first; (iv) move the receipt to a file;
(v) if a file exists for this receipt, add the receipt to the existing file; (vi) in case a
file does not exist, a file will be opened; (vi) DH will add the data/metadata
required for creating a new file. A number will be given by the dealing hand to the
new file and in the case of e-file number will be assigned automatically by the
system on the creation of e-file; (vii) reproduce remarks on the notes portion of
the file, if any, made by an officer on the receipt. (viii) DH will have to give a
serial number and page number to all the letters received and issued.

In an electronic environment, the system will automatically assign a new

serial number to the receipt, which will be visible on the top centre of all the
pages of the receipt. The system will also automatically assign a new page
number to each page of the receipt, which will be visible on top right hand corner
of the page; (ix) link related file, if any. In an electronic environment, with the help
of knowledge management, and collaboration/interaction tools in the system,
search and link other e-files or documents, if any, referred to in the receipt, or
having a bearing on the issues raised therein; (x) identify and examine the issues
involved in the case and record a note; (xi) submit the case to the appropriate
higher officer; and (xii) in an electronic environment metadata may be used for
such purposes.

(h) Personal Staff Members of Officers (PSMs) – Staff Officer/Senior

Principal Private Secretary/Private Secretary/ Personal
Assistant/Stenographer.

(i) Taking dictation in shorthand and its transcription and assisting in drafting
and issue of all correspondences as may be directed by the officer; (ii)
managing of appointments/engagements; (iii) attending to the telephone calls
and receiving visitors; (iv) maintaining the papers required to be retained by
7
 the officer; (v) destroying by shredding/burning the stenographic record of the
confidential and secret letters; and (vi) assisting the officer in such a manner
as she/he may direct.

(i) Lower Division Clerk (wherever it exists)/Multitasking Staff (MTS).

(i) Registration of dak; (ii) maintenance of Section Diary and File Movement
Register; (iii) typing, comparing, photocopying, faxing, e-mailing etc.; (iv)
performing the task of a dealing hand; and (v) any other official task assigned.

Note : Duties of untrained Multi Tasking Staff (MTS) have been provided at
Annexure-II of the Department of Personnel & Training‟s O.M. No.AB-14017/6/2009-
Estt (RR) Dated 30th April, 2010 at website (www.persmin.nic.in)

8
 CHAPTER IV

MANAGEMENT OF DAK

Movement of inward receipts

Initial source of receipt Officer

Diarist after diarization at

officer level

Dealing hand Concerned Officers in

the hierarchy

Section

9. RECEIPT OF DAK-

(i) (a) During office hours, the entire dak of the department including that
addressed to Ministers/Officers by name will be received in the Central
Registry(CR) or Information Facilitation Counter(IFC). Where, however,
immediate/important dak addressed to Ministers/Officers by name is sent
through special messenger directly, it will be received by them or their
personal staff.

(b) In case, an officer is on leave or on training/tour or having retired or left

the office after completion of his tenure, the incumbent or the personal staff
concerned or the link officer or the officer just below the officer concerned,
dealing with the subject will receive the immediate/important references,
except confidential letters for which link officer arrangement will be utilized.
In case none of the above mentioned officers are in position, the CR will
receive such letters.

(ii) Outside the office hours, dak will be received by the addressee himself at his
residence if marked „Immediate‟ and addressed by name. In all other cases, dak will

9
be received, outside office hours by:-

(a) the night duty clerk of the Department concerned; or

(b) where no such arrangements exist, by the officer designated by the

Department concerned to receive such dak.
(iii) E-mails received in the Department will be downloaded centrally by the
Department and forward the same to the officer concerned. E-mails addressed to
Ministers/Officers will be downloaded by them or their personal staff.

10. Acknowledgement of dak – the receipt of dak, in person, will be

acknowledged by the recipient signing his name in full and in ink with date and
designation. In e-office acknowledgement will be self generated.

11. Registration of dak –

(i) All covers, except those addressed to Ministers/Officers by name or those

bearing a security grading, will be opened by the Central Registry (CR)/Information
Facilitation Centre (IFC).

(ii) All opened dak as well as the covers of unopened, classified dak, will be date-
stamped in a format suitable to the Ministry/Department concerned with details
including name of the Ministry/Department, Date of Receipt, C.R./I.F.C. Number,
Section Diary Number.

(iii) The physical dak (including the fax messages) would be received by various
functionaries (e.g. C.R. Unit or the personal staff of the officer concerned). It shall be
the responsibility of the functionary who first receives the physical dak, to diarize it
(in case the enclosures are missing, the concerned official shall take action
telephonically or in writing or electronically to obtain the enclosures from the sender,
preferably in the electronic form). Where voluminous books, papers, etc. are sent as
an Annexure, the sender may be requested to send a soft copy.

12. Distribution of dak-

The receipts may be forwarded to the officer/section concerned. In case of

ambiguity, the correspondence may be forwarded as per the instructions of the
appropriate authority.
10
 CHAPTER V

FILE MANAGEMENT
Movement of files

Dealing hand Section Officer

Divisional Head Under Secretary/Branch

(DS/Dir.) Officer

JS/AS/SS Secretary

Minister

13. Standard Process Sheets - For dealing with cases of repetitive nature e.g.
leave sanction, GPF Advances, HBA etc., standard process sheets may be devised
by the respective Ministries/Departments. No notes need be recorded in such
cases.

14. Level of disposal and channel of submission -

(i) Each Ministry/Department shall lay down a detailed scheme of delegation at

all levels so that the decision making takes place at the most appropriate level. This
shall be updated from time to time and placed in public domain.

(ii) The number of levels through which a file passes for a decision shall not
exceed four.

(iii) Wherever level jumping is done in respect of any category of cases, each
such case on its return, will pass through all the levels jumped over, who in suitable
cases could resubmit the cases for reconsideration.

11
(iv) In case of urgent matters, the decisions may be conveyed directly to the
officer concerned for implementation, who after doing the same, shall bring it to the
notice of the levels of officers, that have been jumped in the hierarchy.

15. Guidelines for noting -

(i) All notes shall be concise and to the point. Additional material, if any, may be
placed in the appendix. Black or Blue ink shall be used by all categories of staff and
officers. In case of hand written noting, only black or blue ink shall be used.

(ii) The dealing hand shall append full signature, name and date on the left below
the note. An officer shall append full signature on the right hand side of the note with
name, designation and date. In an electronic environment digital signature will be
appended at each level.

(iii) While preparing/submitting Notes for the Cabinet/Cabinet Committees/Groups

of Ministers & Committee of Secretaries, constitution/reconstitution of High-level
Commissions/Committees, the format prescribed in Cabinet Secretariat website
(www.cabsec.nic.in) (as amended from time to time) may be followed.

16. Modification of notes or orders -

(i) Senior officers should not require any modification in, or replacement of, the
notes recorded by their juniors once they have been submitted to them. Instead, the
higher officers should record their own notes giving their views on the subject, where
necessary correcting or modifying the facts given in earlier notes.

(ii) Pasting over a note or a portion of it to conceal, shall not be done. Where a
note recorded in the first instance requires any modification on account of additional
facts or any error having come to notice, a subsequent note may be recorded,
keeping the earlier note intact.

(iii) Where a final decision already communicated to a party is found later on to

have been given on a mistaken ground or incorrect facts or wrong interpretation of
rules due to misunderstanding, such withdrawal may have also legal implications. In
all such cases, in addition to consulting the Ministry of Law, wherever necessary,

12
such a withdrawal should be permitted only after the approval of an officer higher
than the one, who took the original decision, has been obtained and reasons for the
reversal or modification of the earlier decision have been duly recorded on the file.

17. Noting on files received from other departments -

(i) If the reference seeks the opinion, ruling or concurrence of the receiving
Department and requires detailed examination, such examination may be done
separately through routine notes on a separate file (which will be created by the
receiving Department). Only the final result will be recorded on the file by the officer
concerned.

(ii) The receiving Department shall open subject-wise file each year in which
such routine notes will be kept. The inter-departmental note recorded on the file of
the originating department will bear the subject file number to facilitate retrieval for
future reference and storage in electronic environment.

(iii) Where the reference requires information of a factual nature or other action
based on a clear precedent or practice, the dealing hand in the receiving department
may note on the received file straightway.

(iv) Where a note is recorded by an officer after obtaining the orders of a higher
officer, the fact that the views expressed therein have the approval of the latter
should be specifically mentioned, in the note to be recorded on the file of the
originating Department.

18. Aids to processing -

Each section shall keep in the knowledge management system of the

Department the following records/electronic records for important subjects dealt with
by it:
(a) precedent book;
(b) standard process sheets; and
(c) transcripts of important discussions and minutes.
(d) copies of Acts, rules, orders and instructions concerning the subjects
dealt with each Department shall be maintained both in physical form

13
 as well as on the website.;
(e) Guard file.
19. Oral discussions -

(i) All points emerging from discussions (including telephonic discussions)

between two or more officers of the same Department or from discussions between
officers of different Departments, and the conclusions reached shall be recorded
precisely on the relevant file at the earliest, by the officer authorizing action.

(ii) All discussions/instructions/decisions which the officer recording them

considers to be important enough for the purpose, should be got confirmed by all
those who have participated in or are responsible for them.

20. Oral instructions by higher officers -

(i) Where an officer is giving direction (including telephonic direction) for taking
action in any case in respect of matters on which the officer or subordinate has
powers to decide, the subordinate shall ordinarily do so in writing. If, however, the
circumstances of the case are such that there is no time for giving the instructions in
writing, they should follow it up by a written confirmation at the earliest.

(ii) When an officer is acting under instructions of an official superior, he shall

obtain the directions in writing wherever practical before carrying out the instructions.
Where it is not possible to do so, he shall obtain written confirmation of the
directions, as soon thereafter as possible. If the officer giving the instructions is not
the immediate official superior but is one higher to the latter in the hierarchy, the
officer shall bring such instructions to the notice of the immediate superior at the
earliest, and thereafter the latter will obtain the written confirmation of the directions
from the senior officer who gave the instructions.

21. Oral orders on behalf of or from Minister:-

(i) Whenever a member of the personal staff of a Minister communicates to any

officer an oral order on behalf of the Minister, it shall be confirmed by her/him in
writing, immediately thereafter.

(ii) If any officer receives oral instructions from the Minister or from her/his
14
personal staff and the orders are in accordance with the norms, rules, regulations or
procedures they should be brought to the notice of the Secretary (or the head of the
department where the officer concerned is working in or under a non-secretariat
organization).

(iii) In all cases of oral/orders which are not in accordance with the norms, rules,
regulations or procedures, clear orders from the Secretary (or the head of the
department in case she/he is working in or under a non-secretariat organization)
should be sought about the line of action to be taken, stating clearly that the oral
instructions are not in accordance with the rules, regulations, norms or procedures.

(iv) In rare and urgent cases when the Minister is on tour/is unwell and the
approval has to be taken urgently on telephone, the decision of the Minister shall be
conveyed by the Private Secretary. In such cases, confirmation of Minister shall be
obtained, subsequently at the earliest.

22. Confirmation of oral instructions -

(i) If an officer seeks confirmation of oral instructions given by his superior, the
latter should confirm it in writing whenever such confirmation is sought.

(ii) Receipt of communications from junior officers seeking confirmation of oral

instructions shall be acknowledged by the senior officers or their personal staff, or

the personal staff of the Minister, as the case may be.

23. Filing of papers -

(i) Papers required to be filed will be punched neatly on the left hand top corner
and tagged onto the appropriate part of the file viz. notes, correspondence, appendix
to notes and appendix to correspondence, in chronological order, from right to left.

(ii) Both `notes portion‟ and `correspondence portion‟ will be placed in a single file
cover.

(a) Left end of tag in the note portion will be tagged on to the left side of the file
cover and right end of the tag will remain as such i.e. untagged.

15
 (b) In the case of correspondence portion, right side of the tag will be tagged
onto the right side of the same file cover and left side of the tag will remain as
such i.e. untagged.
(iii) Reference to previous communications should invariably indicated in the fresh
receipt, if there is a mention about it.

(iv) (a) If the file is not bulky, appendix to notes and appendix to correspondence
may be kept along with the respective note portion or the correspondence
portion of the main file if these are considered as integral and important part.

(b) If the file is bulky, separate file covers may be used for keeping appendix to
notes and appendix to correspondence.

(v) When the 'notes‟ plus the `correspondence‟ portion of the file become bulky
(say exceeds 150-200 pages), it will be marked `Volume I‟. Further papers on the
subject will be added to the new volume of the same file, which will be marked
`Volume II‟, and so on. In Volume II and subsequent volumes of the same file, page
numbering in notes portion and correspondence portion will be made in continuity of
the last page number in note portion/correspondence portion of the earlier volume.

(vi) On top of the first page of the note portion in each volume of the file, file
number, name of the Ministry/Department, name of branch/section subject of the file
and classification of file will be mentioned. A similar procedure will be followed on
file cover also.

24. Arrangement of papers in a case.—

The papers in a case will be arranged in the following order from top downwards:

(i) reference books;

(ii) notes portion of the current file ending with the note for consideration;

(iii) running summary of facts;

(iv) draft for approval, if any;

(v) correspondence portion of the current file ending with the latest receipt or
issue, as the case may be;
16
 (vi) appendix to notes and correspondence;

(vii) standing guard file, standing note or reference folder, if any;

(viii) other papers, if any, referred to e.g., extracts of notes or correspondence

from other files, copies of orders, resolutions, gazettes, arranged in
chronological order, the latest being placed on the top;

(ix) recorded files, if any, arranged in chronological order, the latest being
placed on the top; and

(x) routine notes and papers arranged in chronological order and placed in a
separate cover.

25. Referencing -

(i) Every page in each part of the file (viz. Notes, correspondence, appendix to
notes and appendix to correspondence) will be consecutively numbered in separate
series on the top right hand corner. In an electronic environment the number of page
and Serial number of Receipts/Issue will be generated automatically. The docketing
will also take place immediately below the note which has culminated in issuance of
fair signed communication(s) in question.

(ii) The drafts of letters issued having crucial policy, financial and vigilance
implications, where the drafts have been changed by Senior Officers in the process
of movement of files upwards, barring grammatical corrections should also form a
part of the correspondence portion, which shall be numbered ad seriatim.

(iii) The document under consideration on a file shall be flagged „PUC‟ and the
latest fresh receipt noted upon, as „FR‟. If there is more than one „FR‟ they shall be
flagged separately as „FRI‟, „FRII‟ and so on.

(iv) to facilitate the identification of reference to documents contained in other files

after the removal of linked file(s), the number of the file referred to will be quoted
invariably in the note. Similarly, the number and date of orders, notifications and the
resolutions, and, in the case of acts, rules and regulations, their brief title together
with the number of the relevant section, rule paragraph or clause, referred to shall be
quoted in the notes.

17
26. Linking of files -

If the issues raised in two or more current files are inter-connected, the
relevant files shall be linked. After completion of action, the linked files be de-linked
after taking relevant extracts.

27. Use of urgency grading -

(i) The urgency grading advised are „Immediate‟, „Priority‟ and „Top Priority‟.

(ii) The label „Immediate‟ will be used only in cases requiring prompt attention.
Amongst the rest, the „Priority‟ label will be used for cases which merit disposal in
precedence to others of ordinary nature. „Top Priority‟ will be applied in extremely
urgent cases.

(iii) Lok Sabha/Rajya Sabha labels shall be used for appropriate cases which
merit disposal in precedence to others of ordinary nature. The file covers of the Lok
Sabha and Rajya Sabha Questions, Motions etc. are to be in red colour and green
colour respectively, in order to facilitate their identification for urgent dealing.

18
 CHAPTER VI

FORMS AND PROCEDURE OF COMMUNICATION

28. Forms of communication -

The different forms of communication, its content and format generally used
by a Department are reproduced below:-
(i) Letter -
Content Format
Used for corresponding with State No….
Government of India
Governments, various constitutional
(Bharat Sarkar)
bodies, heads of attached and Department of………
(……………..Vibhag)
subordinate offices, public enterprises,
statutory authorities, public bodies and New Delhi, the……..(Date)
To
members of the public generally. A letter
Subject:
begins with the salutation “Sir/Madam” Sir/Madam,
With reference to your letter
as may be appropriate.
No………..dated……... on the subject
cited above, I am directed………
Yours faithfully,
Note: In case of correspondence with
Foreign Government, instructions issued by
@Sd/
the Ministry of External Affairs from time to
(A.B.C.)
time are to be followed. Under Secretary to the Govt. of India
Tele.No………
Telefax.No/e-mail
(Endorsement)
No…………………
Copy forwarded for
information/necessary action to:
(1)
(2)

(A.B.C.)
Under Secretary to the Govt. of India

19
(ii) Demi-official letter -

Content Format
Generally used in correspondence XYZ
Deputy Secretary
between Government officers for inviting
Tele.No.
their personal attention on the issue. D.O.No…….
GOERNMENT OF INDIA
Since demi-official letter is written in the
(Bharat Sarkar)
first person in a personal and friendly Department of…………….
(…………….Vibhag)
tone, it should be addressed by an
officer in a Ministry/ Department who is New Delhi, the ………20..
ordinarily not more than one or two
My dear/Dear Shri…………….
levels below the officer to whom such We propose to draw up a model
scheme for................ A copy of the
communication is addressed.
outline prepared in this connection is
Communications to non-officials can enclosed.
I shall be grateful if you would let
also take the form of a demi-official
me have your comments as soon as
letter. possible. I may add that we intend
circulating the draft scheme formally to
The colour code and use of National
all departments in the due course for
Emblem on D.O. letter will be as per the their comments.
With regards
instructions issued by the Ministry of
Yours sincerely,
Home Affairs from time to time (XYZ)
A.B.C.
Deputy Secretary
Ministry of ..................
Department of ...........
New Delhi...........

20
(iii) Office Memorandum -

Content Format
Generally used for corresponding with No….
Government of India
other Departments or in calling for
(Bharat Sarkar)
information from or conveying Department of………
(……………..Vibhag)
information to its employees. It may
also be used in corresponding with New Delhi, the……..(Date)
attached and subordinate offices. It is
OFFICE MEMORANDUM
written in the third person and bears no Subject:
salutation or supersession except the
The undersigned is directed to
name and designation of the officer refer to this/their Department O.M.
No………..dated……...
signing it
2. Doubts have been expressed
whether the provisions of …………..also
apply to…………. It is hereby clarified
that … ……………….

(A.B.C.)
Under Secretary to the Govt. of India
Tele.No/e-mail
To
The Department of ……….
(……….Vibhag)
(Shri/Smt……………..)
Sardar Patel Bhavan
Parliament Street
New Delhii-110001.

21
(iv) Inter-departmental note (earlier referred to as U.O. Note i.e. before 7th
edition of CSMOP) -

Content Format
(a)Generally employed for obtaining the Government of India
(Bharat Sarkar)
advice, views, concurrence or
Department of………
comments of other Departments on a (……………..Vibhag)
Subject:
proposal or in seeking clarification of the
existing rules, instructions etc. It may 1. The present rules regulating the issue
of identity cards provide inter alia
also be used by a Department when
that……………
consulting it‟s attached and subordinate
2. A question has now arisen
offices and vice versa.
whether…………..
(b) The inter-Departmental note may
3.
either be recorded on a file or e-file
(where two departments have 4.
connectivity) referred to another
5. This department will be grateful for the
Department or may take the form of an advice of the Department of Legal affairs
on the issue raised in para 4 above.
independent self-contained note.

(X.Y.Z.)
Deputy Secretary
Tele.No/e-mail

Department of Legal Affairs (Vidhi Karya

ibhag), Shri…..) Shastri Bhavan, New
Delhi
Department of ………I-D
No………….Dated……………..

22
(v) Office Order –

Content Format
Normally used for issuing instructions No….
Government of India
meant for internal administration, e.g.,
(Bharat Sarkar)
grant of regular leave, distribution of Department of………
(……………..Vibhag)
work among officers and sections,
appointments and transfers etc. New Delhi, the……..20..

OFFICE ORDER(No. /2014)

Shri X.Y.Z., a permanent Section
officer in this department, is granted
earned leave for ……..days from……to
…………..with permission to prefix…..
and suffix………. both public holidays, to
the leave.

2. It is certified that Shri XYZ is likely,

on the expiry of this leave, to return to
duty at the station from which proceeded
on leave.

(A.B.C.)
Under Secretary to the Govt. of India
Tele.No/e-mail
Copy to:
1. Office order file
2. Cashier
3. Section concerned
4. Shri XYZ Section Officer.

23
(vi) Order -

Content Format
No….
Government of India
Generally used for issuing certain types
(Bharat Sarkar)
of financial sanctions and for Department of………
(……………..Vibhag)
communicating government orders in
disciplinary cases, etc., to the officials New Delhi, the……..20..
concerned
ORDER
Sanction of the President is
accorded under rule 10 of the Delegation
of Financial Powers Rules, to write off
irrecoverable loss of Rs.5000 (Rupees
Five Thousand only) being the value of
the following articles belonging to this
department.

(1) X X X X X
(2) X X X X X

(A.B.C.)
Under Secretary to the Govt. of India
Tele.No/e-mail
Copy forwarded to:
1. The A.G.C.R., New Delhi.
2. Internal Finance Section
3. Cash Section

24
(vii) Notification -

Content Format
Mostly used in notifying promulgation of [To be published in the Gazette of India,
Part I, Section 2)
statutory rules and orders, appointments
Government of India
and promotions of gazetted officers etc. (Bharat Sarkar)
Department of………
through publications in the Gazette of
(……………..Vibhag)
India.
New Delhi, the……..20..

Note:The classification of categories of

notification/extra-ordinary notification shall NOTIFICATION
be as per the instructions issued by the
Ministry of Home Affairs‟ from time to time.
No………… Shri XYZ., Under Secretary
in the Department of ………….is
appointed to officiate as Deputy
Secretary in that Department vice Shri
…….. transferred to the Department of
…………………

(A.B.C.)
Joint Secretary
Tele.No/e-mail

The Manager,
Government of India Press,
(Bharat Sarkar Press) FARIDABAD

Copy forwarded for information to:

(1)
(2)
(3)

25
(viii) Resolution –

Content Format
This form of communication is used for [To be published in the Gazette of India, Part
I, Section 1)
making public announcement of Government of India
decisions of government in important (Bharat Sarkar)
Department of………
matters of policy in e.g. the policy of (……………..Vibhag)
industrial licensing, appointment of New Delhi, the……..20..
committees or commissions of enquiry.
RESOLUTION
Resolutions are also published in the
Gazette of India. The Government of India have had under
consideration the question of further
improving the efficiency of the
departments and services concerned
with the collection of revenue. As a first
step in that direction the President has
been pleased, under the powers vested
in him under Article ……………. of the
Constitution of India, to decide that a
Class Central Service to be known as
‘India Revenue Service’ should be
constituted with effect from …………..

(A.B.C.)
Secretary to the Government of India
Tele.No/e-mail

ORDER
ORDERED that a copy of the resolution
be communicated to……………..
ORDERED that a the resolution be
published in the Gazette of India for
general information
(A.B.C.)
Secretary to the Government of India
Tele.No/e-mail
The Manager,
Government of India Press,
(Bharat Sarkar Press)
FARIDABAD.

26
(ix) Press communiqué/note -

Content Format
This form is used when it is proposed to Not to be published or broadcast before
………….. a.m./p.m on………………day,
give wide publicity to a decision of
the ……… 20..
government. A press communiqué is
PRESS COMMUNIQUE/NOTE
more formal in character than a press
note and is expected to be reproduced In response to public demand, the
Government of India have appointed a
intact by the press. A press note, on the
Commission to go into the problem of
other hand, is intended to serve as a ………………………… and make
suitable recommendations to the
hand-out to the press which may edit,
Government.
compress or enlarge it, as deemed fit.
2. The Commission will consist of Shri
…….. ..as Chairperson and the following
as members;
(i)
(ii)
(iii)

3. In making its recommendations, the

Commission is expected to give
consideration to the following matters:
(a)
(b)
(c)

4. The Commission is expected to

submit its report to the Government by
…………..

Department of ………..
(………………………..Vibhag)

New Delhi, the…….20…

No……………

Forwarded to the Principal

Information Officer, Press Information
Bureau, Government of India, new Delhi,
for issuing the communiqué and giving it
wide publicity.
(A.B.C.)
Joint Secretary
Tele.No/e-mail

27
(x) Endorsement -
Content Format
This form is used when a receipt has to No….
Government of India
be returned in original to the sender, or
(Bharat Sarkar)
the receipt in original or its copy is sent Department of………
(……………..Vibhag)
to another Department or office, for
information or action. It is also used New Delhi, the……..2014
when a copy of a communication is
A copy each of the papers mentioned
proposed to be forwarded to parties below is forwarded for information and
necessary action.
other than the one to which it is
addressed. Normally this form will not
(A.B.C.)
be used in communicating copies to
Under Secretary to the Govt. of India
state governments. The appropriate Tele.No/e-mail
List of papers forwarded.
form for such communication should be
1.
a letter. 2.

To

(xi) Minutes - A record of discussions is prepared immediately after the meeting

and circulated to the other Ministries/Departments concerned, giving date/time/venue
of the meeting held, who chaired the meeting and list of participants, setting out the
conclusions reached and indicating the Ministry(s)/Department(s) responsible for
taking further action on each conclusion. In case it is perceived by a participant of
the meeting, that the minutes recorded are not as per the understanding/perception
of the participant, the same may be immediately referred in writing to the authority
which has issued the minutes.

Modes of Communications shall be decided depending on the nature and

urgency of message to be conveyed.

29. Correspondence with attached and subordinate offices -

Senior Officers/Head of a subordinate/ attached office under an administrative

Ministry/Department shall correspond in respect of matters involving intervention/
approval of another Ministry/ Department in a form of a note/e-mail/ e-file to their
concerned Ministry/Department. In case of seeking clarifications relating to
28
rules/guidelines from Departments like Department of Expenditure, Department of
Personnel, Ministry of Health etc. the Attached/Subordinate offices can communicate
directly without the intervention of their parent Ministry/Department.

30. Single File System -

(i) This shall apply to matters which have to be referred by the Non Secretariat
Office (NSO) to the Department for seeking a sanction/order, i.e. a decision not
within its own delegated powers.

(ii) This shall not apply to matters which in a hybrid environment i.e. where either
the Department or the NSO is still operating in paper mode (non-electronic). In such
cases, the procedure detailed in para (iii) to (vii) below will be followed. In cases
where both the Department and NSO are electronically connected, the workflow
given below will be followed:

(a) The SFS file need not bear an I.D. No. or other formal method of sending, but
will be sent as though it is from one officer to another in the same
organization.

(b) The SFS file shall be completed in all respects, so as to enable the
Department to take a decision expeditiously; hence the NSO will ensure that:

(i) every point for decision/order is clearly brought out;

(ii) all relevant connected papers are placed on the file/e-files, properly
arranged and referred to;

(iii) draft orders/sanctions are put up, where they are required to be
approved by the department for issue; and

(iv) the availability of funds, etc., is certified where additional expenditure is

involved in the proposal.

(iii) The officer last dealing with the SFS case in the NSO shall mark it to the
appropriate officer in the Department, by name; policy files will, however, be
29
referred to the department at appropriate levels to be determined by the
Department and the NSO concerned, through a general order.

(iv) All SFS files shall invariably be routed through the central registry of the
department concerned.

(v) As a rule, all noting in the Department will be on the NSO file. However,
where sensitive or delicate matters in the sphere of personnel, policy issues and
finance are involved; the recording of notes in `duplicate' e-files may be permitted
by issuing general or special orders by the Department. This will be done at a
particular stage of the SFS case or at or above a particular level, with the final
decision thereafter being suitably recorded on the SFS e-file.

(vi) As a convention, the secretariat noting on a SFS file shall start on a new page
and the noting done sequentially-save in matters of the nature referred to in (v)
above.

(vii) Action to implement the government decision in SFS case shall be initiated in
and by the NSO on the return of the file. Orders so issued should specifically state
that these have received the concurrence of Government in the Department
concerned. Copies of every sanction/order so issued by the NSO will be endorsed
without fail to all the officers concerned in the Department.

31. References to the Attorney-General of India - References to the Attorney-

General shall be made by the Ministry of Law and Justice.

32. References to Constitutional/Statutory Authorities - References to

constitutional and statutory authorities such as Election Commission of India/ Union
Public Service Commission etc. shall normally be made in the letter form addressed
to Principal Secretary/Secretary of the Commission.

33. References to the Comptroller and Auditor General of India - References

to the Comptroller and Auditor General of India for his views or advice shall be made
only by or through the Ministry of Finance. In matters of day-to-day administration,
Ministries/departments may, however, at their discretion, correspond directly with the
Comptroller and Auditor General of India.
30
34. Correspondence with Union Territory Administrations - All
communications of a routine nature which clearly relate to the business of a
particular Department, shall ordinarily be addressed to the Secretary in the
appropriate Department. Other important communications may be addressed to the
Chief Secretary or the Administrator as the case may be.

35. Correspondence with State Governments -

(i) Communications on the subjects which clearly relate to the business of a

particular Department shall normally be addressed to the Secretary of that
Department. Other communications including those of special nature or
importance warranting attention at higher levels may be addressed to the Chief
Secretary. Demi-official letters may also be sent to officers of State Governments. In
case of demi-official communication is to the Chief Secretary of a State, this level
shall not be below the level of Joint Secretary.

(ii) Communications other than those of a purely routine nature e.g.,

acknowledgements shall not ordinarily be addressed to State Governments except
with the prior approval and under the signature of the branch officer. Purely routine
communications may, however, be signed by a Section Officer.

36. Correspondence with the Lok Sabha and the Rajya Sabha Secretariats -

Communications meant for the Lok Sabha Secretariat or the Rajya Sabha
Secretariat and requiring urgent or high level attention shall be addressed to the
Secretaries concerned and not to the Speaker or the Chairman directly.

37. Correspondence with Members of Parliament and VIPs -

(i) Communications received from Members of Parliament and VIPs should be

attended to promptly.

(ii) Where a communication is addressed to a Minister, it shall, as far as possible,

be replied to by the Minister himself. In other cases, a reply should normally be
signed by an officer of the rank of Secretary only.

(iii) Where, however, a communication is addressed to the head of an attached or

31
subordinate office, Public Sector Undertakings, Financial Institutions (including
nationalized banks) Division/Branch In charge in a Ministry/Department
/Organisation, shall be replied to by the addressee himself. In routine matters, he
may send an appropriate reply on his own. In policy matters, however, the officer
should have prior consultation with higher authorities before sending a reply. It
should, however, be ensured that the minimum level at which such replies are sent
to Members of Parliament and VIPs is that of Under Secretary and that also in letter
form only.

(iv) Normally information sought by a Member/VIP should be supplied unless it is

of such a nature that it would have been denied to him even if asked for on the floor
of the Houses of Parliament.

(v) In case, a reference from an ex-Member of Parliament is addressed to a

Minister or Secretary, reply to such reference may be sent by a Joint Secretary level
officer after obtaining approval of the Secretary of the Ministry/Department. In case
the reference is addressed to a lower level officer, reply to such reference could be
sent by the officer on his own in non-policy cases and after obtaining approval of the
higher authorities in policy cases,. However, the minimum level at which reply could
be sent should be that of an Under Secretary and that too in a polite letter form only.

(vi) Each communication received from a Member of Parliament/VIP, shall be

acknowledged within 15 days, followed by a reply within the next 15 days of
acknowledgement sent.

(vii) Appropriate record shall be maintained in respect of communications received

from Members of Parliament and VIPs and monitored by all concerned. A similar
procedure may also be followed for judicial/quasi-judicial matters.

38. Correspondence with Ministers of State Governments –

The procedure laid down in the above paragraph (No.37) shall also be
followed in dealing with communications received from the Ministers of State
Governments.

32
39. Correspondence with Foreign Governments and International
Organizations –

Correspondence with Foreign Governments and their Missions in India,

Heads of Indian Diplomatic Missions and posts abroad and United Nations and its
specialized agencies shall normally be through the Ministry of External Affairs.
Exceptions to this may be made only as per the instructions issued by the Ministry of
External Affairs in this regard from time to time.

40. Target date for replies - In all important matters in which State
Governments, Departments of the Central Government, or other offices, public
bodies or individuals are consulted, time limit for replies may ordinarily be specified.
On expiry of the specified date, orders of the appropriate authority may be obtained
on whether the offices, whose replies have not been received, may be allowed an
extension of time or whether the matter may be processed on the basis of the
information available, without waiting for their replies.

33
 CHAPTER VII

DRAFTING OF COMMUNICATION

41. Procedure for drafting -

Draft is not required to be prepared in straight-forward cases or those for

which standard forms of communication exist.

42. General instructions for drafting –

(i) A draft shall be clear and concise.

(ii) The number and date of the last communication in the series, and if this is not
from the addressee, his last communication on the subject, shall always be referred
to. Where it is necessary to refer to more than one communication or a series of
communications, this shall be done on the margin of the draft. When two or more
communications are to issue from the same file on the same date, a separate serial
number may be inserted before the numeral identifying the year to avoid confusion in
reference, e.g., A-.11011/5(I)/2001-Est., A-11011/5(II)/2001-Est.

(iii) The name, designation, telephone number, fax number and e-mail (wherever
applicable) of the officer signing the communication shall be indicated in the
communication.

43. Authentication of Government Orders (Ministry of Home Affairs) –

(i) All orders and other instruments made and executed in the name of the
President shall be expressed to be made in his name and signed by an officer
having regular or ex-officio secretariat status of and above the rank of Under
Secretary, or other specifically authorized to authenticate such orders under the
Authentication (Orders and Other Instruments) Rules, 2002 (as amended from time
to time).

(ii) Where the power to issue orders, notifications, etc., is conferred by a statute
of the Government of India, such orders and notifications will be expressed to be
made in the name of the Government of India.

34
44. Addressing communications to officers by name - Normally no
communication, other than that of a classified nature or a demi-official letter, shall be
addressed or marked to an officer by name, unless it is intended that the matter
raised therein shall receive his personal attention either because of its special
nature, urgency or importance, or because some ground has already been covered
by personal discussions with him and he would be in a better position to deal with it.

35
 CHAPTER VIII

FILE NUMBERING SYSTEM

45. File Numbering System: Normally, no files should be opened for dealing with
receipts of routine nature. The following two file numbering systems may be used:-

I. Functional file numbering system –

(i) The range and dimensions of the subjects falling under the scope of business
allocated to a department are analyzed in the following sequence:

(a) main functions of the department;

(b) activities in each of these functions;

(c) aspects or operations involved in each of these activities; and

(d) factors to be taken into consideration relating to each of these aspects

or Operations.

(ii) The scope of business of a department is analyzed under four hierarchical

divisions, and the following four standard lists of headings are prepared:

(a) functional heads which may be called basic heads;

(b) activity heads which may be called „primary heads‟ as related to each
functional head;

(c) aspect or operation heads which may be called „secondary heads‟ as

related to activity heads; and

(d) factor heads which may be called „tertiary heads‟ as related to

operation heads.

(iii) Based on the above list of heads‟, a functional file index for various
substantive subjects dealt with by a department together with an identifying
file numbering system is then developed.

(iv) For opening files on subjects which are common to all Ministries/Departments
(e.g. matters relating to establishment, finance, budget, accounts, office
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 supplies and services, and other house-keeping jobs, Hindi, Vigilance,
Parliament, Questions, etc.) the common standardized functional file index/file-
numbering system, as contained in the booklet „Record Retention Schedule‟
in respect of records common to all Ministries/Department issued by the
Department of Administrative Reforms and Public Grievances in 2012
(uploaded on the website (www.darpg.gov.in), as amended from time to time,
shall be followed.
II. Subject classification based file numbering system–
(i) Each Section/Desk will maintain approved lists (to be reviewed every year) of:
(a) standard heads i.e. main subjects headings concerning it.
(b) standard sub-heads i.e. aspects of the main subject headings.

(ii) The standard heads will bear consecutive serial numbers. No such numbers,
however, will be allocated to standard sub-heads.
(iii) The dealing hand will ascertain the standard to which the paper under
consideration relates .and then propose a suitable title subject to review by
the Senior Officers.
(iv) As far as possible, there should be a separate file for each distinct aspect of
the subject.
(v) If the issue raised in the fresh receipt or in the note on a current file goes
beyond the original scope, a new file may be opened to deal with it by placing
photocopies of relevant extracts.
(vi) The first three elements in the file number will be separated from one another
by a slant stroke and the last two by a dash. Thus, the files opened in say,
Scientific Research Section during 2009 under the standard head bearing
serial number „3‟ will be numbered consecutively as 3/1/2008-SR, 3/1/2009-
SR etc. and so on, where „SR‟ represents the section.
III. Part File –

(i) If the main file on a subject is not likely to be available for some time and it is
necessary to process a fresh receipt or a note without waiting for its return, a
part file may be opened to deal with it. Where two or more part files are
opened, each will be identified by a distinct number, e.g. part file I, part file II
or part file „A‟, part file ‟B‟ and so on. Once the main file returns the part files
will be merged with it, after removing duplicate papers, if any.

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(ii) In a computerized environment appropriate entry will be made in the
computer, so that easy tracking is facilitated for the purpose of merging of the
part file with the main file.

IV. Unique e-file number: In a computer environment, a unique e-file number will
also be generated automatically as and when a new e-file is opened. The e-files
which are entered in the system will be automatically traceable on any of the
following parameters:
(i) no. of the file.
(ii) date of opening of the file.
(iii) as many catch words as possible from out of the subject on the file.
(iv) any other parameter(s) at the discretion of the Department concerned.

46. Transfer, reconstruction and numbering of files - Whenever work is

transferred from one department/section to another, the former shall transfer all the
related records including file both current and closed to the latter. In case of transfer
of files from one Department to the other a list will be prepared and approval of the
Head of the Department taken. The department/section taking over the records will
not divide, reclassify or renumber the closed files transferred to it. In the case of
current files, the endeavour should be to close them at the earliest possible stage
and open new files/e-files according to the Department‟s/Section‟s own scheme for
dealing with the matter further.

A paper based file will be reconstructed if it is misplaced. The copies of the

various correspondences will be obtained from the corresponding department and
papers will be arranged in chronological orders and a new duplicate file prepared. A
self-contained note will be prepared based on the correspondences.

47. Movement of files –

Movement of files shall be entered in the file movement register in the format
to be decided by the Department concerned through departmental instructions. This
may also be done through the electronic based File Tracking System.

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 CHAPTER IX

RECORDS MANAGEMENT

48. Activities involved in records management -

Records management covers the activities concerning mainly recording,

retention, retrieval and disposal by transferring records to National Archives of India
(NAI). Each Department is expected to issue Departmental instructions to regulate
and review of records.

49. Stage/procedure of recording - Files shall be recorded after action on the

issues considered thereon has been completed. Recording of such files shall be
governed by the provisions in the Record Retention Schedule (RRS) and that of NAI
issued from time to time. Extract from the file, copies of important decisions,
documents, etc. as are considered useful for future reference and add them to the
standing guard file/standing note/precedent book/reference folder etc.;

50. Categorization of physical records -

Files may be recorded under any one of the categories prescribed by NAI.

51. Precedent Book - Every section shall update its precedent book for keeping
note of important rulings and decisions having a precedent value for ready reference.

52. Record Retention Schedule -

To ensure that files etc. are neither prematurely destroyed, nor kept for
periods longer than necessary, every Ministry/Department will:

(a) in respect of records connected with accounts, observe the

instructions contained in Appendix 13 to the General Financial rules as
available in the website of the Ministry of Finance, Department of
Expenditure (www.finmin.nic.in);

(b) in respect of records, relating to establishment, personnel and

housekeeping matters common to all departments, follow the „Record
Retention Schedule‟ in respect of Records Common to All
Ministries/Departments‟, which is available on Department of
Administrative Reforms and Public Grievances‟ website
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 www.darpg.nic.in, as amended from time to time.
(c) in respect of records connected with its substantive functions, issue a
departmental retention schedule prescribing the periods for which files
dealing with specified subjects shall be preserved, in consultation with
the NAI.

53. Records maintained by officers and their personal staff -

Each Department may issue Departmental instructions to regulate the review

and weeding out/deleting of paper records maintained by officers and their personal
staff. In this regard procedure laid down in CSMOP shall be followed.

54. Requisitioning of records –

(a) No recorded file shall be sent from the Sections, Departmental Record Room
or Archival records except under a requisition in form prescribed under Public
Records Act, 1993.

(b) Requisitions of files belonging to other Departments and are in the custody of
the NAI, will have to be endorsed by that Department concerned, before they are
sent by the Archives. Records, bearing security classification, are not transferred to
the Archives, as per section 10 of the Public Records Act, 1993.

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 CHAPTER X

SECURITY OF OFFICIAL INFORMATION AND DOCUMENTS

55. Communication of official information -

Every Government Servant shall, in performance of his duties in good faith,

communicate to a member of public or any organization full and accurate
information, which can be disclosed under the Right to Information Act, 2005.
(Nothing stated above shall be construed as permitting communication of classified
information in an unauthorized manner or for improper gains to a Government
Servant or others).

56. Treatment of classified papers -

(i) The provisions contained in this manual apply primarily to unclassified papers.
In handling classified papers, the official concerned will exercise special care and
follow the provisions under the Departmental Security Instructions' issued by the
Ministry of Home Affairs. Since according to these instructions classified papers
(other than confidential) are expected to be handled either by officers themselves or
in sections designated as `secret' or `top secret', it is essential that in sections not so
designated :

(a) a separate set of registers and other records (e.g., dak register, section
diary, file register, file movement register, precedent book, index slips,
various arrears and disposal statements and electronic storage
devices) are maintained by Section Officer herself/himself; and

(b) the recording of such files and their review is also undertaken by him
personally, keeping in view the provisions under the Departmental
Security Instructions.

(ii) Every classified file shall be reviewed once in five years for declassification.
A declassified file considered fit for permanent preservation will be transferred to the
National Archives.

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57. Handling of classified papers –

For the purpose of attending meetings/discussions outside office, an officer

not below the level of Section Officer / Desk Officer may carry confidential papers
/files or an officer not below the level of Under Secretary may carry Secret papers/
files, only under special circumstances with the written authorization of Joint
Secretary level officer. The authorization will be produced by the officer on demand.
Besides, provisions contained in the Manual of Departmental Security Instructions
issued by Ministry of Home Affairs shall be followed in this regard.

58. Communication of information to the press –

(i) Official information to the press and other news media, i.e. radio and
television, shall normally be communicated through the Press Information Bureau.

(ii) Only Ministers, Secretaries and other officers specifically authorized in this
behalf may give information or be accessible to the representatives of the press. Any
other official, if approached by a representative of the press, will direct them to the
Press Information Bureau or the officer authorized or shall seek the permission of the
Secretary of the department before meeting the press.

(iii) Detailed procedure in respect of matters mentioned in this para, as laid down
by the Ministry of Information and Broadcasting, shall be followed.

59. Use of restrictive classification for printed reports etc. –

(i) The restrictive classification „For official use only‟ will not be assigned to any
printed report, pamphlet or compilation, unless it contains information disclosure of
which would not be in the public interest. In doubtful cases, the test that may be
usefully applied is whether the publication, whose circulation is proposed to restrict
to official use only, is such that the Minister would be justified in refusing to lay it
before the Parliament.

(ii) No official publication (including in electronic form) shall be marked `For

official use only' except with the prior approval of the branch officer, who shall obtain
the orders of the Secretary or Minister in cases of doubt.
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 CHAPTER XI

CHECKS ON DELAYS

60. Timely Disposal of receipts and monitoring of Parliamentary

Assurances, Parliament Questions, Applications under RTI Act, MP/VIP
References, CAT/Court Cases, etc. -

Time Limits will be fixed for disposal of as many types of cases as possible
handled in the Department through departmental instructions. As a general rule, no
official shall keep a case pending for more than 7 working days unless higher limits
have been prescribed for specific types of cases through departmental instructions.
In case of a case remaining with an official for more than the stipulated time limit, an
explanation for keeping it pending shall be recorded on the note portion by him. The
system of exception reporting will be introduced to monitor the disposal of receipts.

For timely disposal and monitoring of Parliament Assurances, Parliament

Questions, Applications under RTI Act, MP/VIP References, Judicial/quasi-judicial,
etc. each department shall maintain separate records of such cases.

E-Governance methods, suiting to the requirements, should also be adopted

for monitoring and tracking of government work.

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 CHAPTER XII

MISCELLANEOUS

61. Departmental instructions –

This manual lays down the essential procedures for efficient paperwork
management, i.e. processing, handling and control of official papers, in the Central
Secretariat. To provide for sufficient flexibility, the manual suggests the issue of
departmental instructions which could supplement or vary, within broad limits, the
prescribed procedures to suit special conditions and requirements.

62. Maintenance/transfer of records in the personal offices of Ministers -

Maintenance of records in the personal offices of Ministers –

(a) The personal offices of Ministers shall maintain necessary records such
as diary, dispatch and file movement registers.
The above records will be in addition to files and folders for papers of
secret nature connected with the Cabinet meetings, etc. and for such
subjects as considered necessary.

(b) When a file or paper is given to the Minister for seeking orders or for any
other purpose, informally, the PS to Minister will be informed. PS to
Minister will on receipt of these particulars, will satisfy that such a file has
been received by the Minister and watch its further movement. The file
will be returned to the officer concerned as soon as the matter has
received the attention of the Minister and the file has been disposed of.

63. Maintenance of Websites

All Central Government Ministries/Departments/Offices/PSUs should have a

Website containing updated data/information in compliance with the Guidelines of
Government of India Websites (GIGW) available on the websites of Department of
Electronics & Information Technology (www.deity.nic.in) and of the Department of
Administrative Reforms & Public Grievances (www.darpg.nic.in). A nodal officer
should be appointed for the purpose and the Website updated regularly.

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64. Citizen’s/Client’s Charter-

Citizen‟s/Client‟s Charter are required to be maintained by all the

Ministries/Departments/Offices of the Government of India and the State/Union
Territory Governments also and prominently display it on the Website, on a Notice
Board of the Information Facilitation Centre. Citizen‟s Charter is a document which
represents a systematic effort to focus on the commitments of the Organization
towards its Citizens in respect of the Standards of services, information, choice &
consultation, non-discrimination & accessibility, redress courtesy and value for
money. It is also said as a tool for facilitating delivery of services to citizens with
specified standards, quality and time frame etc. with commitments of the
organization towards its clients.

A good Citizen‟s Charter should have the following components:-

(i) Vision and Mission Statement of the Organization.

(ii) Details of the Business transacted by the Organization.

(iii) Details of „Citizens‟ or „Clients‟

(iv) Statement of service including standards, quality, time frame etc. p54rovided
to each Citizen/Client group separately and how/where to get the services.

(v) Details of Grievance Redress Mechanism and how to access it.

(vi) Expectations from the „Citizens‟ or „Clients‟.

(vii) Additional commitments such as compensation in the event of failure of

service delivery.

The format for preparing Citizen Charter is available on the SEVOTTAM

Manual of the Department of Administrative Reforms & Public Grievances
(www.darpg.in).
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