Civil Service Values: Nolan's Seven Principles, 2nd ARC "Ethics in Governance" and Constitutional Values
RAS Mains, Paper II, Unit I, point 3 (private and public ethics, integrity, impartiality, non-partisanship, transparency, bureaucracy) gathered together; the real 2021 question asks for exactly this summary
- Updated for the Jan 2026 syllabus
- Read time: about 12 minutes
Exam weight (our count from the real 2018-2024 papers)
1 direct question: 2021 Part B Q10 ("What are the core ethical values required for excellence in civil service?", 5 marks). 2024 Q6 (integrity) is one value on the same list. This is our count, not RPSC information.
30-second summary
Remember
- Civil service values come from three sources: an international benchmark (the Nolan principles, 1995), Indian codes and commissions (Conduct Rules, 2nd ARC Fourth Report, January 2007) and constitutional values.
- Nolan's seven: selflessness, integrity, objectivity, accountability, openness, honesty, leadership.
- The 2nd ARC said India's Conduct Rules list prohibitions but are not a full code of ethics; it recommended Public Service Values fixed by law.
- Constitutional base: justice, liberty, equality and fraternity in the Preamble; Conduct Rule 3(1) asks for commitment to the supremacy of the Constitution.
- Excellence goes beyond compliance: rules are the floor, values are the aim.
Part A box (each line 15 words or fewer)
Remember
- Question: State the seven Nolan principles.
- Answer: Selflessness, integrity, objectivity, accountability, openness, honesty and leadership. (8 words)
- Ready line 2: The 2nd ARC wanted Public Service Values defined by law, with breaches treated as misconduct. (15 words)
- Ready line 3: Constitutional values include justice, liberty, equality and fraternity, in the Preamble. (11 words)
1. Source one: the Nolan principles
(United Kingdom)
The British Prime Minister set up the Committee on Standards in Public Life (the Nolan Committee) in October 1994; its first report came in May 1995 (per the 2nd ARC report), and the seven principles are dated 31 May 1995 (gov.uk).
The text below is the current gov.uk wording. The 1995 original differed in places: "Honesty" was the duty to declare private interests (today that sits under "Integrity", and "Honesty" simply means being truthful); "Objectivity" in 1995 centred on making choices on merit; and "Openness" spoke of being "as open as possible". The seven names are the same. If you quote the wording in an exam, say which year it is from. (The 1995 text follows the summary of the Nolan Committee's first report.)
| Principle | Sense (from the gov.uk text) |
|---|---|
| Selflessness | Act solely in the public interest |
| Integrity | Take on no obligation to those who might improperly influence; do not decide for gain to self, family or friends; declare and resolve interests |
| Objectivity | Decide impartially, fairly and on merit, with the best evidence, without discrimination or bias |
| Accountability | Answerable to the public; submit to the scrutiny needed |
| Openness | Decide openly and transparently; withhold information only for clear and lawful reasons |
| Honesty | Be truthful |
| Leadership | Show these principles in one's own behaviour, treat others with respect, and challenge poor behaviour |
A speech by the 2nd ARC Chairman, reproduced in the report's annexure, observes that openness and accountability are procedural and procedures can be devised for them; objectivity and leadership are performance-related; the biggest challenge is to make public servants act with integrity, honesty and selflessness, which are purely ethical attributes and hard to turn into measurable standards.
2. Source two: Indian codes and the 2nd ARC
Central Civil Services (Conduct) Rules, 1964, Rule 3(1) (the text as amended up to 31.12.2014): absolute integrity; devotion to duty; nothing unbecoming; commitment to the Constitution and democratic values; high ethical standards and honesty; political neutrality; merit, fairness and impartiality; accountability and transparency; responsiveness to the public, particularly the weaker sections; courtesy; decisions solely in the public interest with efficient use of resources; declaring private interests; avoiding obligations; no misuse of position. (Check the present text with DoPT.)
All India Services (Conduct) Rules, 1968: Rules 3(1) and 3(1A) (the August 2014 amendment) carry high ethical standards, integrity, honesty, political neutrality, merit-fairness-impartiality, accountability and transparency, responsiveness and courtesy.
2nd ARC Fourth Report, "Ethics in Governance" (January 2007, Chairman M. Veerappa Moily), Section 2.7, "Code of Ethics for Civil Servants":
The Conduct Rules mainly catalogue activities deemed undesirable; India has no "Code of Ethics" for civil servants (para 2.7.5). Safeguards against conflict of interest are especially needed.
The draft Public Services Bill, 2006 proposed ten values: (1) allegiance to the ideals in the Preamble; (2) apolitical functioning; (3) good governance for the people's betterment as the primary goal; (4) a duty to act objectively and impartially; (5) accountability and transparency in decisions; (6) the highest ethical standards; (7) merit in selection, consistent with the nation's diversity; (8) economy and avoidance of wasteful expenditure; (9) a healthy and congenial work environment; (10) communication, consultation and cooperation.
Recommendation (para 2.7.12): (a) define "Public Service Values" and apply them to all tiers of government and parastatal bodies, with any transgression treated as misconduct inviting punishment; (b) cover conflict of interest fully in the Code of Ethics and the Code of Conduct, and do not nominate serving officials to the boards of public undertakings (except non-profit public institutions and advisory bodies). (Read in the report text.)
Para 2.7.2: values that subordinate the self to a larger societal good and engender empathy for those in need are not skills easily imbibed after joining the civil services; the right ethos takes generations to evolve.
3. Source three: constitutional values
Preamble: justice (social, economic, political), liberty, equality and fraternity, assuring the dignity of the individual and the unity and integrity of the nation (Constitution text).
Fundamental Rights (Part III) and equality before law (Articles 14, 16): the roots of impartiality and non-discrimination (page 3.3).
Fundamental Duties (Article 51A) and constitutional morality (a Paper III theme): the spirit behind the rules.
Conduct Rule 3(1)(iv): commitment to the supremacy of the Constitution and democratic values; and the first value in the draft Bill is allegiance to the Preamble's ideals.
4. A values list for "excellence"
(our synthesis for the 2021 question; sources for each point are above)
| Value | Source |
|---|---|
| Integrity and honesty | Nolan 2 and 6; Conduct Rule 3(1)(i), (vi), (xiii) to (xv) |
| Impartiality and objectivity | Nolan 3; Rule 3(1)(viii); ARC value 4 |
| Non-partisanship and political neutrality | Rule 3(1)(vii), Rule 5; ARC value 2 |
| Accountability and transparency | Nolan 4 and 5; Rule 3(1)(ix); ARC value 5 |
| Sensitivity to the public, priority to the weak | Rule 3(1)(x); ARC value 3; the Constitution's justice |
| Selflessness, public interest | Nolan 1; Rule 3(1)(xii) |
| Devotion to duty, courage, leadership | Rule 3(1)(ii); Nolan 7 |
| Allegiance to the Constitution | Rule 3(1)(iv); ARC value 1 |
| Efficiency and economy | Rule 3(1)(xii); ARC value 8 |
5. Rules versus values
Rules say what is forbidden; values say what should be. Excellence goes beyond compliance: doing right even when the rule is silent. Yet values cannot be left to the individual alone; a code of ethics, training, leaders who set the example and protection for the honest (page 3.2) must go with them.
The Nolan values and the documented examples of this unit:
| Value | Example | Page |
|---|---|---|
| Integrity | Satyendra Dubey, November 2003; PIDPI Resolution, April 2004 | 3.2 |
| Objectivity | Kraipak (1969): a selection board member was also a candidate; selections quashed | 3.3 |
| Accountability and leadership | Lal Bahadur Shastri, 1956: offered to resign after rail accidents; accepted the second time (7 December 1956) | 3.2 |
| Openness | MKSS (from 1990), Rajasthan RTI 2000, RTI 2005, Jan Soochna Portal 2019 | 3.5 |
| Honesty (a negative example) | Profumo, 1963: resigned after misleading Parliament | 3.1 |
| Neutrality | The directions in Prakash Singh (2006) and Subramanian (2013) | 3.4 |
How to use in an answer
choose five or six values, give each a source (Nolan, Conduct Rules, ARC) and a brief example; end with "values plus institutions".
Thinkers and quotes box
| Name | Idea | Usable line |
|---|---|---|
| Nolan Committee | Leadership | "Holders of public office should exhibit these principles in their own behaviour and treat others with respect." (current gov.uk wording) |
| 2nd ARC (2007), para 2.7.2 | Values are not quickly learnt | "...not skills which could be easily imbibed after joining the civil services." (report text; the context: values of subordinating the self to societal good and empathy) |
| Mahatma Gandhi (published by) | The seven social sins | "Politics without principle", "Knowledge without character", "Commerce without morality" (Young India, 22 October 1925, as quoted in Box 2.8 of the 2nd ARC Fourth Report) |
Diagram: concentric circles
Preamble of the Constitution: justice, liberty, equality, fraternity
Inner circle
Nolan's seven: selflessness, integrity, objectivity, accountability, openness, honesty, leadership
Middle circle
Indian codes: Conduct Rules (CCS 1964, AIS 1968), draft Public Service Values (ARC 2007)
Outer circle
Code of ethics, training, leaders' example, protection for the honest
Arrows from outside
How the concept was asked before: the values-list question came once (2021); integrity-based question in 2024. Both Part B, 5 marks.
Common mistakes
Remember
- Listing five or six values without any source; add the Nolan, Conduct Rules or ARC name.
- Calling Nolan an Indian code; it is a British committee, and the 2nd ARC referred to it.
- Giving only a list and leaving out "rules are the floor, values the aim".
Self-check (5 questions)
Remember
- Write all seven Nolan principles in order.
- What gap did the 2nd ARC find in the Conduct Rules?
- Name any five of the ten values in the draft Public Services Bill, 2006.
- What does Conduct Rule 3(1)(iv) require?
- Compose in your own words a 50-word answer to the 2021 question.
Mini case study
Illustrative exampleHypothetical case (काल्पनिक केस)
Kavita is the Chief Executive Officer of a Zila Parishad. A wall of a school building built under a government scheme collapses in the first monsoon. Luckily no one is hurt. During construction the junior engineer had given a written report on poor material, but Kavita's own signature is on the inspection before the final payment. The contractor is a relative of a local leader of the ruling party. The leader says, "Keep it quiet until the elections, and put the blame on the engineer." Meanwhile a journalist and an RTI applicant are asking for the report.
- Stakeholders
- Kavita, the junior engineer, the contractor and the local leader, the school's children and parents, the department, the journalist and RTI applicant, the state government.
- Issue and clashing values
- openness, accountability, honesty (truthfulness) and objectivity against political pressure and the temptation to hide her own lapse; it is also a test of leadership.
- Three options
- (a) Bury the matter and withhold the report. Pro: quick peace, the leader is pleased. Con: children stay at risk, honesty and openness both break, and exposure later will cost far more. (b) Put all the blame on the junior engineer and suspend him. Pro: quick, visible "action". Con: the person who warned is punished without a hearing; honest reporting is discouraged; she dodges her own accountability. (c) Vacate the building at once and hold back pending payments; order an independent technical inquiry; publish the inquiry report and give the journalist and RTI applicant the facts on time; admit the lapse in her own inspection and inform her superior in writing; act by the rules, after hearing, against whoever the inquiry finds at fault (the engineer too, if so) and blacklist the contractor. Pro: children's safety, truth, transparency and fairness. Con: political displeasure, damage to her image, extra work.
- Best option and supporting value
- option (c). Nolan principles: honesty (being truthful), openness, accountability (her own lapse included), objectivity (decide on evidence) and leadership (challenging poor behaviour).
Lesson
Action: Short term: vacate the building, hold payments, independent inquiry, publish the report, written note to the superior, tell the leader politely that the inquiry will follow the rules. Long term: declaration of interests in contractor selection, third-party inspection at every stage of construction, proactive disclosure of construction-quality reports, and protection for staff who give warnings. Practice: in the cases on pages 3.1 to 3.5 and 3.7 as well, ask: which two values clash, and which Nolan principle supports the solution?
Practice Questions
Practice questionabout 50 words
What are the core ethical values required for excellence in civil service?
Model answer
Excellent civil service needs integrity, impartiality, political neutrality, accountability and transparency, sensitivity to the public and allegiance to the Constitution. The Nolan principles, Conduct Rule 3(1) and the 2nd ARC's draft Public Service Values rest on these. Rules are only the floor; excellence adds devotion to duty and leadership by example.
Practice questionabout 100 words
Discuss the values of civil service in the light of the Nolan principles, the 2nd ARC's recommendations and constitutional values. Are the Conduct Rules enough?
Model answer
The Nolan principles (1995) set a standard from selflessness to leadership. India's Conduct Rule 3(1) already includes many of them, such as impartiality, transparency and declaring interests, yet the 2nd ARC (2007) found that these are lists of prohibitions, not a full code of ethics. It recommended Public Service Values fixed by law and conflict-of-interest rules. The constitutional base is the Preamble's justice, liberty, equality and fraternity, seen in equal treatment under Articles 14 and 16. The rules alone are therefore not enough: a code, training, leaders who set the example and protection for the honest officer must support them.
Real PYQs
2021Paper II, Part B5 marks
What are the core ethical values required for excellence in civil service? Answer line: a short list of 5 to 6 values → a source for each → one line on rules versus values → conclusion.
2024Closely relatedPaper II, Part B5 marks
Does administrative objectivity necessarily presuppose administrative integrity? (page 3.2).
How to Write This Answer
Introduction
three sources
Body
- Nolan, Conduct Rules, ARC, Constitution
Conclusion
rules are the floor, values the aim, institutions support
Value addition
- ARC 2.7.2, Gandhi's social sins
One-page Revision
- Three sources: Nolan 1995
- Indian codes and ARC 2007
- the Constitution
- Nolan's seven: selflessness, integrity, objectivity, accountability, openness, honesty, leadership
- 2nd ARC Fourth Report Jan 2007 (Chairman Moily): 2.7.5 (no code of ethics), 2.7.12 (values by law, misconduct, conflict of interest, PSU boards)
- draft Bill 2006's ten values
- CCS Rule 3(1) (amended to 2014), AIS 3(1A) (2014)
- Preamble: justice, liberty, equality, fraternity
- Arts 14, 16, 51A
- the seven social sins published by Gandhi (Young India 1925)
- 2021 Q10: 5 or 6 values + sources + "rules are the floor, values the aim"
- Examples: Dubey 2003, Kraipak 1969, Shastri 1956, MKSS 1990, Profumo 1963.