The Kothari Committee Report on Recruitment Policy and Selection Methods interlaid recommended a major change in the examination system. They recommended a two stage examination process a preliminary examination followed by a main examination. This Committee also suggested changes in the training pattern for the civil services. The Fifth Central Pay Commission suggested that employment on contract basis should be encouraged and Government employees should have the right to retain their lien for two years in case they wish to migrate to the private sector. This is to be done through devolution of functions, funds and functionaries. This exercise has to cover the entire range of subjects as mentioned in the Eleventh Schedule of the Constitution. Most of the States have already assigned a majority of the important subjects to the Panchayats. Some of the States have even gone to the extent of devolving all the subjects through the state act itself. But, in practice such transfers have remained incomplete. Firstly, there has been lack of rational thinking as to which of the disaggregated activities, based on considerations of economies of scale, efficiency, capacity, enforceability and proximity, ought to be devolved. This has led to overlapping jurisdiction of different tiers of government. This situation seriously undermines accountability. Secondly, in many cases, while States assign responsibilities to local governments, they leave the performance of key activities and sub-activities necessary to deliver such devolved services with State line agencies. Though the problem of Indian agriculture and the causes of distress of farmers are not matters within the purview of this commission, it is clear that the difficulties of the agricultural community have the potential of engendering serious conflicts.