CSS Past Paper 2016 Public Administration Descriptive (Part 2)
CSS | Past Paper | Group 3 | 2016 | Part 2 | Descriptive
Below is the solution to PART-II (COMPULSORY) of the CSS Past Paper 2016 Public Administration Descriptive (Part 2).
Question 2
The government is seized with the objective of implementing civil service reform in order to create a structure that is more efficient and responsive. Suggest how the government should balance its strategy between the effort to improve the personnel as well as the organisation and methods of its government offices.
Introduction
Civil service is the backbone of any government. In Pakistan, civil service has often been criticized for being slow, outdated, and inefficient. To make it better, reforms are needed both in human resource (personnel) and in organizational structure and methods. A good reform should focus on both sides equally for better results.
Why Civil Service Reform is Important?
- It helps in better policy implementation.
- Increases trust of public in government.
- Makes service delivery faster and fair.
- Helps fight corruption and red tape.
- Makes government work more transparent and modern.
Balancing Reforms: Personnel vs Organisation & Methods
1. Improving Personnel (Human Resource)
- Recruitment on Merit
The government should use fair and transparent tests like FPSC to recruit qualified people. - Training and Development
Civil servants need regular training on modern governance, IT tools, ethics, and public dealing. - Performance-Based Promotion
Promotions must be based on performance, not on seniority only. A good ACR system can help. - Motivation and Morale
Giving good salary, job security, and career growth can keep officers motivated. - Ethical Standards
Officers must follow strong ethics. They should be accountable to the people and the law.
2. Improving Organisation and Methods
- Simplify Rules and Procedures
Many government processes are too slow and complex. These should be made simple and digital. - Use of E-Governance
Online systems can make work faster and reduce chances of corruption. Like online passport, tax, and complaint systems. - Clear Job Descriptions
Every officer should know his duty clearly. This avoids confusion and increases accountability. - Reduce Overlapping Departments
Many departments do the same work. These should be merged to avoid waste of time and money. - Monitoring and Evaluation
Every department should be checked regularly to ensure they are doing their job properly.
Suggestions for Balanced Strategy
- Reforms should not focus only on officers but also on the system they work in.
- Government must make a long-term reform plan instead of just temporary changes.
- Stakeholders (officers, public, experts) must be consulted during reform process.
- Political interference in bureaucracy must be stopped to keep it neutral.
- International models like UK and Singapore civil services can be studied and adapted.
Conclusion
To make civil service more efficient and responsive, the government must work on both the people (officers) and the process (system). If we train and motivate the officers but keep the old, slow system, nothing will change. And if we fix the system but don’t improve the officers, again there will be no real result. A balanced and smart strategy is the only way forward.
Question 3
It is easier to make a constitution than to run it. Discuss in the light of Politics Administration dichotomy.
Introduction
Making a constitution is like writing the rules of a game, but running a government is like playing that game daily in real life. The politics-administration dichotomy shows the difference between politicians who make policies and administrators who implement them. But in real life, these two areas often get mixed, and that’s where the problem starts. That’s why it’s easy to make a constitution but hard to run it properly.
What is Politics-Administration Dichotomy?
This concept was introduced by Woodrow Wilson, the father of Public Administration. He said that:
- Politics should focus on making laws and policies.
- Administration should only focus on implementation, without getting into politics.
According to Wilson, separating politics from administration will make government work smoother and more professional.
Why Making Constitution is Easier?
- Constitution is made once, but it’s applied daily.
- It only gives general rules, not detailed solutions for every problem.
- It is made in ideal conditions, but governance happens in real situations.
- Writing rules doesn’t need as much coordination as running a whole country.
Why Running Constitution is Difficult?
- Every policy needs proper planning, resources, and coordination to implement.
- Political interference in administration affects neutrality.
- Corruption, bureaucracy, and slow systems make things harder.
- Lack of trained officers and political instability also make it difficult.
- Administrators often face pressure from politicians.
Arguments in Favour of Politics-Administration Dichotomy
- Keeps administration neutral and professional.
- Protects civil servants from political pressure.
- Helps in clear division of duties.
- Reduces corruption and favoritism.
Arguments Against Politics-Administration Dichotomy
- In real life, it is impossible to fully separate politics from administration.
- Administrators give advice to politicians, so they are part of policy-making.
- Politicians interfere in appointments and transfers of civil servants.
- Many civil servants also take part in political lobbying.
Example: Pakistan’s Situation
In Pakistan, the constitution gives a clear system of governance, but its application faces many problems:
- Political influence on bureaucracy is strong.
- Civil servants are often used for political gains.
- Reforms are made on paper but not applied well.
- Good governance needs both good policies and strong implementation.
Conclusion
Writing a constitution is important, but it’s only the beginning. The real challenge is in applying it fairly, daily, and equally for all citizens. The politics-administration dichotomy helps us understand why the system doesn’t always work as planned. For real change, there should be balance and cooperation between political leaders and administrative officers. Only then we can truly “run” the constitution in the spirit it was made.
Question 4
Today Public Administration in Pakistan seems to be in a state of prolonged and slow moving crisis, seemingly lacking coherent paradigm and conceptual framework. Discuss this statement with arguments for and against.
Introduction
Public Administration in Pakistan has been facing serious problems for many years. The system looks confused, slow, and unable to deliver basic services properly. There is no clear model or strong framework that guides how public administration should work. Because of that, it is stuck in a long crisis. This question needs a deep look at what went wrong, and if any hope is still there.
What is Meant by a “Coherent Paradigm and Conceptual Framework”?
A coherent paradigm means a clear model or direction on how the administration should function. A conceptual framework is like a set of rules, ideas, and methods that guide the system.
In Pakistan, both seem missing. Different governments follow different styles. Civil servants are confused between old colonial methods and modern democratic expectations.
Arguments Supporting the Statement (Crisis is Real)
1. Colonial Legacy Still Exists
- Our bureaucracy is still based on British-era rules (like the 1934 Civil Servant Rules).
- Officers act like rulers, not public servants.
2. Lack of Reforms
- Reforms are made only on paper.
- No proper follow-up or implementation happens.
3. Political Interference
- Politicians interfere in transfers, promotions, and decision-making.
- This kills merit and weakens the system.
4. Corruption and Red Tape
- Bribery, slow file movements, and unnecessary procedures waste time.
- Public loses trust in government offices.
5. No Unified Vision
- Every department works separately.
- No integration or clear goals between them.
6. Poor Policy Implementation
- Even good policies fail due to weak administration.
- There is no culture of accountability.
Arguments Against the Statement (Some Improvements Exist)
1. Digital Governance Initiatives
- E-governance is slowly being introduced.
- NADRA, online tax filing, and passport services are examples.
2. Youth in Civil Service
- CSS attracts fresh and young minds every year.
- New officers bring some positive change.
3. Judicial Activism and Accountability
- Courts now question public officials more than before.
- NAB and other institutions try to improve accountability (though with mixed results).
4. Policy Think Tanks
- Some think tanks and reforms units (like PMRU) are trying to bring improvement.
Examples of the Crisis
- Failure to handle floods and disasters effectively.
- Poor health and education service delivery.
- Slow police and judicial processes.
- Unemployment and inflation issues not handled properly.
Conclusion
The statement is mostly true. Public Administration in Pakistan is in a deep, slow crisis. The system lacks direction, coordination, and modern vision. But still, some steps are being taken to improve it. What we need now is a complete reform strategy, with clear goals, strong leadership, honest officers, and public support. Only then we can build a public administration that truly serves the people.
Question 5
Governmental Budgets remain an area of general concern as well as controversy. Considerable attention is given to taxation and other sources of governmental revenues. Discuss the federal budget process in Pakistan paying special attention to its ability to find governmental activity and help regulate the economy’s business cycles.
Introduction
The budget is one of the most important tools for any government. It shows where money comes from and where it goes. In Pakistan, the federal budget is always under discussion because people want better services, less tax, and more jobs. But the government has to balance between income and spending. A good budget can also control inflation, reduce poverty, and manage the economy.
What is Federal Budget?
The federal budget is an annual financial plan. It includes:
- Government revenues (like taxes, fees, and loans)
- Government expenditures (like defence, education, health, development projects)
The budget is made for one fiscal year (from 1st July to 30th June).
Budget Process in Pakistan
The budget process in Pakistan has several steps:
1. Preparation Stage
- Ministries and departments send their demands to the Ministry of Finance.
- Planning Commission prepares the Public Sector Development Programme (PSDP).
- Revenue estimates are calculated by FBR (Federal Board of Revenue).
- Budget Strategy Paper is prepared.
2. Approval Stage
- The budget is presented in the National Assembly by the Finance Minister (usually in June).
- Members of Parliament debate on the budget.
- Demands for grants and cut motions are discussed.
- After debate, the budget is passed.
3. Execution Stage
- After approval, the government starts implementing it.
- The Accountant General manages payments and receipts.
4. Audit and Evaluation
- Auditor General of Pakistan checks if the budget money was used properly.
- Reports are submitted to Parliament.
Sources of Revenue
- Direct Taxes: Income tax, corporate tax
- Indirect Taxes: Sales tax, customs duty, excise duty
- Non-Tax Revenue: Fees, fines, profit from State Bank, etc.
- Foreign Aid and Loans: From IMF, World Bank, etc.
How Budget Helps Regulate Business Cycles?
1. During Inflation
- Government can reduce spending and increase taxes to control demand.
- This helps bring down prices.
2. During Recession
- Government can increase spending (development projects) to create jobs.
- Lower taxes can increase public purchasing power.
This is called fiscal policy, and it plays a key role in economic stability.
Issues and Controversies in Budgeting
- Dependence on indirect taxes hurts the poor more.
- Less development spending compared to defence and debt repayment.
- High budget deficit leads to more borrowing.
- Poor tax collection system – only a small portion of population pays tax.
- Political interference in allocating funds.
Suggestions for Improvement
- Make the tax system fair and widen the tax base.
- Increase investment in health, education, and job creation.
- Reduce unnecessary government spending.
- Promote local industries to increase income.
- Make budget-making process more transparent.
Conclusion
The federal budget is not just numbers – it affects the lives of every citizen. A well-planned budget can support government activities and also balance the economy during ups and downs. Pakistan still needs strong reforms in its budget process to make it more efficient, fair, and growth-oriented.
Question 6
The Supreme Court in Pakistan asserts the right of Judicial Review. Explain how in the development of Administrative Law the right of judicial review was first enforced by the U.S. Supreme Court in 1803 in the case of Marbury V. Madison.
Introduction
Judicial review is the power of courts to check whether the actions of the executive or laws made by parliament follow the constitution or not. If they don’t, the court can declare them invalid. This concept is very important in modern democratic states, and it started from a historical case in the United States – Marbury v. Madison (1803).
This case became the base for the development of administrative law and the power of judicial review all over the world, including in Pakistan.
What is Judicial Review?
Judicial review means the power of the judiciary (especially the Supreme Court) to review:
- Laws made by parliament
- Actions of executive and administrative authorities
- Policies or orders that violate fundamental rights or constitution
Background of Marbury v. Madison Case (1803)
- In 1801, U.S. President John Adams appointed William Marbury as a justice of the peace.
- When Thomas Jefferson became president, he told James Madison (Secretary of State) not to deliver the official appointment letter to Marbury.
- Marbury filed a case directly in the Supreme Court, asking it to force Madison to deliver the letter.
What Did the U.S. Supreme Court Decide?
- Chief Justice John Marshall gave the verdict.
- He said that Marbury had a right to the appointment.
- But the part of the Judiciary Act (1789) that gave the Supreme Court power to issue such orders was unconstitutional.
- So, the Supreme Court refused to give the order – but at the same time, it declared that it has the power of judicial review.
Why This Case Was So Important?
- First time in history that a court declared a law passed by parliament as unconstitutional.
- It gave courts the power to check the constitutionality of laws and executive actions.
- Became the foundation of administrative law in democratic countries.
Judicial Review in Pakistan
Pakistan’s Constitution also gives power of judicial review to courts, especially:
- Article 199 – High Courts can review the actions of government officers and departments.
- Article 184(3) – Supreme Court can take suo motu action in matters of public interest.
- Courts in Pakistan can declare laws or actions invalid if they go against the Constitution.
Examples in Pakistan
- National Reconciliation Ordinance (NRO) declared illegal by Supreme Court.
- Suo motu actions taken on environmental issues, human rights, corruption, etc.
- Judiciary reviewed many administrative decisions taken by public officials.
Importance of Judicial Review in Administrative Law
- Ensures that public officials follow the law.
- Protects the rights of citizens.
- Prevents abuse of power by government departments.
- Builds public trust in justice system.
- Keeps a check on both Parliament and Executive.
Conclusion
The concept of judicial review started from the U.S. case Marbury v. Madison (1803) and has become a vital part of administrative law. In Pakistan too, the judiciary uses this power to control illegal actions of administration and to protect the Constitution. This power is important for good governance, accountability, and public confidence in the legal system.
Question 7
Public Administration in Pakistan has penetrated the economy and society to such an extent that it brings into question how well public policies work and how they can be implemented better. In your answer focus on the following two major ways of judging Policy Implementations.
a. Policy Analysis the extent to which a policy achieves its objectives
b. Policy evaluation – whether implementation maximizes appropriate values.
Introduction
Public administration in Pakistan plays a very big role in both the economy and society. It affects almost every part of life like education, health, transport, policing, and business. But even after many policies are made, the results are not always what people expect. That’s why it’s important to judge whether public policies are working properly or not.
There are two major ways to do this – policy analysis and policy evaluation.
What is Policy Implementation?
Policy implementation means putting a government policy or law into action. It is the stage after a law is passed or a decision is taken. This stage involves public administrators, civil servants, and sometimes private partners.
But many times, good policies fail because they are not implemented properly. So, we need tools to check their success or failure.
(a) Policy Analysis – Achieving Objectives
Policy analysis looks at whether a policy is meeting its original goals or not.
Key Points
- It is result-based: What was the policy trying to achieve?
- Measures outputs and outcomes (like number of schools built, jobs created, etc.)
- Uses data, surveys, reports to check progress
Example in Pakistan
- Ehsaas Programme aimed to reduce poverty.
- Through policy analysis, we can check: How many families got help? Did their condition improve?
Why It’s Important?
- Helps to know if public money is being used properly.
- Identifies problems in implementation.
- Supports better planning in future.
(b) Policy Evaluation – Maximizing Values
Policy evaluation is deeper than analysis. It checks if the policy is fair, just, and beneficial for society – not just in numbers, but in values.
Key Points
- Focuses on values like equality, justice, efficiency, transparency.
- Asks “Was the implementation ethical and inclusive?”
- Looks at long-term impact on society
Example in Pakistan
- A policy may build many hospitals (goal achieved), but only in urban areas.
- Evaluation asks: Did rural areas benefit too? Was access fair?
Why It’s Important?
- Encourages people-friendly and value-based governance.
- Checks if poor, women, and minorities are also benefiting.
- Builds trust in public institutions.
Problems in Policy Implementation in Pakistan
- Political interference in administration
- Corruption and misuse of funds
- Lack of coordination between departments
- Weak monitoring and data collection
- No culture of feedback from public
How to Improve Policy Implementation?
- Make policies with public participation
- Use digital tools for tracking progress
- Train civil servants in modern methods
- Ensure transparency and accountability
- Create strong evaluation frameworks with independent experts
Conclusion
In Pakistan, making policies is not the real challenge — implementing them successfully is. That’s why both policy analysis and policy evaluation are very important. They help in checking whether the policy achieved its purpose and whether it delivered fairness and benefits to the society. If used properly, these tools can improve governance and bring real change in people’s lives.
Question 8
Write a substantive note on any TWO of the following:
a. Incremental budgeting
b. Planning Programming Budgeting system
c. Dissensus Budgeting
a. Incremental Budgeting
Introduction
Incremental budgeting is a traditional and simple method used in many public offices. In this method, the new budget is prepared by making small changes (increments) to the previous year’s budget. Most of the time, departments just add a small percentage increase without deeply reviewing old expenses.
Key Features
- Focuses on past year’s budget
- Only minor increases or cuts are made
- No full re-evaluation of all programs
- Easy and fast to prepare
- Follows a “business-as-usual” approach
Advantages
- Simple and easy to understand
- Saves time in preparation
- Brings stability in budgeting
- Less conflict among departments
Disadvantages
- Encourages wasteful spending (no deep review)
- Doesn’t focus on performance or results
- New priorities may get ignored
- No motivation for innovation
Example in Pakistan
Most Pakistani government departments use incremental budgeting. For example, a school department may just add 10% more to last year’s budget without reviewing if the previous spending improved education quality.
Conclusion
Incremental budgeting is easy and safe but not suitable for modern challenges where results and accountability are important. It works better when the environment is stable, but not when reforms and performance are needed.
b. Planning Programming Budgeting System
Introduction
PPBS is a modern budgeting system that links budgeting with planning and programming. It focuses on long-term goals and makes sure that the money is spent in a way that supports national development.
Key Features
- Combines planning, programming, and budgeting
- Focus on objectives and outcomes
- Uses cost-benefit analysis to choose programs
- Based on rational decision-making
- Long-term view, not just one-year plan
Steps in PPBS
- Set goals and objectives
- Identify programs to achieve goals
- Analyze cost and benefits
- Allocate resources accordingly
- Review and evaluate performance
Advantages
- Helps in better planning and coordination
- Improves resource allocation
- Encourages accountability and results
- Useful for development sectors like health, education
Disadvantages
- Complex and needs technical skills
- Hard to implement in developing countries
- Requires strong data and planning institutions
- Time-consuming
Example in Pakistan
Though PPBS is recommended by experts, it is not fully applied in Pakistan. Some ministries like Planning Division use parts of it while preparing development budgets (PSDP).
Conclusion
PPBS is a powerful system for smart governance, but it needs capacity building and strong coordination between planning and finance departments to work in countries like Pakistan.
c. Dissensus Budgeting
Introduction
Dissensus budgeting is a type of budgeting where conflict, disagreement, and political debate are seen as normal and even useful during the budget-making process. It focuses on open discussion and clash of opinions before final decisions are made.
Key Features
- Encourages open disagreement and debate
- Assumes that conflict leads to better outcomes
- Based on pluralism (many voices in democracy)
- Mostly found in democratic parliaments
- Budget is shaped through negotiations and compromise
Advantages
- Reflects true democratic values
- Brings different perspectives and better choices
- Ensures transparency in decision-making
- Final budget has more public support
Disadvantages
- Process becomes slow and chaotic
- Can be used for political point-scoring
- May result in unbalanced budget due to compromises
- Risk of ignoring expert advice
Example in Pakistan
In Pakistan, during National Assembly budget sessions, opposition parties often challenge and criticize the budget proposals. This is a form of dissensus budgeting.
Conclusion
Dissensus budgeting may look messy, but it is an important part of democratic budgeting. It ensures that different views are heard, and the budget is not made secretly or by just a few powerful people.
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