CSS Past Paper 2019 Public Administration Descriptive

CSS | Past Paper | Group 3 | 2019 | Part 2 | Descriptive

Below is the solution to PART-II (COMPULSORY) of the CSS Past Paper 2019 Public Administration Descriptive (Part 2).

Question 2

Define Public Administration. Discuss the relationship between Politics and Public Administration.

Introduction

Public Administration is a very important part of every government. It is about how policies are made and then how they are implemented. It helps to run the daily work of the government and provides services to the people. Without Public Administration, no government can function properly.

Definition of Public Administration

Public Administration can be defined as the management of public programs and the behavior of officials who are responsible for implementing public policies. According to Woodrow Wilson, who is also called the father of Public Administration,

“Public Administration is the detailed and systematic execution of public law. Every particular application of law is an act of administration”.

In simple words, Public Administration means doing the work of the government in a proper and organized way.

Importance of Public Administration

It helps in policy implementation
It manages public services like education, health, etc.
It maintains law and order
It plays role in development of economy and society

Relationship between Politics and Public Administration

The relationship between politics and public administration is both interconnected and debatable. Some scholars say both should be separate, while others say they are linked together.

1. Politics-Administration Dichotomy

This idea was first introduced by Woodrow Wilson. He believed that politics and administration should be separate. Politicians should make the laws and policies, and administrators should implement them without getting involved in political matters.

Pros of this view:

Keeps bureaucracy neutral
Avoids political pressure
Focus remains on efficiency

Criticism:

In real life, it is not possible to completely separate them.
Administrators also give advice in policy making.

2. Modern View: Interrelationship

Modern scholars say politics and public administration are closely related. Administrators not only implement policies but also give input during the making of policies. Also, politicians depend on bureaucrats for expert knowledge.

Example: In Pakistan, when new policies are made (like education reforms), bureaucrats give reports and advice to ministers. So, both works together.

Example from Pakistan

In Pakistan, many civil servants work closely with politicians in ministries. For example, in planning and development, bureaucracy helps the government make long-term policies. But sometimes political interference creates problems in fair administration.

Conclusion

Public Administration plays a very crucial role in running the government. Its relation with politics is both necessary and sensitive. A balance is needed between both sides. Politicians should make the vision, and administrators should turn that vision into action. If both work in harmony, it can lead to good governance and better service delivery to the people.

Question 3

Is Public interest only a simple summation of private interest? Argue in the light of the theory of John Rawls.

Introduction

The concept of public interest is very important in public administration. Many people think that public interest means the total of everyone’s private interests. But philosophers like John Rawls gave a different and deeper meaning. His theory tells us that public interest is not just about what most people want, but what is fair and just for all, especially the weakest in society.

What is Public Interest?

Public interest means what is good for the whole society. It includes health, safety, education, justice, and other basic rights. It is not just about what rich or powerful people want, but about what benefits all people, including the poor and minorities.

Private Interest vs Public Interest

Private interest is what a person wants for himself, like more money or personal freedom.
Public interest is what society needs as a whole, like clean air, fair laws, and equal rights.

Some say that if everyone gets what they want privately, then public interest will automatically be achieved. But this is not always true. Sometimes people’s private interests’ conflict with others’ rights. So, just adding all private interests cannot always bring fairness.

John Rawls’ Theory: A Fair System

John Rawls, in his famous book “A Theory of Justice”, gave a better way to understand public interest. He introduced two main ideas:

1. Original Position & Veil of Ignorance

Rawls said imagine if people were behind a “veil of ignorance,” where they don’t know their future status in society — rich or poor, strong or weak. In this position, people would choose rules that are fair to everyone because they could end up in any group.

2. Two Principles of Justice

Equal liberty – Everyone should have equal rights and freedom.
Difference principle – Any inequality is only okay if it helps the least advantaged people.

So according to Rawls, public interest is not just what the majority wants. It must be fair and protect the weakest in society.

Application in Real Life

Let’s take an example:
If rich people want to pay less tax (private interest), but that reduces funds for schools or hospitals for the poor, then it is not in public interest. Rawls would say, this is unfair because it harms the weakest group.

Example from Pakistan

In Pakistan, sometimes policies benefit elite groups, like big tax relaxations for businesses, but basic services for common people are ignored. This shows that just following private interests of powerful groups does not serve public interest.

According to Rawls’ view, public policies must be judged by how much they help the poor, not just how many people support them.

Criticism of Rawls

Some say Rawls’ theory is too ideal and hard to apply in real politics.
Others say people don’t always think fairly, even behind the “veil”.
But still, it gives a strong moral base for making just and fair policies.

Conclusion

Public interest is not just the sum of private interests. Sometimes private interests clash with what is fair for society. John Rawls gave a clear idea that real public interest should be based on justice, equality, and fairness. His theory tells us to always think about the weakest people while making decisions. So, public administration should focus on justice, not just numbers or majority desires.

Question 4

Explain the similarities and differences between Hersey and Blanchard’s Situational theory and House’s Path Goal theory. Which one do you think is appropriate for contemporary situation of Pakistan and why?

Introduction

Leadership is a key part of Public Administration. Different theories help us understand how leaders should behave in different situations. Two famous theories are Hersey and Blanchard’s Situational Theory and House’s Path-Goal Theory. Both focus on adjusting leadership style based on the situation, but they have different focus areas.

Hersey and Blanchard’s Situational Leadership Theory

This theory says that the best leadership style depends on the maturity level of followers. Leaders should adjust their style based on how ready the followers are to take responsibility.

Four Leadership Styles

Telling – High task, low relationship (for low maturity followers)
Selling – High task, high relationship (some readiness)
Participating – Low task, high relationship (moderate readiness)
Delegating – Low task, low relationship (high maturity followers)

This theory believes leadership is flexible, and there is no one best style. It depends on the followers’ ability and willingness.

House’s Path-Goal Theory

This theory focuses on how leaders can motivate followers to achieve goals. Leader’s job is to clear the path so employees can reach their goals and remove obstacles.

Four Types of Leadership Styles

Directive – Clear instructions and expectations
Supportive – Friendly and approachable behavior
Participative – Involving followers in decisions
Achievement-oriented – Setting challenging goals

Leader must understand the environment, task nature, and the needs of subordinates, and change their style accordingly.

Similarities between Both Theories

Both are contingency theories – leadership depends on the situation.
Both focus on flexibility in leadership.
Emphasis is on followers’ needs and behavior.
Both give multiple styles leaders can choose from.
Goal is to improve performance and satisfaction.

Differences between Both Theories

Feature	Situational Theory	Path-Goal Theory
Main Focus	Follower maturity	Motivation and goal achievement
Followers’ role	Based on readiness	Based on expectations and task structure
Leader’s task	Match style to maturity	Clear path, remove obstacles
Outcome	Performance depends on leadership match	Performance depends on motivation support

Which Theory Fits Pakistan’s Contemporary Situation?

In my opinion, Path-Goal Theory is more suitable for Pakistan’s current public sector.

Reasons

Motivation is low among government employees due to lack of rewards and unclear goals.
Bureaucratic red tape creates many obstacles, and leaders must help clear them.
Directive leadership is still needed in many departments due to low skill levels.
In some modern institutions, participative and achievement-oriented leadership can improve innovation.

Also, in many public organizations, employees wait for orders from the top. So leaders must play an active role in guidance, motivation, and support.

Conclusion

Both theories give useful guidance for effective leadership. Situational theory is good for training and development, but Path-Goal Theory gives more tools for practical motivation, especially in countries like Pakistan where leadership challenges are big. A mix of directive and supportive styles under this theory can help improve public sector performance and citizen service delivery.

Question 5

Differentiate between Development administration and Administrative development. Critically analyze the role of bureaucracy in Development administration in developing countries including Pakistan.

Introduction

In public administration, development is a key concern, especially for developing countries like Pakistan. Two concepts often discussed are Development Administration and Administrative Development. Although they sound similar, their focus is different. Also, bureaucracy plays a major role in both, especially in implementing development programs and reforms.

1. Development Administration

Development Administration refers to administration that is focused on achieving socio-economic development goals. It is common in developing countries where governments aim to bring quick changes in education, health, infrastructure, and poverty reduction.

Key Features

Goal-oriented (focus on development targets)
Dynamic and change-focused
Involves planning, policy-making, and implementation
Works in areas like agriculture, education, industrialization, etc.

2. Administrative Development

Administrative Development means improving the capacity, skills, and efficiency of the administration itself. It focuses on building strong institutions, better rules, training of civil servants, and creating modern systems.

Key Features

Focus on reforming institutions
Building better human resources
Improving structure, transparency, and accountability
Long-term changes in administrative culture

Difference between Development Administration and Administrative Development

Point	Development Administration	Administrative Development
Focus	Economic and social development	Internal improvement of administration
Goal	Change in society	Change in administration
Time	Short/medium term programs	Long-term reforms
Example	Poverty reduction project	Civil service reform

Role of Bureaucracy in Development Administration

In developing countries like Pakistan, bureaucracy is the backbone of development administration. It manages projects, runs programs, and ensures that policies are turned into real actions.

Positive Role

Policy implementation – Bureaucrats run development projects at ground level.
Planning – They are involved in making development plans at national and provincial levels.
Stability – In political instability, bureaucracy keeps the system running.
Service delivery – It delivers health, education, and basic services to the people.

Examples in Pakistan

Benazir Income Support Program (BISP) – bureaucrats help manage it.
Ehsaas Program – requires strong administrative machinery for outreach.
Education and health departments are fully run by bureaucratic structures.

Challenges in Bureaucratic Role

But there are also problems that limit the success of development administration in Pakistan:

Red tape and slow processes
Corruption and lack of transparency
Political interference
Lack of training and modernization
Low motivation and weak accountability

These challenges make it hard for bureaucracy to deliver results effectively. Often, development funds are not used properly or projects are delayed.

How to Improve Bureaucratic Role?

Civil service reforms to make recruitment and promotions based on merit.
Training programs to improve skills for development planning.
E-governance to increase transparency and speed.
Reduce political pressure and give more autonomy to public officials.
Performance-based evaluation of officers.

Conclusion

Development Administration and Administrative Development are both important for progress. One focuses on development goals and the other on building a better system. In both, bureaucracy has a central role, especially in countries like Pakistan. But it needs serious reforms to become efficient, transparent, and citizen-friendly. Only then can it truly help in national development.

Question 6

Explain dispute settlement process. Do you think that the major methods of redressal of public grievances in Pakistan are adequate? Argue your case.

Introduction

Disputes and grievances are common in every society, especially when citizens feel unfairly treated by government departments or officials. The dispute settlement process and grievance redressal system are important to make sure people get justice and trust the administration. If these systems are strong, then good governance becomes possible.

What is Dispute Settlement Process?

Dispute settlement is the process of resolving conflicts between two parties — it can be citizen vs government, employee vs employer, or even between two public bodies. It ensures justice is done in a peaceful and lawful way.

Main Methods of Dispute Settlement

Judicial Process
- Through courts (civil, criminal, administrative courts)
- Long and expensive, but legally binding decisions
Administrative Tribunals
- Special tribunals handle service matters, tax issues, etc.
- Faster than regular courts
Ombudsman (Wafaqi Mohtasib)
- Handles complaints against government departments
- Free of cost, citizen-friendly
- Gives recommendations to fix injustice
Departmental Mechanisms
- Internal complaint cells or inquiry committees
- Useful for quick, small-level complaints
Alternative Dispute Resolution (ADR)
- Includes mediation, arbitration, negotiations
- Informal and less expensive

Public Grievance Redressal in Pakistan

Existing Mechanisms

Wafaqi Mohtasib (Federal Ombudsman) – for general public complaints
Provincial Ombudsmen – same function at provincial level
Federal Tax Ombudsman, Banking Mohtasib – for specific sectors
Human Rights Commission, Online complaint portals (like PM portal)
Citizen Feedback Mechanisms in some provinces

Are These Methods Adequate?

In theory, these methods look good, but in practice, there are serious gaps.

Positive Aspects

Some platforms are free and accessible, like the Ombudsman
Online portals made it easier to file complaints
Citizens now have more awareness of their rights

Problems and Gaps

Lack of implementation – many decisions of Ombudsman are ignored by departments
Delays – slow process reduces public trust
Political interference in some complaints
Low awareness among rural population
Lack of accountability – officers are not punished for repeated negligence
Corruption in lower-level offices makes process unfair

Examples from Pakistan

PM Citizen Portal was launched to improve grievance redressal, but many complaints remain unresolved or are closed without proper action.
In service tribunals, cases take months or years.
Wafaqi Mohtasib gives good decisions, but departments often delay action.

Suggestions to Improve the System

Strict implementation of Ombudsman decisions
Performance audit of complaint-handling bodies
Public awareness campaigns
Digital grievance tracking with regular updates
Independent monitoring cells for accountability
Training of officials in complaint handling and behavior

Conclusion

Dispute settlement and grievance redressal are essential for trust between citizens and government. Pakistan has made progress, but the system is still not fully effective. People need fast, fair, and transparent solutions. Without this, public frustration increases, and good governance suffers. It is time to strengthen these systems with real reforms, not just paper promises.

Question 7

Discuss in detail the budgeting process of Pakistan. Do you satisfied with the process? Discuss with practical examples.

Introduction

The budget is one of the most important tools of public administration. It shows the income and spending plan of the government. In Pakistan, the budgeting process is done every year and is supposed to reflect the priorities of the state. However, many people believe that the process is not transparent or effective.

What is Budgeting?

Budgeting is the process by which the government plans how to collect revenues (like taxes) and how to spend them (on health, education, defence, etc.). It also includes planning for development projects, debt payments, and subsidies.

Stages of Budgeting Process in Pakistan

1. Budget Preparation

Starts around November/December in Ministries.
Ministries and departments send their budget estimates to Ministry of Finance.
Ministry of Planning gives the development budget (PSDP) proposals.
Final proposals are reviewed by the Budget Wing of the Finance Division.

2. Budget Approval

Federal Budget is presented in June in the National Assembly by the finance minister.
Debates are held in the assembly.
The budget is passed as the Finance Act after voting.
The Constitution requires the budget to be passed before 30th June.

3. Budget Execution

After approval, funds are released to ministries and departments.
Controller General of Accounts (CGA) manages accounts and spending.
Departments must follow financial rules while using money.

4. Monitoring and Auditing

Internal controls within departments monitor spending.
Auditor General of Pakistan (AGP) conducts audits.
Reports are submitted to the Public Accounts Committee (PAC) in Parliament.

Types of Budgets in Pakistan

Current Budget – for salaries, pensions, running expenses
Development Budget – for new projects (roads, schools, etc.)
Supplementary Budget – for extra spending not planned earlier
Deficit Budget – when expenses are more than income

Problems in Pakistan’s Budgeting Process

1. Political Influence

Many projects are included for political reasons, not for real development.
MNAs push for schemes in their areas for votes.

2. Poor Planning

No proper forecasting or realistic targets.
Repeated revisions and supplementary budgets.

3. Weak Monitoring

Many projects face delays and cost overruns.
Audit reports show irregularities but no accountability.

4. Centralized Control

Provinces often complain about low share from federal budget.
Local governments are mostly ignored.

5. Lack of Public Participation

Budget is not people-friendly.
Citizens are not aware of how money is used.

Examples

In 2023, the government allocated billions to energy subsidies, but power shortages still continued.
The PSDP often includes projects that are not even started but stay in budget for years.
Many departments do not use the full development budget, and funds lapse at year end.

Am I Satisfied with the Budgeting Process?

Honestly, No. The process is very technical, non-transparent, and heavily influenced by politics. Public opinion is not considered. Projects are often repeated without real output. Many funds are wasted, and audit findings are ignored.

Suggestions for Improvement

Make the process more transparent – publish easy summaries for citizens.
Link budget to performance – departments should show what they achieved.
Empower local governments to decide their own priorities.
Stop political favoritism in development projects.
Improve monitoring and audits – punish those who misuse public funds.
Train officials in modern budgeting techniques like Performance-Based Budgeting (PBB).

Conclusion

To conclude, budgeting is a vital tool for national planning and development. Pakistan has a formal system, but in practice it has many flaws. The process should be more inclusive, performance-based, and accountable. Only then can the budget bring real change in people’s lives and support better governance.

Question 8

Write short notes on any TWO of the following:

a. Types of Decentralization
b. Role of Civil Society in good governance
c. Administrative buffering

a. Types of Decentralization

Introduction

Decentralization means transferring power from central government to lower levels like provinces, districts, or local bodies. It helps improve governance, service delivery, and citizen participation.

Types of Decentralization

Political Decentralization
- Transfer of decision-making power to elected local bodies.
- Example: Local government elections in Pakistan.
- It increases democracy at the grassroots level.
Administrative Decentralization
- Shifting authority to lower administrative units (like provincial departments or district offices).
- Example: Education and health departments under provinces after 18th Amendment.
Fiscal Decentralization
- Giving financial powers to local units.
- Example: Local councils collecting property tax and preparing their own budgets.
- It helps in better allocation of resources based on local needs.
Market/Private Decentralization
- Services transferred to private sector or NGOs.
- Example: Outsourcing waste collection to private companies.

Conclusion

Decentralization brings government closer to people. But for it to work, local units must have proper capacity, resources, and autonomy. In Pakistan, decentralization is still weak due to political resistance and poor planning.

b. Role of Civil Society in Good Governance

Introduction

Civil society includes NGOs, media, professional associations, religious groups, and community organizations that work independently from the government. They help ensure transparency, accountability, and participation, which are all parts of good governance.

Main Roles

Watchdog
- Civil society monitors government actions and fights corruption.
- Example: Media exposing corruption scandals in Pakistan.
Advocacy and Awareness
- NGOs raise awareness about rights, environment, education, and gender issues.
- Example: Aurat Foundation works for women rights.
Service Delivery
- Some civil society groups directly provide health, education, or relief services.
- Example: Edhi Foundation in emergency services.
Policy Influence
- Think tanks and advocacy groups suggest better policies.
- Example: PILDAT provides research on democracy and elections.
Public Participation
- Civil society encourages people to participate in governance through debates, protests, and community meetings.

Conclusion

Civil society is very important for good governance. But in Pakistan, it faces many challenges like limited freedom, financial issues, and lack of trust. The government should support and cooperate with civil society for stronger democracy.

c. Administrative Buffering

Introduction

Administrative buffering means protecting the organization or its leaders from external pressure, especially political or public pressure. It is used to keep the organization stable and focused.

Types and Methods of Buffering

Delaying Tactics
- Delaying responses to controversial orders or public demands to avoid immediate pressure.
Using Rules and Procedures
- Hiding behind rules to say “we are just following the law”, even if the decision is avoidable.
Shifting Responsibility
- Passing blame to other departments or levels of government.
Managing Public Perception
- Releasing press statements or manipulating data to reduce criticism.
Selective Transparency
- Only sharing safe or favorable information with public or media.

Why is it Used?

To avoid political interference
To protect reputation
To manage crises or scandals
To give time to handle sensitive matters properly

Criticism of Administrative Buffering

It may lead to non-responsiveness and lack of accountability
It reduces public trust
In democracy, people expect openness, not hiding behind bureaucracy

Example from Pakistan

Many times, when a scandal comes out, departments deny or delay action. For example, in many corruption cases, officials use “ongoing inquiry” as a buffering excuse.

Conclusion

Administrative buffering can be useful in serious pressure situations, but overuse damages transparency and accountability. Public institutions should use it carefully and remain responsive to citizens.

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