CSS Past Paper 2020 Public Administration Descriptive (Part 2)
CSS | Past Paper | Group 3 | 2020 | Part 2 | Descriptive
Below is the solution to PART-II (COMPULSORY) of the CSS Past Paper 2020 Public Administration Descriptive (Part 2).
Question 2
Compare and Contrast the Bureaucratic Model with New Public Management (NPM). Do you think NPM is relevant to developing countries like Pakistan? Support your argument with key indicators.
Introduction
Public administration has changed a lot over time. First, it was all about rules and structure like in the Bureaucratic Model, but now it’s more focused on results and performance, like in New Public Management (NPM). Both have different ideas and purposes. This answer will explain the differences and also see if NPM is useful for countries like Pakistan.
Bureaucratic Model: Key Features
The Bureaucratic Model was explained by Max Weber, a German sociologist. It is based on strict rules, fixed hierarchy, and formal procedures. Some main features are:
- Hierarchy of authority – A clear top-to-bottom structure.
- Rules and regulations – Everything is done by written rules.
- Impersonality – No personal feelings, only professional behavior.
- Merit-based hiring – People are selected on their qualification.
- Division of labor – Every officer has fixed duties.
This model helped in creating order and control in large organizations, especially in government.
New Public Management (NPM): Key Features
NPM started in the 1980s in Western countries. It brings private sector ideas into the public sector. The focus is on efficiency, performance, and customer satisfaction. Some main features are:
- Decentralization – Local control and flexibility.
- Performance measurement – Focus on results, not process.
- Market-based mechanisms – Like outsourcing and public-private partnerships.
- Customer orientation – Citizens seen as clients.
- Entrepreneurial government – Innovation and competition encouraged.
NPM tries to make government less bureaucratic and more business-like.
Comparison Table
| Aspect | Bureaucratic Model | New Public Management (NPM) |
| Focus | Rules and procedures | Results and performance |
| Structure | Centralized hierarchy | Decentralized, flexible |
| Role of officials | Rule-followers | Managers and decision-makers |
| Citizen view | Subjects | Customers/clients |
| Innovation | Very low | Encouraged |
Is NPM Relevant for Pakistan?
Yes, NPM can be relevant for Pakistan, but with some adjustments. Pakistan faces problems like poor service delivery, corruption, red tape, and lack of accountability. NPM can help solve these. Here’s how:
Key Indicators
- Service delivery – Many public services in Pakistan are slow and poor. NPM can improve efficiency.
- Corruption – Through performance-based systems, NPM can reduce chances of corruption.
- Decentralization – Local governments in Pakistan can adopt NPM for better decision-making.
- Budget deficit – NPM’s cost-saving methods like outsourcing can help reduce government expenses.
- Public satisfaction – By treating citizens as clients, services can be more user-friendly.
But there are challenges too. Pakistan lacks proper infrastructure, trained staff, and accountability systems to fully adopt NPM. Also, political interference makes reforms harder.
Conclusion
To conclude, the bureaucratic model was good for control and order, but in today’s world, it’s not enough. NPM is more modern and flexible, and it can help improve public services in developing countries like Pakistan. But for that, Pakistan needs to build strong institutions, improve training, and reduce corruption. Only then, NPM can really bring positive change.
Question 3
Trace how the strategic management process has evolved. Also discuss the opportunities and constraints on collaborative approaches to an effective strategy development and its implementation.
Introduction
Strategic management means planning for the future by setting goals and making decisions that help an organization grow and face challenges. Over time, the process of strategic management has changed. Earlier it was just simple planning, but now it has become more dynamic and includes many actors. In this answer, I will explain the evolution of strategic management and also talk about the chances and problems in collaborative strategy making.
Evolution of Strategic Management Process
- Initial Stage (1950s-60s):
In early days, organizations used long-term planning. It was very formal, and only top managers made decisions. It was useful when environment was stable. - Growth Stage (1970s-80s):
Then came the idea of strategic planning, where companies started studying their environment like competitors, economy, etc. Tools like SWOT analysis and PEST analysis became popular. - Modern Strategic Management (1990s to now):
Now, it’s not just planning but also about execution and flexibility. It includes vision, mission, internal and external analysis, and performance checking. It’s now seen as a continuous process. Also, stakeholder involvement and collaboration became more important.
Steps in Strategic Management Process (Modern)
- Mission and Vision setting
- Environmental Analysis (SWOT, PEST)
- Strategy Formulation
- Strategy Implementation
- Monitoring and Evaluation
Collaborative Strategy Development: Opportunities
- Better Decision-Making:
Involving different stakeholders (govt, private, NGOs, citizens) brings new ideas and local knowledge. - Ownership and Support:
When people are involved in planning, they are more likely to support it during implementation. - Transparency and Trust:
Collaboration builds trust among departments and public, which is helpful in Pakistan’s case. - Resource Sharing:
Public-private partnerships can help in pooling resources, especially in sectors like education and health. - Adaptive Strategies:
Collaboration allows strategies to change when needed based on real feedback.
Constraints in Collaborative Strategy
- Conflicts of Interest:
Different stakeholders have different goals. Private sector wants profit, govt wants public welfare. - Lack of Capacity:
In Pakistan, many departments don’t have skilled staff or tools for strategy planning. - Political Interference:
Frequent changes in govt or ministers disturb long-term planning. - Poor Coordination:
Ministries and departments don’t always share data or work together. This leads to duplication or gaps. - Lack of Monitoring:
Even when strategies are made, there is no strong system to check if it’s being followed.
Examples from Pakistan
- Education Sector:
National Education Policy involves many actors but fails in implementation due to lack of coordination. - CPEC Projects:
Strategic planning with China is successful due to high-level collaboration and monitoring. - Health Programs:
Like polio campaigns work well when government, NGOs, and international donors work together.
Conclusion
Strategic management has moved from simple planning to dynamic and collaborative processes. In today’s complex world, no single actor can solve all problems alone. So, collaborative strategy is very important. But in Pakistan, to make it work, we need better coordination, trained staff, and political stability. Only then strategy will not just remain on paper but bring real results.
Question 4
Describe the role of government in HRM at enterprise level. Elaborate key challenges in Public sector enterprises in Pakistan and way forward.
Introduction
Human Resource Management (HRM) is about hiring the right people, training them, and making sure they perform well. At the enterprise level, especially in public sector, government plays a big role in managing HRM. In Pakistan, many public sector organizations are directly controlled by the government. This answer explains the government’s role, the challenges in public enterprises, and the way forward.
Role of Government in HRM at Enterprise Level
- Policy Making:
Government makes HR policies and rules for recruitment, promotion, retirement, and salaries. - Recruitment Control:
Most public enterprises in Pakistan recruit employees through testing bodies like FPSC, PPSC, etc., which are government-controlled. - Training and Development:
Government arranges training programs through institutes like NIPA (now NSPP) and Civil Services Academy to improve employee skills. - Performance Management:
Government introduces tools like ACRs (Annual Confidential Reports) to evaluate employee performance, though it’s still outdated. - Wage and Benefit Structure:
Pay scales, pensions, allowances – all are fixed by government rules like Basic Pay Scale (BPS) system. - Transfer and Posting:
Transfers and promotions in public enterprises are usually done through government approvals or ministries. - Industrial Relations:
Government is responsible for keeping smooth relations between employees and management by labor laws and unions regulation.
Key Challenges in Public Sector Enterprises in Pakistan
- Political Interference:
Hiring and promotions are often influenced by politicians. Merit is ignored. - Overstaffing:
Many enterprises have more employees than needed, causing low productivity and financial loss. - Poor Performance Evaluation:
Traditional systems like ACR are not enough to measure real performance. - Lack of Motivation:
Low salaries, no performance bonuses, and slow promotions make employees demotivated. - Corruption and Nepotism:
Appointments on sifarish (reference) are common. It affects efficiency badly. - Training Gaps:
Employees don’t get regular or modern training, so their skills don’t improve with time. - Lack of Autonomy:
Public enterprises cannot make HR decisions independently. Every decision goes through government red tape.
Way Forward
- Merit-Based Recruitment:
Make hiring totally merit-based through independent and transparent systems. - Performance-Based Pay:
Introduce incentives and bonuses for high performers like in private sector. - Autonomy in HR Decisions:
Give more freedom to public enterprises to make HR-related decisions without always asking ministries. - Modern Evaluation Tools:
Replace old ACRs with modern performance appraisal methods (e.g. KPIs). - Capacity Building:
Regular training and development programs for employees and HR managers. - Digital HR Systems:
Use e-HRM tools for managing employee records, payroll, and performance online. - Reduce Political Influence:
Laws must be enforced to stop interference from politicians in HR matters.
Conclusion
The role of government in HRM at enterprise level is very deep in Pakistan. But due to weak policies, political pressure, and lack of reforms, public enterprises are not working effectively. To improve, we need merit, training, transparency, and autonomy. If these challenges are fixed, public sector can perform just as good as private sector.
Question 5
Describe the four basic stages in the rational model of decision making and problem solving. When do bounded rationality, satisficing and heuristics enter your own decision making for better? For worse?
Introduction
Decision making is a very important part of administration. One of the most popular models is the rational decision-making model. It is logical, step-by-step method to solve problems. But in real life, sometimes we don’t follow it fully because of bounded rationality, satisficing, and heuristics. This answer explains the stages of the rational model and also discusses where these limits enter and how they affect decisions.
Four Basic Stages of Rational Decision Making
- Problem Identification
- First, the decision-maker must identify the actual problem.
- It includes finding the gap between current situation and desired one.
- Example: A public school has low attendance – this is a problem that needs solution.
- Generation of Alternatives
- In this step, different possible solutions are listed.
- The aim is to think of all options without judging them yet.
- For the school problem, options may include improving transport, free meals, awareness campaigns.
- Evaluation of Alternatives
- Each alternative is evaluated based on pros and cons, cost, impact, and feasibility.
- The best alternative is selected using logic and data.
- For example, awareness campaign might be low cost and high impact.
- Implementation and Monitoring
- The chosen solution is put into action.
- Then, it’s monitored to check if the problem is solved.
- If not, the process may start again.
Bounded Rationality, Satisficing & Heuristics
Even though the rational model looks perfect, in real life we face limitations, especially in complex decisions.
1. Bounded Rationality
- Coined by Herbert Simon, it means our decision-making is limited by lack of time, information, and brain capacity.
- In my own life, for example, I don’t always have all the data before choosing a university course. So, I rely on limited information like friends’ opinions or internet reviews.
For Better:
- Helps me take quicker decisions in complex situations.
For Worse:
- I might miss better options because I didn’t explore everything.
2. Satisficing
- Instead of looking for the best option, sometimes we go for a “good enough” option.
- For example, I needed a new phone. I didn’t research all models, I just picked the first one that met my budget and had decent features.
For Better:
- Saves time and effort.
For Worse:
- The choice may not be the most efficient or long-lasting.
3. Heuristics
- These are mental shortcuts or rules of thumb we use to make decisions.
- Like, when buying food, I pick the brand I saw most on TV, not because it’s best but because I remember it more.
For Better:
- Makes fast decisions when time is short.
For Worse:
- Can lead to biases and poor judgment.
Examples in Public Administration
- A district officer might not collect full data before taking action during a flood (bounded rationality).
- A health department might go for “satisficing” by choosing a medicine supplier who is not best but delivers fast.
- Heuristics are used when police act based on past crime patterns instead of full investigation.
Conclusion
The rational model is ideal but not always possible. That’s why people use bounded rationality, satisficing, and heuristics. They help in making fast and practical decisions, but they also carry risks. In both personal life and public administration, balancing logic with reality is the key to effective decision-making.
Question 6
Critically Analyze NRB-5Ds Model developed in 2001 in context with; Devolution of Political Process, Distribution of Resources to Districts, Diffusion of Power Authority Nexus, Deconcentrating of Management Functions and Decentralization of Administrative authority.
Introduction
In 2001, Pakistan launched a major reform under National Reconstruction Bureau (NRB) called the Devolution Plan, also known as the 5Ds model. This plan was introduced during General Pervez Musharraf’s regime. The aim was to bring power closer to the people by changing the structure of local government. The five Ds were: Devolution, Distribution, Diffusion, Deconcentration, and Decentralization. This answer will explain each D and evaluate how successful or unsuccessful it was in the Pakistani context.
1. Devolution of Political Process
- Meaning: Devolution means shifting power from the central government to local elected bodies.
- In 2001, the system created District, Tehsil, and Union Councils, with elected Nazims and Naib Nazims.
- Pros:
- Gave people a chance to take part in decision-making.
- Increased political awareness at local level.
- Cons:
- Political parties were kept out of the process, making it weak.
- Nazims had no real power over police or funds in many cases.
- Lack of continuity after 2008 as system was not sustained by next governments.
2. Distribution of Resources to Districts
- Meaning: Giving financial and human resources to local governments to do their duties.
- District governments were allowed to make development budgets and use funds.
- Pros:
- Helped local projects get funding quickly.
- Reduced dependency on provincial governments.
- Cons:
- Funds were often misused due to poor auditing.
- Lack of trained staff to manage budgets.
- Provinces were not happy sharing resources.
3. Diffusion of Power Authority Nexus
- Meaning: Breaking the concentration of power from one point (like DMG officers) and spreading it across institutions.
- Before 2001, Deputy Commissioners had all administrative, financial, and law & order powers.
- NRB reforms removed the DC post and separated these powers.
- Pros:
- Reduced chances of power abuse by one person.
- Gave more people a role in governance.
- Cons:
- Created confusion – too many authorities but no clear responsibility.
- Police Order 2002 was not fully followed, so law and order became weak.
4. Deconcentration of Management Functions
- Meaning: Shifting functions from central ministries to local offices but still under same control.
- For example, education, health, and agriculture departments were shifted to district level.
- Pros:
- Services became somewhat closer to people.
- Cons:
- Local officers still reported to provincial secretaries, not to local elected representatives.
- No real empowerment happened – just duties were shifted without matching authority.
5. Decentralization of Administrative Authority
- Meaning: Giving authority to lower levels to make their own administrative decisions.
- This included hiring staff, posting officers, and planning development projects.
- Pros:
- Faster decisions.
- Less paperwork and fewer delays.
- Cons:
- Local bodies lacked capacity and training.
- Political interference increased at local level.
- Sometimes decisions were made on personal interests.
Critical Analysis
The 5Ds model was a bold and ambitious reform, but it was not fully successful. The idea was good, but the implementation was weak. It gave power but not full control. After 2008, the system was not continued properly. Provinces didn’t want to lose power, and local governments were not supported politically. So, the benefits of 5Ds remained limited and temporary.
Conclusion
The NRB 5Ds model tried to make government more democratic, responsive, and efficient. But due to lack of political will, weak implementation, and resistance from bureaucracy and provinces, the system did not achieve its full goals. If Pakistan wants real local governance, then the 5Ds model needs to be reformed, supported by all stakeholders, and implemented with full commitment.
Question 7
“Bureaucracy and Democracy are antithetical. Bureaucracy is hierarchical, elitist, specialized, and informed while democracy is communal, pluralist, generalized, and ill-informed”. Discuss this statement keeping in view the quantum of expectations in Pakistan and the reality of the civic culture.
Introduction
Bureaucracy and democracy are two important parts of a state system, but they are very different in nature. Some scholars even say they are opposite (antithetical) to each other. Bureaucracy works on rules, hierarchy, and expertise. On the other side, democracy is based on public participation, freedom, and equality. In this answer, we will look at the differences between both, and also explain how this affects Pakistan, where people expect a lot from the government but civic culture is weak.
Differences Between Bureaucracy and Democracy
| Feature | Bureaucracy | Democracy |
| Structure | Hierarchical (top-down) | Flat, people-driven |
| Nature | Elitist and Specialized | Generalized and open to all |
| Decision-making | Based on expertise and technical knowledge | Based on public opinion and majority will |
| Behavior | Formal, rule-based | Informal, flexible |
| Goal | Efficiency, stability | Representation, participation |
These differences create a tension between both systems, especially in developing countries.
Situation in Pakistan
In Pakistan, the public expects a lot from government: jobs, security, services, and justice. But the reality is that both bureaucracy and democracy are not performing well.
Expectations from Government
- Quick service delivery
- Clean drinking water, health and education
- Transparent and honest governance
- Justice and rule of law
Civic Culture Reality
- Low political awareness – Many people vote without knowing candidate’s background.
- Weak accountability – People don’t question government performance.
- Personal interests dominate – Votes are often based on caste, biradari, or personal favours.
- Lack of patience – People expect instant results from elected officials, but ignore process.
Bureaucracy in Pakistan
- Bureaucrats in Pakistan are powerful but not always accountable.
- They are appointed through exams like CSS, so they are usually qualified.
- But they are also seen as slow, rigid, and sometimes corrupt.
- There is also political pressure, which affects their neutrality.
- Many times, they don’t understand local problems because of elite mindset.
Democracy in Pakistan
- Democracy in Pakistan is weak and unstable.
- Elections are held, but there is lack of real representation.
- Many politicians are feudal or businessmen who care about personal gains.
- Laws are made but not implemented.
- Voter education is very poor.
Tension Between Bureaucracy and Democracy
- Clash of Interests – Bureaucrats want control through rules; politicians want quick results for voters.
- Delay in Development – Bureaucrats slow down projects if politicians push too hard.
- Blame Game – If something fails, politicians blame bureaucracy, and bureaucracy blames politicians.
- Policy Gaps – Lack of coordination between both sides leads to poor planning.
How to Fix the Gap?
- Training and Awareness – Both bureaucrats and politicians need training on public service and cooperation.
- Public Participation – Citizens should take active part, not just vote.
- Reforms in Bureaucracy – Reduce red-tapism, make officers more responsive.
- Political Maturity – Parties should focus on policy, not just winning elections.
- Civic Education – Teach people about rights, duties, and importance of good governance.
Conclusion
Yes, bureaucracy and democracy are different in nature, but both are important for any country. In Pakistan, the clash between them becomes more serious because public expectations are high but civic culture is weak. We need a balance where bureaucracy is efficient but also accountable, and democracy is not just about elections but about real governance. Only then Pakistan can progress.
Question 8
Write comprehensive notes on the following:
a. Public Business Re-Engineering
b. Governance Challenges in Pakistan
a. Public Business Re-Engineering
Introduction
Public Business Re-engineering (PBR) is about changing the way public organizations work to make them more efficient, fast, and citizen-friendly. It is taken from the idea of Business Process Re-engineering (BPR) used in the private sector. In public administration, it means rethinking and redesigning government processes to remove waste, reduce red tape, and improve service delivery.
Main Features of PBR
- Process Simplification:
Cutting down unnecessary steps in government procedures. - Citizen-Centered Services:
Making the system more responsive to the needs of people. - Use of Technology:
Using e-governance, online portals, automation to speed up work. - Accountability and Transparency:
Making procedures more open and reducing corruption. - Performance Orientation:
Focus on outcomes and results, not just rules and inputs.
Examples in Pakistan
- E-Khidmat Centers (Punjab):
Citizens can access many services under one roof. - Online Tax Filing (FBR):
Makes tax system more efficient and user-friendly. - One Window Operations in CDA:
Helps reduce delay in approvals and paperwork.
Challenges in Implementing PBR
- Resistance from old bureaucracy
- Lack of funds and technology
- Low capacity and training among staff
- Weak monitoring and evaluation systems
Conclusion
PBR can transform public institutions by making them more modern and efficient. For a country like Pakistan, where public services are often slow and corrupt, such reforms are badly needed. But it requires strong political will, trained staff, and support from all stakeholders.
b. Governance Challenges in Pakistan
Introduction
Governance means how the government runs the country — how it makes policies, delivers services, and ensures justice. In Pakistan, governance faces many problems, which affect development, trust, and daily life of people.
Main Governance Challenges
- Corruption:
Widespread bribery and misuse of power in both high and low levels of government. - Political Instability:
Frequent changes in governments and political fights damage continuity in policies. - Weak Institutions:
Many public institutions are under political pressure or lack autonomy. - Poor Service Delivery:
Health, education, and sanitation services are slow and low quality. - Lack of Accountability:
Officials and politicians are rarely punished for bad performance or corruption. - Over-Centralization:
Provinces and local governments don’t get enough power or funds to solve local problems. - Law and Order Problems:
Terrorism, street crimes, and weak policing affect public trust. - Digital Divide:
Lack of technology in rural areas makes governance unequal.
Solutions / Way Forward
- Strengthen institutions like NAB, FIA, Election Commission
- Introduce e-governance to reduce corruption and speed up work
- Decentralize powers to provinces and local bodies
- Improve education to raise awareness and civic responsibility
- Strict accountability for politicians and bureaucrats
- Invest in capacity building of civil servants
Conclusion
Good governance is the backbone of any successful country. Pakistan’s problems are serious but not impossible to solve. With reforms, transparency, and public participation, governance in Pakistan can be improved for a better future.
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