CSS Past Paper 2021 Public Administration Descriptive (Part 2)
CSS | Past Paper | Group 3 | 2021 | Part 2 | Descriptive
Below is the solution to PART-II (COMPULSORY) of the CSS Past Paper 2021 Public Administration Descriptive (Part 2).
Question 2
Define Normative and Empirical approaches of Public Administration, and their implications to Pakistan’s administrative system.
Introduction
Public Administration is the backbone of governance in any country. To study it, different approaches are used. Two main approaches are Normative and Empirical. Both are important but focus on different things. In this question, I will explain both and discuss their effect on Pakistan’s administrative system.
Normative Approach
Definition
The normative approach is about what should be done. It focuses on values, ethics, goals, and ideal behavior in administration. It answers questions like:
- What is good governance?
- How should civil servants behave?
- What should be the role of bureaucracy in development?
Features
- Based on moral values
- Uses logic and reasoning
- Focuses on what ought to be, not what actually is
- Mostly used in political theory and philosophy
Example in Pakistan
In Pakistan, many reforms are suggested based on the normative approach. For example, civil servants are told to act with honesty and neutrality. The Establishment Code and Civil Servants Conduct Rules guide them about how they should perform their duties.
Empirical Approach
Definition
The empirical approach is based on facts, data, and real-world observation. It studies Public Administration as it actually works, not how it should work. It is more scientific and practical.
Features
- Uses surveys, interviews, case studies, etc.
- Focus on what is, not on what should be
- Avoids moral judgments
- Helpful in policy-making and performance evaluation
Example in Pakistan
In Pakistan, empirical studies can help understand why certain departments perform badly. For example, if we study the performance of local governments using data, we can find gaps in implementation. NADRA’s performance can be measured through citizen satisfaction surveys.
Implications to Pakistan’s Administrative System
1. Policy Making
- Normative approach gives the vision, like making administration more people-friendly.
- Empirical approach helps to check whether policies are working or not.
2. Civil Service Reforms
- Normative tells us what qualities a good civil servant should have.
- Empirical helps in identifying corruption, inefficiency, and misuse of power through real data.
3. Good Governance
- Normative approach promotes ideas like transparency, accountability, and rule of law.
- Empirical helps in tracking actual performance like measuring service delivery in police, health, or education sectors.
4. Administrative Training
- Normative helps design ethics and leadership modules.
- Empirical helps evaluate training outcomes.
5. Accountability Mechanism
- Normative suggests what an ideal accountability system looks like.
- Empirical shows how NAB or other bodies are actually performing.
Conclusion
Both approaches are important and should be used together. Normative gives the direction, and empirical gives the real picture. For a country like Pakistan, where administration faces many challenges like corruption, political interference, and inefficiency, combining both approaches can lead to better reforms and stronger governance.
Question 3
Discuss the need for Civil Service neutrality in development administration. Suggest measures for achieving and stretching its practical application in Pakistan.
Introduction
Civil service is like the engine of a country’s administration. It runs the government’s work even when political parties change. For a country’s development, civil servants must stay neutral, which means they shouldn’t support any political party or personal interest. Their job is to serve the state and people, not the politicians. In this answer, I’ll explain why neutrality is important and how we can improve it in Pakistan.
What is Civil Service Neutrality?
Neutrality means civil servants perform their duties without bias, favoritism, or political influence. It means they follow rules and laws, not the personal orders of ministers or political leaders.
Key Points
- Civil servants serve the state, not the government of the day
- They work professionally, not politically
- They stay in office even when governments change
Why Neutrality is Needed in Development Administration?
- Consistency in Policies
When bureaucrats are neutral, development projects continue smoothly even if the ruling party changes. This is important for long-term plans like CPEC or health reforms. - Fair Implementation of Laws
Neutral officers ensure all people are treated equally. They follow merit in public service delivery. - Corruption Control
When civil servants are not involved in political games, they are less likely to take bribes or do illegal favors. - Trust of Citizens
People trust a system more when they see officers acting fairly, not as tools of any party. - Focus on Development, not Politics
Development administration is about solving problems, not doing politics. Neutrality helps focus on results, like building schools, roads, or health centers. - Stability in Government Work
A neutral civil service provides administrative continuity, which is very important in countries with unstable politics like Pakistan.
Problems in Pakistan’s Civil Service Neutrality
- Political interference in transfers/postings
- Reward and punishment system based on loyalty, not performance
- Lack of protection for honest officers
- Weak implementation of rules
- Corrupt political-bureaucratic nexus
Suggestions to Achieve and Improve Neutrality in Pakistan
- Strict Merit-Based Appointments
Hiring, promotions, and postings should be based on merit and performance only. - Independent Public Service Commission
Strengthen FPSC and PPSC to ensure fair recruitment. - Civil Service Act
A new law should protect bureaucrats from political pressure and unfair transfers. - Training on Ethics and Neutrality
Civil servants must be trained about their duties to stay non-political. - Strong Accountability
NAB, FIA, and other watchdogs must act fairly against corrupt officers and politicians. - Whistleblower Protection
Officers who expose wrongdoings should be protected by law. - Media and Public Pressure
Awareness among people and media can keep check on misuse of power.
Conclusion
Neutrality in civil service is not just a theory – it’s a need for real development. In Pakistan, where political favoritism is a big issue, neutral and professional civil servants can bring stability and progress. If we want our development administration to work honestly and efficiently, we must make neutrality a strong part of our system through laws, training, and public pressure.
Question 4
Inspite of numerous advantages of social audit, its arrangement have been mostly ineffective because there is no legal provision for punitive action. Comment.
Introduction
Social audit is a process where citizens check and review the work and spending of the government, especially in development projects. It is a way to bring transparency and accountability in public administration. Even though it has many benefits, in countries like Pakistan it is not very effective. The main reason is that social audits have no legal power to punish the people found guilty. In this answer, I will explain both sides of the topic and give suggestions.
What is Social Audit?
Social audit is a tool where local people, NGOs, or independent bodies examine how public money is spent, whether services are delivered properly, and if officials did their duty or not.
Main Features
- Participatory – people are involved
- Transparent – open process
- Bottom-up – from the citizens’ side, not from top government only
- Focus on outcomes – not just records
Advantages of Social Audit
- Increases Accountability
Public officials know they are being watched by the people, so they act carefully. - Reduces Corruption
Local people can catch misuse of funds or poor-quality work in real time. - Improves Service Delivery
When people point out problems, government can fix them faster. - Empowers Citizens
Gives power to the people to raise their voice and question the system. - Encourages Participation
People feel responsible and part of the system.
Example
In India, social audits were used in MGNREGA scheme, and many ghost workers and fake payments were caught.
Why Social Audit is Ineffective in Pakistan?
- No Legal Punishment
If someone is found guilty in a social audit, there is no law to take strict action. So the guilty person goes free. - Lack of Government Interest
Many departments see social audits as interference and don’t cooperate. - Weak Legal Framework
Pakistan has no strong law that makes social audit reports binding. - Limited Awareness
Most people don’t know their rights or how to check the government work. - Poor Capacity of Civil Society
NGOs or citizen groups often lack the training or resources to do deep audits. - Fake or Managed Audits
Sometimes audits are done just for formality, not to bring real change.
Suggestions to Make Social Audit Effective
- Legal Backing
Make a law that gives social audit findings official value and allows action or punishment. - Independent Social Audit Authority
Create a neutral body to conduct social audits and ensure follow-up. - Link With Accountability Bodies
Share social audit reports with NAB, FIA or Anti-Corruption units. - Training and Awareness
Educate local people, especially youth and community leaders, on how to do social audits. - Digital Tools and Apps
Use mobile apps to report problems in projects directly to higher officials. - Incentives for Reporting
Give rewards to people who give correct information or help in catching corruption.
Conclusion
Social audit is a strong weapon against corruption, but without legal support it is like a tiger without teeth. In Pakistan, if we want real change in the system, social audits must be backed by law and followed by strict actions. Only then it can help in improving governance and public trust.
Question 5
The idea of performance-budget lies beneath the word ‘results’. In the light of statement, examine the elements of performance-based budgeting with reference to Pakistan.
Introduction
Budgeting is an important part of public administration. It helps the government plan and spend money wisely. Performance-based budgeting (PBB) is a modern type of budgeting that focuses on results, not just how much money is spent. It tries to answer: “What did we achieve with this money?” Instead of just showing input, it shows output and outcomes. In this answer, I’ll explain the elements of PBB and how it is applied in Pakistan.
What is Performance-Based Budgeting?
Performance-based budgeting links the funding of public sector organizations to the results they deliver. It focuses on efficiency, effectiveness, and accountability.
Main Goal
“Spending for results, not just for routine operations”.
Key Elements of Performance-Based Budgeting
- Clear Objectives and Goals
Every department or program must have clear goals. For example, the goal of the education department could be “Increase primary school enrollment by 20%”. - Performance Indicators
These are measurable signs of progress, like:- Number of students enrolled
- Number of hospitals built
- Clean water access rate
- Outcome Measurement
It’s not just about activities, but what impact they had. For example, not just giving free medicines, but whether people’s health improved. - Program-Based Budgeting
Budget is made for specific programs, not just departments. For example, instead of just giving Rs. 5 billion to the Health Ministry, the budget is broken into programs like immunization, maternal care, etc. - Monitoring and Evaluation
There must be a system to track progress and evaluate if the goals are achieved. - Linking Budget to Performance
Future funding depends on how well a department performed in the past. If a department failed to deliver results, its funding may be reduced. - Involvement of Stakeholders
Civil society, media, and citizens must also be informed and involved, so that transparency is ensured.
Performance-Based Budgeting in Pakistan
Pakistan has tried to adopt performance budgeting, especially after Public Financial Management Act 2019.
Examples and Efforts
- Finance Division’s Output-Based Budget (OBB):
Pakistan introduced OBB in some federal ministries where the budget is linked to goals and outcomes. - Performance Reports:
Ministries now submit performance reports which are part of the budget documents. - Pilot Programs:
PBB is being used in education, health, and climate change ministries at the federal level. - World Bank and IMF Support:
Pakistan is also working with international partners to reform budgeting under PFM Reform Strategy.
Challenges in Pakistan
- Weak Capacity of Staff
Many officers don’t know how to measure performance or set good indicators. - Data Issues
Reliable and up-to-date data is missing in many sectors, making evaluation hard. - Political Interference
Sometimes funding is given based on political interest, not performance. - Lack of Accountability
Even when targets are not achieved, there is no action or punishment. - Resistance to Change
Traditional budgeting is still preferred in many departments.
Suggestions to Improve PBB in Pakistan
- Training of Officers
Civil servants should be trained in planning, monitoring, and evaluation. - Strong MIS Systems
Create strong management information systems to collect and track performance data. - Incentives for Performing Departments
Ministries that meet their goals should be rewarded. - Public Involvement
Citizens should be allowed to see budget and performance reports for transparency. - Independent Evaluation Units
Create independent bodies to review performance reports of each ministry.
Conclusion
Performance-based budgeting is a smart way to spend public money. It helps make sure that taxpayer money is giving real results, not just paying salaries and bills. Pakistan has started this journey, but there is a long way to go. With proper planning, training, and strong political will, PBB can improve public service delivery and reduce wastage of funds.
Question 6
Discuss “Hawthorne Effects”, undertaken by George Elton Mayo in the development of Human Relations School of thought, and its subsequent implications for the administrative behaviour.
Introduction
In early 20th century, the focus in management was more on machines and productivity, not on workers’ feelings. But later, thinkers like George Elton Mayo showed that humans are not robots, and their emotions, teamwork, and motivation matter a lot in productivity. This idea became the Human Relations School of Thought. One of the key contributions of Mayo was the Hawthorne Studies, which led to the concept of Hawthorne Effect.
What is the Hawthorne Effect?
The Hawthorne Effect means that people perform better when they know they are being observed or given attention. This effect was discovered during a series of experiments at the Western Electric Hawthorne Plant in Chicago (1924–1932) under the leadership of Elton Mayo.
Hawthorne Studies – Summary of Experiments
- Illumination Experiments
Workers were tested under different light levels to see if better light increased productivity. Surprisingly, productivity improved not because of lighting, but because workers felt important due to being studied. - Relay Assembly Test Room
Small group of women worked in different conditions (rest breaks, incentives, shorter hours). Productivity increased because of teamwork, attention, and friendly supervision. - Bank Wiring Observation Room
Study on group pressure. Workers maintained a steady output to match group norms, showing that social factors influence behavior.
Main Findings of the Hawthorne Studies
- Workers are not just motivated by money but also by recognition and belonging.
- Attention from supervisors improves morale and performance.
- Group behavior and peer influence affect individual performance.
- Good communication between workers and management is important.
- Informal groups can shape productivity even more than formal rules.
Human Relations School of Thought
Based on these studies, Mayo founded the Human Relations School. It emphasized:
- Workers need respect and social support.
- Motivation is psychological, not only economical.
- Organizations should care about emotions, teamwork, leadership, and communication.
Implications for Administrative Behaviour
- Employee Motivation
Administrators should understand that workers are not machines. Giving attention and recognition increases productivity. - Importance of Supervision
Supervisors must behave in a friendly and supportive way. Harsh leadership reduces performance. - Teamwork Culture
Encouraging group work helps in building cooperation and increases efficiency. - Listening to Employees
When employees are heard, they feel valued. This improves job satisfaction. - Better Communication
Smooth flow of information between top management and workers avoids confusion and increases trust. - Organizational Climate
Friendly and cooperative office environment reduces stress and improves employee behaviour.
Hawthorne Effect in Public Administration (Pakistan context)
- In Pakistan’s public offices, staff often feels ignored and underappreciated. By applying Mayo’s ideas, we can:
- Improve service delivery by motivating staff.
- Reduce absenteeism through better supervision.
- Make departments more people-friendly by training leaders in emotional intelligence.
Criticism of Hawthorne Studies
- Some critics say the experiments were not fully scientific.
- Results may be temporary, only during observation.
- Ignored structural problems like pay, workload, etc.
Still, these studies are very important as they shifted focus from machines to people in management.
Conclusion
The Hawthorne Effect changed how we see workers. George Elton Mayo proved that people are social beings, and their behaviour in office depends on how they are treated. In today’s public administration, especially in Pakistan, these lessons are still very useful. By understanding human behavior, communication, and group dynamics, administrators can create a more effective and motivated workforce.
Question 7
Examine how corruption in public services undermines democracy. Discuss its possible redressal mechanism.
Introduction
Corruption is one of the biggest problems in public administration, especially in developing countries like Pakistan. It means misusing power for personal gain, like taking bribes, favoritism, and misusing public money. In a democracy, the government is supposed to serve the people. But when corruption spreads in public services, it weakens public trust, harms development, and damages the whole democratic system.
How Corruption Undermines Democracy?
- Loss of Public Trust
People stop believing in the system when they see officials taking bribes or doing illegal favors. This leads to a gap between people and the state. - Weak Rule of Law
Corruption allows criminals and powerful people to escape justice. This makes the law seem unfair and biased. - Unfair Distribution of Resources
Public money meant for development, health, and education is stolen or misused, making the poor suffer more. - Bad Governance
Corruption leads to poor decision-making, low-quality projects, and delays. It makes institutions weak and non-functional. - Election Rigging and Political Corruption
In many democracies, corruption also affects elections. Votes are bought, and the real will of the people is not respected. - Discourages Citizen Participation
When people know the system is corrupt, they avoid taking part in public affairs like voting or community work. - Unqualified People Get Jobs
Merit is destroyed when people get jobs or promotions through bribery. This lowers the performance of public services.
Corruption in Pakistan’s Public Services (Examples)
- Bribery in police stations and courts
- Ghost schools and fake doctors in health sector
- Nepotism in government jobs
- Kickbacks in development contracts
- Delays in pension and service delivery unless bribes are paid
Redressal Mechanism to Fight Corruption
- Strong Accountability Institutions
Strengthen NAB, FIA, and anti-corruption departments. They must work independently and fairly. - Transparent Recruitment and Promotion
All public jobs should be given through open tests and interviews. Use digital systems to avoid human interference. - E-Governance and Digitalization
Use online systems to reduce human contact, like online payments, land records, and complaint systems. It reduces chances of bribery. - Whistleblower Protection Law
People who report corruption should be protected and rewarded. - Asset Declaration
Government officers must declare assets every year, and these should be checked regularly. - Citizen Participation and Media Role
Free media and active civil society can expose corruption. Citizens should also be aware and raise their voice. - Education and Ethics Training
Civil servants should be trained in ethics. Schools and colleges should also teach anti-corruption values. - Quick and Fair Punishment
Corrupt officials should be punished quickly so that others are afraid to do the same.
Conclusion
Corruption is like a termite that slowly destroys the roots of democracy. In Pakistan, if we want real democracy and good governance, we must fight corruption strongly. Only through transparency, accountability, and public awareness, we can build a system that serves the people fairly and honestly. Without fixing corruption, democracy will remain weak and powerless.
Question 8
Write short notes on any TWO of the following:
a. Management by Objectives (MBO)
b. Abraham Maslow’s Hierarchy of Needs
c. Differentiate between the Authoritarian and Transformational styles of Leadership
a. Management by Objectives (MBO)
Introduction
Management by Objectives (MBO) is a system developed by Peter Drucker. It means setting clear, specific goals for employees and then measuring their performance based on those goals. It improves both individual and organizational performance.
Key Features of MBO
- Goal Setting
Managers and employees together set goals that are clear, measurable, and time-bound. - Participation
Employees are involved in planning their own targets. This increases motivation. - Performance Review
At the end of the time period, performance is checked based on results, not personal liking or routine work. - Feedback System
Regular feedback is given to improve performance. - Focus on Results
It moves the focus from “what you did” to “what you achieved.”
Benefits of MBO
- Increases motivation and job satisfaction
- Makes evaluation of performance easier
- Aligns personal goals with organizational goals
- Builds better communication between employees and management
Limitations
- Can fail if goals are unrealistic
- Not suitable for emergency-based jobs
- Time-consuming process
Conclusion
MBO is a modern management tool that helps in improving productivity through clear goals and responsibility. It creates a result-driven culture in public and private organizations.
b. Abraham Maslow’s Hierarchy of Needs
Introduction
Maslow was a psychologist who gave a theory of human motivation. He said that people have five types of needs, and they try to fulfill them step by step, from basic to higher levels. This theory is important in understanding how to motivate employees.
The Five Levels of Maslow’s Hierarchy (Bottom to Top)
- Physiological Needs
Basic survival needs like food, water, sleep, etc. - Safety Needs
Job security, health, protection from harm. - Social Needs
Love, friendship, teamwork, and belonging. - Esteem Needs
Respect, recognition, and self-confidence. - Self-Actualization
Reaching full potential, creativity, and personal growth.
Relevance in Public Administration
- Civil servants need all these levels to stay motivated.
- A safe and supportive work environment improves performance.
- Reward and recognition help fulfill esteem needs.
- Training programs help in self-actualization.
Criticism
- Not all people follow the same order.
- Cultural differences affect motivation.
- Sometimes higher needs are more important than lower ones.
Conclusion
Maslow’s theory is still used in management to understand what drives people. For administrators, it’s helpful to create policies that motivate employees at all levels.
c. Differentiate between the Authoritarian and Transformational styles of Leadership
Introduction
Leadership style affects how organizations work. Two major styles are Authoritarian and Transformational. Both have different ways of leading people.
| Point | Authoritarian Leadership | Transformational Leadership |
| Definition | Leader controls everything; gives orders. | Leader inspires and motivates others to grow. |
| Decision Making | Centralized – only the leader decides. | Decentralized – ideas from team are welcomed. |
| Focus | Discipline and obedience. | Innovation and personal development. |
| Communication | One-way – from top to bottom. | Two-way – open and encouraging. |
| Use in Public Sector | In emergencies like disaster control. | In reforms, policy changes, and new initiatives. |
| Employee Role | Just follow orders. | Active participation and creativity. |
| Motivation | Fear of punishment or desire for reward. | Internal motivation and shared vision. |
Conclusion
Both styles can be useful depending on the situation. But for long-term development and good governance, transformational leadership is more effective in the public sector.
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