CSS Past Paper 2022 Public Administration Descriptive (Part 2)
CSS | Past Paper | Group 3 | 2022 | Part 2 | Descriptive
Below is the solution to PART-II (COMPULSORY) of the CSS Past Paper 2022 Public Administration Descriptive (Part 2).
Question 2
Bureaucracy and Democracy are antithetical. Bureaucracy is hierarchical, elitist, specializing and informed while democracy is communal, pluralist, generalizing and ill informed. Keeping in mind the quantum of expectations in Pakistan and the reality of the civic culture discuss the above statement.
Introduction
Bureaucracy and democracy both are essential pillars of any modern state. But still, many scholars and thinkers say they are opposite in nature. Democracy believes in power to the people, openness, and equal participation. On the other hand, bureaucracy is about rules, order, and top-down control. In Pakistan, this gap becomes more visible due to the weak civic culture and growing public expectations from the government.
Difference Between Bureaucracy and Democracy
| Aspect | Democracy | Bureaucracy |
| Structure | Decentralized, participatory | Centralized, hierarchical |
| Nature | Political, temporary, elected | Permanent, neutral, career-based |
| Focus | Public interest, majority opinion | Efficiency, expertise, rule-following |
| Knowledge Base | Generalist, less technical | Specialist, informed |
| Accountability | Direct (to people) | Indirect (to ministers or rules) |
Why They Clash?
- Opposite Working Styles: Democracy works on open debates, discussion, and sometimes slow decision-making. Bureaucracy wants fast execution through standard rules.
- Value Differences: Bureaucrats value stability and order. Democratic leaders sometimes go for populist decisions that can disturb the system.
- Authority Conflict: Elected leaders want to control the system, but bureaucracy is trained to follow procedures, not personal commands.
- Trust Issues: Politicians often see bureaucrats as unresponsive, while bureaucrats think politicians are short-term thinkers.
Situation in Pakistan
- High Expectations: People expect quick service, justice, jobs, and development. But bureaucracy is slow and procedural.
- Weak Civic Culture: Most citizens are not fully aware of their rights or duties. Many don’t even vote or participate actively in democracy.
- Political Interference: In Pakistan, bureaucracy is not fully independent. Transfers, postings, and promotions are often politicized.
- Lack of Capacity: Both democracy and bureaucracy in Pakistan suffer from weak institutions, corruption, and lack of training.
- Elitist Attitude: Civil servants are seen as an elite class, disconnected from common people. This adds more tension between the democratic idea of equality and bureaucratic reality.
Bridging the Gap
To improve the relationship and performance of both:
- Civil Service Reforms: Make bureaucracy more transparent, responsive, and modern.
- Training in Democratic Values: Bureaucrats should be taught to respect public opinion and democratic leadership.
- Limit Political Interference: Reduce pressure on civil servants from political actors.
- Civic Education: Educate citizens about democracy, governance, and their responsibilities.
- Strengthen Institutions: A strong judiciary, media, and parliament can balance both sides.
Conclusion
Although bureaucracy and democracy seem different, both are needed for good governance. Democracy provides legitimacy and direction, while bureaucracy ensures continuity and execution. In Pakistan, their clash is real but fixable. With better civic culture and institutional reforms, both can work together to meet public expectations and build a strong state.
Question 3
Discuss the similarities and differences between the Weberian bureaucratic model, scientific management, and the “principles” approach to studying public organizations. Describe the basis of each theory and its impact on the development of public administration. Also explain why critics contend these theories are not in tune with the “practice” of Pakistan’s public administration.
Introduction
Public administration has been influenced by different theories and models. Three important ones are Weberian Bureaucracy, Scientific Management by Taylor, and the Principles Approach by Gulick and Urwick. These models helped shape modern public organizations, but all of them also have limits, especially in countries like Pakistan where ground realities are very different.
1. Weberian Bureaucratic Model
Basis
Max Weber introduced the idea of bureaucracy as an ideal type for running large organizations. He believed in rules, hierarchy, and merit-based appointments.
Key Features
- Clear division of work
- Hierarchical structure
- Written rules and procedures
- Impersonal treatment
- Selection based on technical competence
Impact
It helped in forming professional civil services across the world. In Pakistan too, the civil service follows many of Weber’s ideas like hierarchy and promotion by seniority.
2. Scientific Management (F.W. Taylor)
Basis
Frederick Taylor focused on efficiency and productivity. He studied how workers do their jobs and tried to make them faster and better.
Key Features
- One best way to do a job
- Scientific selection and training of workers
- Division between planning and doing
- Incentives for better performance
Impact
This model brought the idea of efficiency in public sector. It also influenced performance-based management. But in public offices in Pakistan, efficiency is often ignored due to rigid rules and lack of accountability.
3. Principles Approach (Gulick & Urwick)
Basis
They gave administrative principles to guide public managers. The famous one is POSDCORB – Planning, Organizing, Staffing, Directing, Coordinating, Reporting, and Budgeting.
Key Features
- Universal principles for all organizations
- Focus on structure and function
- Emphasis on top-down control and specialization
Impact
It helped create organized public departments. POSDCORB is still taught in admin training. But it is criticized for being too rigid and not fit for dynamic problems.
Similarities Between the Three
- All focus on structure and efficiency.
- Believe in hierarchy and control.
- Stress specialization and division of work.
- Try to make organizations predictable and stable.
Differences
| Theory | Focus | Method | Human Element |
| Weberian | Legality and authority | Rules & hierarchy | Impersonal |
| Scientific Management | Efficiency and productivity | Observation and measurement | Workers as tools |
| Principles Approach | Universal rules of admin | POSDCORB and structure | Less concern for people |
Criticism in Context of Pakistan
These models face many issues in the Pakistani context:
- Rigid and Inflexible: These theories don’t match Pakistan’s dynamic and sometimes chaotic environment. Rules often slow things down.
- Lack of Innovation: Focus on routine work blocks creativity. Public sector in Pakistan needs flexible solutions.
- Political Influence: In real practice, appointments and promotions are not always based on merit, unlike Weber’s model.
- Poor Accountability: Scientific management asks for performance check, but in Pakistan performance is rarely measured honestly.
- One-size-fits-all doesn’t work: The universal principles don’t always apply in Pakistan due to cultural and institutional differences.
Conclusion
Theories like Weber’s bureaucracy, Taylor’s scientific management, and the principles approach gave strong foundations to public administration. They are good in theory but don’t always work well in practice, especially in countries like Pakistan where the system is weak and politicized. To improve administration, we must mix these classical ideas with modern and local solutions.
Question 4
“On what basis shall we allocate resources to program A instead of program B,” is the perennial statement in public sector budgeting. Identify and discuss at least five attempts, found in the budgeting literature, used to answer V.O. Key’s famous budgeting question. Which type of budgeting system is most appropriate for public administration? Why do you feel this way?
Introduction
Budgeting in public sector is not only about numbers; it’s also about choosing between priorities. V.O. Key raised an important question: How do we decide which program should get funds and which should not? Over the years, many budgeting systems were introduced to answer this question. Each system tries to improve decision-making in public finance.
Five Major Budgeting Approaches
1. Line-Item Budgeting
Description:
This is the oldest and simplest form. It lists expenses in categories like salaries, office supplies, fuel, etc.
Purpose:
Helps in controlling spending by monitoring each item.
Weakness:
Focuses more on “how much” is spent, not “why” or “on what outcome”.
2. Performance Budgeting
Description:
Links the funds with results or output. For example, how many schools were built with a certain amount.
Purpose:
Improves efficiency and effectiveness.
Weakness:
Hard to measure results in all departments, especially in social sectors.
3. Program Budgeting (PPBS – Planning Programming Budgeting System)
Description:
Introduced in the 1960s, it connects long-term planning with budget. It focuses on goals, objectives, and alternatives.
Purpose:
Tries to answer V.O. Key’s question by comparing costs and benefits of programs.
Weakness:
Too technical and complex for most departments. Needs a lot of data and skilled staff.
4. Zero-Based Budgeting (ZBB)
Description:
Every year starts from zero. Each program must justify its entire budget, not just the increase.
Purpose:
Stops waste and forces departments to re-think priorities.
Weakness:
Time-consuming and can be bureaucratic in practice.
5. Incremental Budgeting
Description:
Budget of last year is used as base, and only small changes are made.
Purpose:
Easy and practical, especially in big systems.
Weakness:
Ignores changing priorities or needs. Wastes money on outdated programs.
Which System Is Most Appropriate for Public Administration?
I think Performance Budgeting is the most suitable system for public administration in Pakistan.
Reasons
- It links money with results, which increases accountability.
- Encourages departments to become more efficient.
- Can help reduce corruption by focusing on outcomes.
- Citizens also want to know what results the government delivered.
- Easier to apply than ZBB or PPBS, especially in developing countries.
Challenges in Pakistan’s Budgeting System
- Lack of reliable data
- Weak monitoring system
- Political interference
- Low capacity of staff
- Delays in releases of funds
Conclusion
V.O. Key’s question is still relevant today. Choosing between Program A and B needs a smart budgeting system. Out of all approaches, Performance Budgeting seems most balanced as it brings both accountability and flexibility. Pakistan must improve its institutions, train staff, and use technology to implement better budgeting methods.
Question 5
Describe in detail the four classical types of potential market failure and provide examples of each type. What is the relevance of the concept of market failure to government intervention in the economy? Explain.
Introduction
In economics, markets are expected to work on their own using supply and demand. But sometimes, markets fail to give efficient or fair results. This is called market failure. In such cases, government has to step in to fix the problems. There are four classical types of market failure, and each one shows why government intervention is necessary.
1. Public Goods
Definition
Public goods are those goods that are non-excludable and non-rivalrous. This means one person using it does not reduce its use for others, and no one can be stopped from using it.
Example
- Street lighting
- National defense
- Public parks
Why It Fails?
Private companies don’t provide public goods because they cannot charge everyone. People become free riders, and so the good is under-produced or not produced at all.
Government Role
The government provides these goods using tax money to ensure everyone benefits.
2. Externalities
Definition
Externalities are side effects of economic activity that affect others who are not part of the decision. They can be positive or negative.
Examples
- Negative: Factory pollution affecting nearby people’s health.
- Positive: A person getting vaccinated helps stop the spread to others.
Why It Fails?
Market price doesn’t include these effects. So bad actions are overdone (like pollution) and good actions are underdone (like vaccination).
Government Role
The government imposes taxes on negative externalities (like carbon tax) and gives subsidies for positive ones (like free vaccines).
3. Monopoly Power
Definition
When one seller controls the market, it becomes a monopoly. There is no competition, so the seller can charge very high prices and reduce quality.
Example
- A private electricity company being the only supplier in a city.
Why It Fails?
Consumers have no choice. Price becomes high, and supply becomes low. Innovation also slows down.
Government Role
Government can regulate such markets or even take control of essential services to protect public interest.
4. Information Asymmetry
Definition
This happens when one party has more or better information than the other. Usually, the seller knows more than the buyer.
Example
- A person selling a used car hides its defects.
- In health sector, doctors know more than patients and may overcharge.
Why It Fails?
It creates unfair deals. People lose trust in market and may stop buying or investing.
Government Role
Government can make laws for disclosure, quality checks, and licensing to reduce this gap.
Relevance of Market Failure to Government Intervention
- Market failure gives justification for government role in the economy.
- It helps the government to correct the inefficiencies caused by private sector.
- Without intervention, poor people may suffer more, and inequality can increase.
- It ensures social justice and sustainable development.
- In countries like Pakistan, market failure is more common due to weak institutions and regulations.
Conclusion
Markets are not perfect. They often fail to provide goods fairly and efficiently. That’s why government has to step in—to protect the environment, provide basic needs, stop monopolies, and ensure fair information. Understanding market failure is key to making smart public policies that benefit the society as a whole.
Question 6
Discuss the functions and organizational structure of federal government of Pakistan including administrative relations between federal ministries and federal bodies such as commissions, authorities, boards & state-owned enterprises.
Introduction
The federal government of Pakistan is the highest level of government responsible for national affairs. It runs the country through a set structure made up of ministries, divisions, attached departments, and autonomous bodies like commissions and state-owned enterprises. These institutions play an important role in policy-making and service delivery.
1. Organizational Structure of Federal Government
The federal government is organized in the following way:
a) The Federal Cabinet
- Headed by the Prime Minister
- Includes ministers, ministers of state, and advisers
- Makes important decisions on national policies and administration
b) Federal Secretaries and Ministries
- Each ministry is headed politically by a Minister
- Administratively managed by a Federal Secretary (senior civil servant)
- Example: Ministry of Finance, Ministry of Education, etc.
c) Divisions
- Sub-parts of ministries that focus on specific areas
- For example, the Finance Division under Ministry of Finance
d) Attached Departments
- These are directly under the ministries but perform specific functions
- For example, Federal Board of Revenue (FBR) under Finance Ministry
e) Autonomous Bodies & Corporations
- Work independently but under the supervision of ministries
- Include commissions, authorities, boards, and state-owned enterprises
2. Functions of the Federal Government
- Policy Making: On national security, foreign affairs, economy, defence, etc.
- Law and Order: Maintain peace, control over law enforcement agencies
- Revenue Collection: Through taxation, customs, and other means
- Budgeting and Planning: Annual federal budget, development projects
- Foreign Relations: Embassies, international treaties, trade relations
- Defense Management: Armed forces, border control
- Regulation: Through bodies like SECP, PEMRA, NEPRA
3. Administrative Relations with Federal Bodies
There are different types of federal bodies that work under ministries but with varying degrees of autonomy:
a) Commissions
- Independent bodies made for specific duties
- Examples:
- Election Commission of Pakistan (ECP)
- Federal Public Service Commission (FPSC)
- Ministries only provide support, not full control
b) Authorities
- Semi-autonomous organizations with regulatory or service delivery roles
- Examples:
- National Highway Authority (NHA)
- Higher Education Commission (HEC)
- Usually report to a specific ministry but have their own boards
c) Boards
- Often used in sectors like finance, trade, and education
- Examples:
- Board of Investment (BOI)
- Pakistan Medical and Dental Council (PMDC)
- Provide expert opinions and manage policy implementation
d) State-Owned Enterprises (SOEs)
- Government-owned companies in sectors like railways, energy, etc.
- Examples:
- Pakistan Railways
- Pakistan International Airlines (PIA)
- These report to relevant ministries but face issues like inefficiency and losses
4. Challenges in Coordination
- Overlapping Functions: Sometimes two bodies work on same issue, causing confusion
- Lack of Autonomy: Ministries interfere in autonomous bodies’ work
- Political Interference: Appointments and decisions are politicized
- Bureaucratic Delays: Slow decision-making due to red tape
- Financial Dependence: Many bodies don’t have financial independence
Conclusion
The federal government of Pakistan is a big setup with ministries and various federal bodies like commissions, authorities, and SOEs. Each has a role in running the country, but their coordination must improve. There should be clear roles, transparency, and merit-based appointments to make the system efficient and people-focused.
Question 7
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 to regulate the economy’s business cycle.
Introduction
The federal budget is a financial plan that shows how the government earns and spends money in a year. It is not just an accounting tool but also a policy instrument. In Pakistan, the budget process is very important because it helps in running the state, supporting development, and controlling inflation or unemployment through fiscal policy.
Federal Budget Process in Pakistan
The budget cycle in Pakistan has different stages:
1. Budget Preparation
- Starts in November–December each year
- Ministries and departments submit their estimated needs to the Ministry of Finance
- Finance Division reviews proposals and sets ceilings based on revenues and priorities
- A Budget Strategy Paper (BSP) is prepared to guide the process
2. Approval from NEC and Cabinet
- National Economic Council (NEC) and Federal Cabinet give final approval to development and non-development allocations
- Annual Plan Coordination Committee also gives input for development targets
3. Presentation in Parliament
- The budget is presented in June by the Finance Minister in National Assembly
- Includes Annual Budget Statement, Finance Bill, and Explanatory Memorandum
- The National Assembly holds general discussion and detailed demand-for-grant discussions
4. Budget Execution
- After approval, funds are released in quarters to different ministries
- Ministries must follow Public Finance Rules and PPRA Rules for spending
- Auditor General monitors spending
5. Audit and Evaluation
- Audit reports are submitted to Parliament
- Public Accounts Committee (PAC) reviews them
- This ensures transparency and accountability
Sources of Government Revenue in Pakistan
- Taxes (Income Tax, Sales Tax, Customs Duties, FED)
- Non-Tax Revenue (Dividends from SOEs, licenses, fines)
- External sources (Loans, grants from IMF, World Bank)
- Domestic Borrowing (from banks, national savings schemes)
Federal Budget as a Tool for Economic Regulation
The federal budget is also used for managing the business cycle. It works through fiscal policy, meaning changes in government spending and taxation to control inflation or stimulate growth.
a) During Inflation (Boom)
- Government reduces spending and increases taxes
- This reduces demand and cools down the economy
b) During Recession (Slowdown)
- Government increases spending (on jobs, projects)
- Cuts taxes to boost demand and investment
- Creates multiplier effect to restart economic growth
Challenges in Pakistan’s Budget System
- Huge Debt Servicing: A large part of the budget goes to pay loans
- Low Tax-to-GDP Ratio: Many people don’t pay taxes
- Political Interference: Budget priorities sometimes based on political goals
- Development vs. Non-development spending: Most money goes to non-productive areas
- Poor Implementation: Funds remain unutilized or misused
Conclusion
The federal budget in Pakistan is not just about numbers. It helps in running the government, delivering services, and managing the economy. But to make it more effective, the process should be transparent, tax system should be improved, and spending should focus on real development. A strong budget system can reduce poverty and help Pakistan move towards stability and growth.
Question 8
Write short notes on any TWO of the following:
a. Woodrow Wilson’s contribution to Public Administration
b. Difference between good governance and e-governance
c. Inter-governmental Relations at Federal and Provincial level in Pakistan
a. Woodrow Wilson’s Contribution to Public Administration
Woodrow Wilson is known as the father of Public Administration. His essay “The Study of Administration” published in 1887 is considered the starting point of public administration as an academic subject.
Main Contributions
- Separation of Politics and Administration
Wilson argued that politics and administration should be kept separate. Politicians should make policies, and administrators should implement them neutrally. - Administration as a Science
He believed that public administration can be studied scientifically, just like business or engineering. This idea gave birth to the academic field of public admin. - Focus on Efficiency
Wilson said that administration should focus on efficiency, speed, and accountability, like in private sector. - Comparative Approach
He also suggested comparing different governments to find the best administrative practices. - Strong Bureaucracy
He wanted a professional civil service that works based on merit, not political favoritism.
Conclusion
Wilson’s ideas laid the foundation for public administration. Even today, his thoughts are studied in every PA course. His vision helped to make government work more professional and less political.
b. Difference Between Good Governance and E-Governance
Both good governance and e-governance are important for modern governments, but they are not the same. They have different meanings and goals.
| Aspect | Good Governance | E-Governance |
| Meaning | Managing public affairs in a fair, accountable, and transparent way | Use of ICT (Information and Communication Technology) in government processes |
| Goal | Improve quality of decision-making and public service | Make services faster, paperless, and accessible |
| Focus | Values like transparency, rule of law, participation | Tools like websites, apps, online systems |
| Example | Honest and fair recruitment in civil services | Online job application system |
| Dependency | Can work without technology | Depends fully on digital technology |
Good Governance Principles
- Accountability
- Transparency
- Rule of Law
- Participation
- Responsiveness
E-Governance Tools
- Online portals (e.g. NADRA, FBR)
- Mobile apps
- Digital complaint systems
- E-payments
Conclusion
E-governance is a part of good governance. Good governance is the bigger picture, and e-governance is one of the tools to achieve it. In Pakistan, both are needed to improve public service delivery and reduce corruption.
c. Inter-Governmental Relations at Federal and Provincial Level in Pakistan
Meaning / Concept
Inter-governmental relations (IGR) refer to the working relationship, coordination, and power-sharing between the federal government and the provincial governments for making policies, sharing resources, and implementing laws and development projects.
Constitutional Base (Why IGR matters in Pakistan?)
Pakistan is a federal state, so functions are divided between federation and provinces. After the 18th Amendment, many subjects were devolved to provinces, so coordination became even more important to avoid conflict and duplication.
Major Areas of Federal–Provincial Relations
- Financial Relations (Most sensitive area)
- The federation collects major taxes, while provinces need funds for service delivery (health, education, local governance).
- The National Finance Commission (NFC) Award is the key mechanism for distributing revenues between federation and provinces.
- Policy and Planning Coordination
- National-level planning, development priorities, and large projects require joint understanding.
- Bodies like NEC (National Economic Council) help in harmonizing economic and development planning between federation and provinces.
- Legislative and Administrative Coordination
- Many sectors (energy, environment, higher education, internal security, disaster management) need shared roles.
- Provinces implement many policies, while the federation sets standards or handles international commitments, which demands coordination.
- Council of Common Interests (CCI) – Main Institutional Forum
- The CCI resolves disputes and ensures coordination on matters of common interest (like natural resources, electricity, major infrastructure).
- It is an important forum to prevent provincial grievances and maintain federation unity.
Key Issues / Problems in IGR (Pakistan Context)
- Resource disputes (distribution, delays in NFC, development allocations)
- Political tensions between center and provinces (especially when different parties are in power)
- Overlapping roles after devolution, causing confusion in implementation
- Weak coordination mechanisms and irregular meetings of forums
- Trust deficit and accusations of federal domination by provinces
Ways to Improve IGR
- Hold regular and effective CCI/NEC meetings with timely decisions
- Strengthen institutional coordination instead of personality-based politics
- Transparent implementation of NFC and project funding
- Improve data-sharing and joint planning for national challenges (water, energy, climate, security)
- Respect provincial autonomy while maintaining national cohesion
Conclusion
Strong inter-governmental relations are essential for a smooth federal system. In Pakistan, better coordination between federation and provinces improves service delivery, reduces conflicts, and strengthens national unity—especially after increased provincial responsibilities post-devolution.
📘 Benefits of Practicing This Descriptive Paper
- ✅ These CSS Past Paper 2022 Public Administration Descriptive questions are compiled from authentic FPSC CSS past papers, following the real written exam format.
- 💬 Attempting this CSS Past Paper 2022 Public Administration Descriptive helps students master structured writing and analytical skills for CSS exams.
- 🧾 Every question in this CSS Past Paper 2022 Public Administration Descriptive strictly follows the official CSS exam syllabus approved by FPSC.
- 📊 Students preparing for CSS 2022 can rely on this CSS Past Paper 2022 Public Administration Descriptive to practice time management and topic selection.
- 🔍 The solved CSS Past Paper 2022 Public Administration Descriptive contains concise explanations to improve conceptual understanding and writing clarity.
- 🎯 Regular revision of this CSS Past Paper 2022 Public Administration Descriptive builds confidence and strengthens your preparation for the CSS written paper.
- 🏆 This CSS Past Paper 2022 Public Administration Descriptive is essential for mastering exam techniques and achieving success in the FPSC CSS 2022 examination.
🏁 Final Note
Keep revising these CSS Past Paper 2022 Public Administration Descriptive to strengthen your grip on important concepts and improve accuracy in upcoming CSS exams. Regular practice with these CSS Past Paper 2022 Public Administration Descriptive will help you score higher and build full command over the CSS exam syllabus.
📰 Check out other years’ past papers of Public Administration.
🔗 Check FPSC past papers directly from the official FPSC website.
