CSS Special Exam Past Paper 2023 Public Administration Descriptive

CSS | Past Paper | Group 3 | 2023 | Part 2 | Descriptive | Special Exam

Below is the solution to PART-II (COMPULSORY) of the CSS Special Exam Past Paper 2023 Public Administration Descriptive (Part 2).

Question 2

E-Governance is an effective tool for civic engagement as well as effective service delivery. Discuss with reference to best practices around the world, with particular reference to developing countries.

Introduction

E-Governance means using digital tools like websites, apps, and online systems to run the government better. It’s not just about putting services online, but also making sure people can easily interact with the government. In today’s world, e-governance is very important for both civic engagement and service delivery, especially in developing countries like Pakistan.

What is Civic Engagement in E-Governance?

Civic engagement means when citizens take part in government decisions and give feedback. Through e-governance tools like:

Online feedback forms
Social media platforms
E-petitions
Government apps

people can now raise their voices and take part in the decision-making process. It helps in building transparency, trust, and makes sure that government knows what people really need.

Effective Service Delivery through E-Governance

Governments now offer services like:

Online utility bills
E-passport applications
Online FIR registration
Land record digitization

These services save time, reduce corruption, and help in better management of resources. For example, in Pakistan, Punjab Land Record Authority made it easy for people to get land records without bribes or delays.

Best Practices Around the World

Let’s look at how other countries are doing it:

Estonia: Known as the world’s most digital country. 99% of its public services are online. They have an e-residency program and people vote online in elections.
India: Through the Digital India initiative, services like Aadhaar, e-Hospital, and online banking in villages became possible.
Rwanda: Introduced Irembo, an online platform to access services like birth certificates, driver’s licenses, and police clearance easily.
Brazil: Their e-government platform provides real-time info about government budgets, spending, and policies.

These examples show how e-governance can improve both trust and performance of governments.

E-Governance in Developing Countries – Challenges

In many developing countries like Pakistan, there are problems such as:

Lack of internet access in rural areas
Low digital literacy
Cybersecurity risks
Weak infrastructure and political will
Bureaucratic resistance to change

Due to these reasons, e-governance is not fully successful in many regions, especially outside the cities.

Way Forward for Developing Countries

To make e-governance successful, following steps can be taken:

Expand internet access in remote areas
Run digital training programs for citizens and government staff
Strengthen data privacy and cybersecurity laws
Ensure political stability and reduce red tape
Encourage public-private partnerships in tech development

Conclusion

E-Governance is a powerful way to improve both citizen participation and service delivery. Though developing countries face many hurdles, with the right vision and political will, it can bring a major change. Countries like Pakistan must learn from global best practices and focus on digital inclusion to ensure no citizen is left behind.

Question 3

According to Fred W. Riggs, what are the major features of the administration of a Prismatic society? Do these features exist in the administrative system of Pakistan? Elucidate.

Introduction

Fred W. Riggs was a famous scholar in public administration. He gave the “Prismatic Society” model in his theory called the “Fused-Prismatic-Diffracted model”. This model was made to explain how public administration in developing countries works, where both traditional and modern features exist at the same time.

What is a Prismatic Society?

A Prismatic society is in-between the traditional and modern stage. It is not fully developed or completely backward. It shows a mixture of both old customs and modern systems, which creates confusion in administration. Riggs mainly studied countries like Thailand, but his model also applies to countries like Pakistan.

Major Features of Prismatic Society (According to Riggs)

a. Heterogeneity

In this society, different social, cultural, and administrative systems run side by side.
Example: Modern education and religious madrassas both exist.

b. Formalism

There are rules and laws written on paper, but in reality, they are not followed properly.
People follow personal connections (sifarish) more than rules.

c. Overlapping Roles

One office or department performs many roles that don’t match.
For example, a DC (Deputy Commissioner) in Pakistan has roles in administration, judiciary, and development — all at once.

d. Nepotism and Corruption

People get jobs or contracts based on relations, not merit.
Bribery and favouritism are common in offices.

e. Lack of Specialization

Officials are not experts in their field.
A person trained in one area is shifted to a totally different department.

f. Bazaar-Canteen Model

This means that market activities are not fully regulated.
You will find both modern malls and illegal street vendors working together without proper rules.

Do These Features Exist in Pakistan?

Yes, many features of Prismatic society can clearly be seen in Pakistan’s administrative system.

a. Formalism in Pakistan

Constitution and civil service laws exist but not properly followed.
Many policies stay only on paper.

b. Nepotism and Political Influence

Appointments and promotions are often based on political links instead of merit.
Police and local departments face strong political pressure.

c. Corruption

Pakistan ranks low in Transparency International’s Corruption Index.
Bribes are common to get even basic services like utility connections or land records.

d. Lack of Specialization

Officers from generalist cadres (like PAS/DMG) handle technical departments like Health, IT, or Environment, which affects performance.

e. Heterogeneity in Governance

Feudal customs, tribal systems, and modern democratic institutions all run side by side.
In Balochistan and interior Sindh, tribal justice systems still work.

Effects of Prismatic Features on Administration in Pakistan

Weak rule of law
Public mistrust in institutions
Poor service delivery
Lack of accountability
Slow reforms due to resistance from elite class

How to Overcome This Situation?

Strict implementation of laws and rules
Promotion based on merit, not connections
Invest in training and specialization of civil servants
Reduce political interference in bureaucracy
Encourage institutional reforms and digital governance

Conclusion

Fred Riggs’s model of Prismatic society is still very relevant to countries like Pakistan. Even after 75+ years of independence, many prismatic features like corruption, overlapping roles, and weak law enforcement are present. To become a modern and developed state, Pakistan must work on removing these features and strengthen its institutions with merit, transparency, and accountability.

Question 4

Local governance in Pakistan is perpetually afflicted with lack of financial autonomy and ineffective devolution of power at grassroots level. Discuss the underlying reasons and suggest remedies to overcome these hurdles.

Introduction

Local governance is the third tier of government that works closest to the people. In Pakistan, this system is meant to solve problems at the grassroots level. But sadly, it has always faced problems like lack of financial power, limited authority, and political control by higher levels of government. Because of this, local bodies can’t perform their duties properly.

Importance of Local Governance

Delivers basic services like water, sanitation, health, and education
Increases public participation
Helps in quick decision-making
Reduces burden on provincial and federal governments

Problems in Local Governance in Pakistan

a. Lack of Financial Autonomy

Local governments depend on grants from provinces.
They have very few sources of income like taxes or fees.
Provinces often delay funds or divert them to their own projects.

b. Weak Devolution of Power

Provinces keep most of the authority with themselves.
Local bodies have limited powers in planning and executing projects.
Officials like Deputy Commissioners still have more say than elected local reps.

c. Political Interference

Provincial governments don’t want to share power with local ones.
Often, local governments are dissolved before completing their term.
Elections are delayed purposely to avoid power-sharing.

d. Poor Capacity and Corruption

Local staff are not properly trained.
There is lack of professional planning and project management skills.
Corruption is common in contracts and use of funds.

e. Legal and Structural Issues

Every government brings its own local government act.
There is no stable system.
Judiciary also plays a confusing role sometimes by delaying or stopping elections.

Case Study: Local Governments Under 18th Amendment

The 18th Amendment gave provinces more power, but they didn’t pass it down to local levels.
The spirit of Article 140-A of the Constitution, which talks about elected local governments, is not followed.
Example: In Punjab, local bodies were dissolved in 2019 and elections were delayed for years.

Remedies to Overcome These Hurdles

a. Constitutional Protection

Local governments should be given clear protection in the Constitution.
Their tenure and powers must be safeguarded.

b. Fiscal Empowerment

Allow local bodies to collect taxes like property tax or business license fees.
Ensure automatic and timely transfer of funds from provinces.

c. Capacity Building

Train staff in modern governance, planning, and digital tools.
Appoint qualified professionals instead of political favourites.

d. Clear Division of Powers

Define roles of provincial and local governments to avoid overlapping.
Reduce interference from provincial bureaucracy.

e. Transparent Elections

Conduct regular and fair local elections under Election Commission of Pakistan.
Ban provincial governments from delaying local elections.

f. Use of Technology

Introduce e-governance at local level to improve service delivery.
Use online systems to track budgets, complaints, and project progress.

Conclusion

Local governments are the backbone of good governance in any country. In Pakistan, their failure is mainly due to lack of political will, financial dependence, and weak implementation of devolution. If Pakistan wants real development at grassroots, it must empower local bodies with real authority, resources, and independence. Only then will true democracy and public service be possible.

Question 5

Describe the shift in the theory and practice of public administration from the traditional Weberian model to neo liberal market based model.

Introduction

Public Administration has changed a lot over the years. Earlier, the Weberian model was followed, which focused on rules, hierarchy, and discipline. But now, many governments are moving towards the neo-liberal market-based model, which focuses on efficiency, privatization, and competition.

This shift happened mainly because of globalization, economic crises, and public demand for better services. The old system was seen as slow and rigid, while the new one tries to be fast and business-like.

Traditional Weberian Model – Main Features

This model was given by Max Weber, a German sociologist. He believed bureaucracy is the best way to run the government.

Key Features

Hierarchy: Clear chain of command
Rules-based: Everything is done according to written rules
Impersonality: No favouritism
Merit-based recruitment: Jobs given based on qualifications
Job security: Permanent jobs with fixed salaries

Goals

Maintain law and order
Deliver public services in a predictable and fair way
Keep politics separate from administration

Limitations of Weberian Model

Very slow decision-making
Too much red-tape and paperwork
Less focus on performance or outcomes
Citizens treated more like “subjects” than “clients”
Hard to adjust in a fast-changing world

Shift to Neo-Liberal Market-Based Model

From the 1980s onwards, many countries started reforms to reduce the size of government and increase efficiency. This gave birth to a new idea called New Public Management (NPM), based on neo-liberal ideas.

Key Features of Neo-Liberal Model

Privatization of state-owned enterprises
Use of market competition in public services
Focus on results, not rules
Citizens seen as clients or customers
Performance-based pay and contracts
More use of IT and digital tools

Goals

Reduce government costs
Increase efficiency and flexibility
Improve service quality

Differences Between Weberian and Neo-Liberal Models

Aspect	Weberian Model	Neo-Liberal Model
Structure	Rigid hierarchy	Flat, flexible
Rules	Strict rules	Performance focus
Role of State	Direct provider	Regulator/facilitator
Citizen View	Subjects	Customers
Decision-Making	Centralized	Decentralized
Accountability	Procedure-based	Result-based

Examples from Around the World

UK: Under Margaret Thatcher, many services were privatized. Civil service was reduced and more performance targets were introduced.
New Zealand: Introduced radical reforms. Ministries turned into small business-like units. Contracts and performance pay introduced.
USA: Launched National Performance Review under Clinton to “make government work better and cost less”.

Impact on Developing Countries Like Pakistan

Some reforms have been introduced in Pakistan too, like:

Public-Private Partnerships (PPPs) in health and education
Digital governance like online portals and e-filing
Privatization of some loss-making organizations like PIA and Steel Mills (though not fully successful)

Challenges in adopting neo-liberal model:

Weak institutions
Political interference
Corruption and lack of transparency
Public backlash over job cuts or price hikes after privatization

Balanced Approach Needed

While neo-liberal reforms can improve service delivery, full privatization without regulation can hurt poor people. So, a hybrid model is better:

Use market tools where needed (like outsourcing waste management)
Keep core services like police, judiciary, and national security under government
Make bureaucracy more accountable and efficient, not just smaller

Conclusion

The shift from the Weberian model to the neo-liberal model shows how governments are trying to meet the changing needs of the people. Weber’s model gave structure and order, but the modern world demands speed, innovation, and results. Developing countries like Pakistan should learn from global reforms, but also adjust them according to local needs and values.

Question 6

Outline main features of Public Private Partnerships & describe its scope and Limitations with reference to Pakistan.

Introduction

Public-Private Partnership (PPP) is a system where the government and private sector work together to complete big projects, especially in infrastructure, health, and education. The idea is to combine public goals with private efficiency. This model is used in many developing countries like Pakistan to improve service delivery and reduce the financial burden on the government.

Main Features of Public-Private Partnership (PPP)

a. Shared Responsibility

Both public and private sectors share risks, costs, and benefits.
Government provides support, and private sector handles operations.

b. Long-Term Agreement

Most PPPs are signed for 15–30 years.
This helps the private investor recover their money.

c. Clear Contracts

A detailed agreement is made between both parties covering roles, payments, timelines, and penalties.

d. Performance-Based

Private partners are paid based on output and performance, not just efforts.

e. Infrastructure Development

PPPs are mostly used in projects like roads, hospitals, power plants, airports, etc.

f. Innovation and Efficiency

The private sector brings new ideas, latest technology, and better project management.

Scope of PPP in Pakistan

Pakistan needs huge investments in transport, energy, education, health, and water management. But the government alone doesn’t have enough funds. So PPP can help:

a. Roads and Highways

Projects like Lahore-Islamabad Motorway (M2) and Lahore Ring Road used PPP models.

b. Energy Projects

Independent Power Producers (IPPs) were launched under PPP, helping reduce load-shedding.

c. Education and Health

Some provinces like Punjab have used PPP to run schools and clinics in backward areas.

d. Public Transport

Lahore Metrobus and Orange Line Train involved private firms in construction and operation.

e. Housing and Urban Development

PPP can be used for affordable housing projects under schemes like Naya Pakistan Housing Program.

Benefits of PPP in Pakistan

Reduces government burden
Brings in foreign investment and expertise
Faster project delivery
Improves service quality
Helps in job creation and economic growth

Limitations and Challenges of PPP in Pakistan

a. Weak Legal Framework

Pakistan lacks strong PPP laws at the national level.
Some provinces have PPP Acts, but implementation is weak.

b. Political Instability

Sudden changes in policies or governments affect long-term agreements.

c. Corruption and Mismanagement

Lack of transparency in awarding contracts leads to corruption and public distrust.

d. Poor Project Planning

Many PPP projects face delays and cost overruns due to weak planning by government agencies.

e. Capacity Issues

Government officials often lack technical knowledge to deal with private firms.

f. Profit Over Public Interest

Sometimes private firms focus more on profit than public welfare.

Suggestions to Improve PPP in Pakistan

Make a strong national PPP policy with clear guidelines.
Set up independent PPP units in each province with trained staff.
Ensure transparent bidding and monitoring.
Use digital systems to track project progress and payments.
Encourage public awareness and feedback for accountability.
Offer incentives like tax relief to attract investors.

Conclusion

Public-Private Partnership is a powerful tool to solve Pakistan’s development problems. It helps in using private money and skills for public benefit. But for PPPs to succeed, the government must ensure transparency, proper planning, and strong legal protections. With smart use of PPPs, Pakistan can achieve better infrastructure and public services without increasing its debt.

Question 7

Human Motivation plays a pivotal role in the harnessing of abilities of the employees. Discuss the statement in the light of Douglas McGregor’s theory of motivation.

Introduction

Human motivation is one of the most important things in public and private organisations. If employees are not motivated, they will not perform well, no matter how talented they are. Motivation brings out the hidden potential of workers and helps organisations achieve their goals.

Douglas McGregor, a famous management expert, explained motivation through his Theory X and Theory Y. These two theories show two different views of human nature and how managers treat their employees based on those views.

Importance of Motivation in Organisations

Increases productivity and efficiency
Helps in achieving targets on time
Improves employee satisfaction and loyalty
Reduces absenteeism and turnover
Encourages creativity and innovation

If employees feel valued and motivated, they work with more energy and interest.

Douglas McGregor’s Theory of Motivation

McGregor gave his Theory X and Theory Y in 1960 in his book “The Human Side of Enterprise”. He said that managers usually have two types of assumptions about their workers:

A. Theory X (Traditional View)

In this view, employees are seen as:

Lazy and avoid work
Need to be closely supervised
Want job security only, not responsibility
Avoid challenges and responsibilities
Work only for money

Management Style:

Strict control
Use of threats and punishments
Authoritarian leadership
Focus on rules and structure

This approach is used in many government offices and traditional bureaucracies, where employees are not trusted much.

B. Theory Y (Modern View)

In this view, employees are seen as:

Self-motivated and responsible
Enjoy work if it is meaningful
Can be creative and innovative
Want to grow and develop skills
Work not only for money but also for achievement

Management Style:

Participative leadership
Give freedom and responsibility
Encourage teamwork
Focus on developing employee potential

This approach is mostly used in modern organisations and private firms where workers are given respect and trust.

Comparison Between Theory X and Theory Y

Feature	Theory X	Theory Y
Attitude towards work	Negative	Positive
Manager’s approach	Controlling	Supportive
Motivation type	External (money, fear)	Internal (growth, responsibility)
Communication	One-way	Two-way
Leadership style	Autocratic	Democratic

Application in Public Sector of Pakistan

In many government departments of Pakistan, the system still follows Theory X. Employees are often seen as lazy or unmotivated. There is:

Strict rules and procedures
Little appreciation or reward system
Promotions based on seniority, not performance
Limited participation in decision-making

Because of this, most employees do only the minimum work required.

But if Theory Y is applied, it can bring big improvements:

Motivated staff can give better public service
Encouraging ideas can improve policy-making
Employees can become accountable and self-driven

How to Use Theory Y for Better Motivation?

Give recognition and rewards for good work
Provide training and development opportunities
Allow staff to participate in decisions
Set clear goals and performance feedback
Build a positive work environment with trust

These steps help employees feel respected and involved.

Limitations of the Theory

Not all employees are self-motivated
Some workers still need close supervision
It is hard to apply Theory Y in rigid bureaucracies
Managers must know how to balance both approaches

Sometimes a mix of Theory X and Theory Y is more effective depending on the situation.

Conclusion

Motivation is the key to unlocking the real power of employees. Douglas McGregor’s theory shows that how managers see their workers affects how they treat them, and that affects the performance of the whole organisation. Pakistan’s public sector needs to shift from Theory X to Theory Y thinking, so that employees can be trusted, empowered, and encouraged to perform their best.

Question 8

In what ways can interest groups influence the making and implementation of public policy? Elucidate the statement with reference to Pakistan.

Introduction

Interest groups are organized groups of people who try to influence government decisions and policies to benefit their own cause or community. These groups can be professional, religious, business-related, ethnic, or issue-based. They play a big role in shaping public policy in many countries, including Pakistan.

Even though they don’t make laws themselves, they can pressure, persuade, or advise policymakers to adopt decisions in their favour. This can be good or bad, depending on the intentions of the group and the way they act.

Types of Interest Groups

Business Groups – Chambers of commerce, traders’ associations
Religious Groups – Religious parties or organisations
Professional Groups – Doctors, teachers, lawyers’ associations
Agricultural Groups – Farmer unions
Civil Society and NGOs – Working for human rights, education, etc.
Ethnic and Regional Groups – Groups based on language or region

How Interest Groups Influence Public Policy?

a. Lobbying

They meet with politicians, ministers, and bureaucrats to convince them to pass or change laws.
Example: Business groups pushing for tax cuts.

b. Media Campaigns

Use TV, newspapers, and social media to build public opinion and pressure the government.

c. Protests and Strikes

Workers or farmers may strike to demand better policies.
Example: Teachers protesting for better pay.

d. Funding Political Parties

Some groups give financial support to parties during elections, expecting favours later.

e. Legal Actions

They can file cases in courts to challenge or support policies.

f. Expert Advice

Professional groups give technical input on policies.
For example, doctors’ associations helping in shaping health policies.

Interest Groups in Pakistan – Examples

a. Religious Groups

Religious parties have influenced education syllabus, blasphemy laws, and family laws.
They use street power and emotional slogans to pressurize the state.

b. Business Community

Chambers of commerce often influence the budget and tax policies.
Many businessmen are also members of Parliament, which gives them more power.

c. Lawyers’ Movement (2007–2009)

One of the most powerful examples. Lawyers forced the government to restore judiciary through massive protests.

d. Doctors’ and Teachers’ Associations

They go on strikes for salary increases, better service structures, and policy changes.

e. Ethnic and Regional Parties

Groups like MQM, Baloch nationalist parties, or Sindhi nationalists demand language rights, job quotas, and provincial autonomy.

f. Civil Society and NGOs

These groups influence policies on women rights, child labour, climate change, and transparency.

Positive Impact of Interest Groups

Help represent public needs to the government
Provide expert knowledge for better policies
Improve accountability and participation
Give voice to minority or weak groups
Promote democratic values

Negative Impact of Interest Groups

Some groups only work for their own benefit, not national interest
Can lead to corruption and unfair influence
May promote violence or extremism (like some banned outfits)
Can slow down reforms due to pressure tactics
Influence can lead to policy imbalance, favouring rich over poor

Suggestions to Regulate Interest Groups

Make a legal framework to register and monitor interest groups
Ensure transparency in lobbying and political funding
Ban interest groups that use violence or hate speech
Encourage public participation in policy-making to balance elite influence
Train politicians and bureaucrats to handle pressure ethically

Conclusion

Interest groups are a natural part of any democratic system. In Pakistan, they play both positive and negative roles in policy-making. If properly regulated, they can be helpful in improving governance and making policies that reflect the real needs of the people. But when misused, they can weaken institutions and create unfair advantages for certain groups. The state must ensure a balance between influence and accountability to make public policy fair and effective.

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