UPSC Mains Answer PYQ 2024: Public Administration Paper 2 (Section- A) | Public Administration Optional for UPSC (Notes) PDF Download

Section A

Q1: Answer the following in about 150 words each: (10 × 5 = 50 Marks)
(a) "Ethics in Public services has been the main concern of Kautilya's Arthashastra." Examine the statement.
Ans: Kautilya's Arthashastra places significant emphasis on the ethics of governance and public service, highlighting the importance of integrity, responsibility, and accountability in the functioning of rulers and officials. According to Kautilya, rulers should ensure that their ministers and officers uphold high ethical standards to maintain the legitimacy of governance and public trust. He proposed strict codes of conduct for public officials, including their duty to protect state interests and serve the public impartially.
Kautilya’s concept of Dharma in administration stresses that the end does not justify the means. Ethical behavior, for Kautilya, was not just about avoiding corruption but also about ensuring fairness and justice in decision-making. He also emphasized the role of the spy network to ensure accountability, which reflects a pragmatic approach to governance where ethics were enforced through vigilance and oversight.
Thus, ethics in public service was integral to Kautilya’s vision of efficient, just, and sustainable governance, reinforcing the idea that ethical practices are foundational for effective public administration.

(b) "The Mughal Administration was by nature centralised." Analyse.
Ans: The Mughal administration was highly centralized, with a strong emphasis on the authority of the emperor. The emperor, often referred to as the Padishah, was the supreme authority, wielding control over military, administrative, and judicial matters. The administrative structure was designed to ensure a unified command under the emperor, with a series of appointed officials to assist in governance.
The Mughal system featured a centralized bureaucracy with key officials such as viziers, governors, and military commanders reporting directly to the emperor. The mansabdari system, in which military officers held ranks (mansabs) based on their loyalty, service, and military responsibilities, further reinforced central control. Regional rulers and nawabs were expected to maintain loyalty to the emperor while administering their territories on behalf of the central authority.
However, despite its centralized structure, there was some delegation of power to local officials, which at times weakened central control, especially in the later years of the Mughal Empire. This decentralized power in practice, however, did not diminish the fundamentally centralized nature of the Mughal administration during its peak.

(c) "Autonomy to Public Undertakings is a myth." Analyse.
Ans: The concept of autonomy in public undertakings has been widely debated, particularly in the context of public sector enterprises (PSEs). While PSEs are intended to operate independently, with a degree of freedom from direct governmental control, in practice, their autonomy is often limited by political influence, bureaucratic interference, and government regulations.
Despite being given formal autonomy, most public undertakings are subject to the bureaucratic machinery and political pressures, which influence their decision-making. Government-appointed boards and ministers often have a significant say in the operations, policies, and strategic decisions of these enterprises. For example, decisions on pricing, staffing, and investments in PSEs are frequently influenced by the political considerations of the ruling government rather than purely business or economic factors.
The example of Indian Railways or Air India shows how even large, independent entities are impacted by government directives on subsidies, pricing policies, and even appointments, undermining their autonomy.
In conclusion, while public undertakings are technically autonomous, political and bureaucratic control often undermines this autonomy, making it more of a myth in practical terms.

(d) "It should be people's Prime Minister Office (PMO), it can't be Prime Minister's PMO." Comment.
Ans: The statement emphasizes the notion that the Prime Minister’s Office (PMO) should function as an institution serving the people and the nation, rather than being seen solely as an extension of the Prime Minister’s personal office. The PMO is the epicenter of governance, handling coordination, communication, and decision-making, and is crucial for ensuring the smooth functioning of government machinery. However, the PMO should prioritize public interest over political or individual agendas.
The idea of a "people’s PMO" reflects the need for the PMO to be accountable and transparent. It should work in the service of the government of the day and the citizenry, ensuring that the policies and decisions made reflect collective aspirations rather than personal interests. For example, the PMO’s role in key policy decisions like the demonetization in 2016 was highly debated, with critics arguing that it appeared more as a political tool than an objective governmental body.
In conclusion, for the PMO to retain its credibility and effectiveness, it must align itself with the principles of accountability, transparency, and public service, thus distancing itself from political motives and focusing on the welfare of the people.

(e) "Implementation of Goods and Services Tax (GST) has led to a Paradigm shift in the centre-state relations, both financially and politically." Analyse.
Ans: The implementation of the Goods and Services Tax (GST) in India in 2017 marked a significant shift in centre-state relations, fundamentally altering the fiscal and political landscape of the country.
Financial Impact: GST introduced a unified tax system by replacing various indirect taxes like VAT, excise, and service tax. This led to a consolidation of tax revenue, which was previously collected by both the centre and states separately. The GST Council, consisting of both central and state representatives, now oversees the tax structure, which has led to a more cooperative fiscal relationship. States, however, initially expressed concerns over revenue losses, but the compensation mechanism introduced by the central government for five years ensured financial stability for states. Over time, this has reduced tax-related disputes between the centre and states.
Political Impact: Politically, GST has shifted the balance of power, fostering a more collaborative federal system. It has allowed for more shared decision-making and consultation through the GST Council, which gives states a voice in tax decisions. However, states continue to have mixed views on autonomy, particularly with the central government’s influence on setting tax rates.
In conclusion, GST has created a paradigm shift by strengthening cooperative federalism, enhancing financial transparency, and promoting uniformity in tax policies, but also raising concerns regarding state autonomy in taxation. It has made centre-state relations more interdependent and collaborative while shifting some aspects of fiscal power to the centre.

Q2:
(a) The National Data and Analysis Platform (NDAP) of NITI Aayog facilitates a robust ecosystem to promote democratisation and inclusivity in development. Discuss. (20 Marks)
Ans: The National Data and Analysis Platform (NDAP), launched by NITI Aayog, aims to provide accessible, user-friendly, and reliable data for evidence-based policymaking. It is designed to democratize data, enabling stakeholders from various sectors, including researchers, policymakers, businesses, and civil society, to access government data and use it for development purposes.
NDAP's Contribution to Democratization:

1. Access to Data: By making government datasets freely available, NDAP helps citizens, researchers, and policymakers engage with development processes more effectively, promoting transparency and accountability.
2. Public Participation: The platform fosters an inclusive environment by enabling public participation in data-driven governance, allowing marginalized communities to use data to advocate for their rights and needs.
3. Empowerment through Information: Empowering communities with access to real-time data strengthens democratic processes, ensuring that decisions are informed by diverse inputs, and not just elite or central narratives.

Inclusivity in Development:

1. Targeted Interventions: NDAP allows for the collection of data on socio-economic indicators, which can be used to design policies targeting the specific needs of underprivileged groups, promoting social justice.
2. Regional Development: By focusing on data that spans regions, NDAP allows for region-specific policies, fostering equitable development across India.

In conclusion, NDAP serves as a vital tool for democratizing development by ensuring that data is accessible to all, promoting informed decision-making and inclusive growth.

(b) Examine the impact on administration in view of changing relations between political and permanent executive. (20 Marks)
Ans: The relationship between the political executive (elected officials, such as ministers) and the permanent executive (civil servants and bureaucrats) plays a crucial role in shaping governance. Over time, this relationship has evolved due to changing political dynamics, administrative reforms, and shifts in governance priorities.
Impact on Administration:

1. Increased Political Influence: Over recent decades, political influence over the bureaucracy has grown, often leading to bureaucrats being directly aligned with political agendas. This can speed up decision-making in line with political priorities but may also compromise neutrality and objectivity in administration.
2. Politicization of Bureaucracy: In many cases, appointments and promotions within the civil services are influenced by political considerations, as seen in the appointment of officials based on party affiliation or political loyalty. This can lead to a compromised meritocracy and lower efficiency.
3. Policy Continuity and Stability: The permanent executive provides stability in administration by ensuring continuity, even when political leadership changes. However, frequent political interference can lead to policy disruptions, affecting long-term projects and developmental schemes.
4. Capacity Building: Increased interaction between political leaders and civil servants has helped in capacity building, as bureaucrats are expected to adapt to new political ideas and methodologies, leading to innovative solutions. However, this also risks overburdening bureaucrats with political tasks.

In conclusion, while closer relations between the political and permanent executive can lead to better coordination and quicker policy implementation, it can also undermine bureaucratic autonomy and compromise administrative effectiveness, highlighting the need for a balance between the two.

(c) Decentralised planning enhances economic development and social justice. Analyse. (10 Marks)
Ans: Decentralized planning refers to the process where planning and decision-making powers are transferred from the central government to local governments or grassroots-level organizations. It promotes the participation of communities in the planning process, ensuring that policies and resources are distributed based on local needs.
Economic Development:

1. Locally Tailored Solutions: Decentralized planning allows for the formulation of policies and projects that are more responsive to local economic conditions. This ensures that resources are allocated efficiently, and development projects are tailored to specific regional needs, enhancing economic growth.
2. Increased Local Investment: By empowering local authorities, decentralized planning attracts local investments, stimulates entrepreneurship, and ensures that economic benefits are more equitably distributed within communities. Local businesses are more likely to thrive when decisions are made closer to them.

Social Justice:

1. Inclusive Development: Decentralized planning ensures that marginalized groups have a voice in decision-making, which can lead to the implementation of policies that directly address poverty, inequality, and social exclusion. Local authorities are better placed to address the unique challenges faced by vulnerable communities.
2. Improved Service Delivery: Decentralized planning ensures that essential services such as education, healthcare, and housing are more accessible to marginalized communities, promoting greater social justice.

In conclusion, decentralized planning fosters both economic development and social justice by empowering local entities to cater to their specific needs and challenges, ensuring more effective and equitable distribution of resources.

Q3:
(a) "The role of State Finance Commission in distribution of finances between state and local governments is vital." Discuss. (20 Marks)
Ans: The State Finance Commission (SFC) plays a pivotal role in ensuring the equitable and efficient distribution of financial resources between state governments and local governments. The SFC is constitutionally mandated under Article 243-I of the Indian Constitution, which directs the establishment of the commission every five years.
Role of the State Finance Commission:

1. Revenue Distribution: The SFC is responsible for recommending the division of financial resources between the state and local bodies, including Panchayats and Municipalities. It ensures that local governments receive adequate resources to meet their responsibilities, particularly in sectors like health, education, and infrastructure.
2. Financial Devolution: It assesses the needs and capacities of local governments to ensure that funds are allocated appropriately. The SFC's recommendations enhance fiscal autonomy of local bodies, helping them plan and execute development projects tailored to their local needs.
3. Promoting Local Governance: By ensuring that local governments have the necessary financial autonomy, the SFC promotes decentralized governance, allowing communities to be more responsive to their own issues and challenges.

For example, the Maharashtra State Finance Commission has played a significant role in improving the financial status of Panchayati Raj institutions in the state, contributing to better service delivery.

In conclusion, the SFC’s role is crucial in ensuring that local governments are financially empowered, leading to more effective local governance and development, thereby bridging the gap between the state and local levels of governance.

(b) "Centre-state relations are undergoing a drastic change." Elaborate. (20 Marks)
Ans: Centre-state relations in India have evolved significantly since independence, shifting from a more centralized system to one where federal dynamics are gaining prominence. The changing nature of these relations is a reflection of the country's political, economic, and administrative developments.
Key Changes in Centre-State Relations:

1. Fiscal Federalism: With the Goods and Services Tax (GST), there has been a significant shift in the financial relations between the centre and states. GST has centralized the taxation system, although it has introduced a cooperative federal model through the GST Council, where both centre and states share decision-making power.
2. Political Influence: The increasing political assertiveness of states has led to more collaborative governance, as seen in the growing influence of state leaders and regional parties on national policies. For instance, regional parties like Trinamool Congress and DMK have played a crucial role in shaping centre-state policy debates.
3. Schemes and Funding: With the shift towards direct transfers to states through schemes like Direct Benefit Transfer (DBT), states are becoming more involved in policy implementation. However, political differences between the central and state governments, such as between the BJP-led Centre and non-BJP state governments, have sometimes led to tensions over funding and policy direction.
4. Devolution of Power: Over time, the central government has made efforts to decentralize power and enhance the autonomy of state governments, allowing for more tailored policies. This is evident in the NITI Aayog's role in policy discussions and the implementation of various state-specific schemes.

In conclusion, the shift from a centralized to a more cooperative federal system in India reflects the dynamic relationship between the centre and states, driven by fiscal reforms, political decentralization, and the growing importance of states in national governance.

(c) "There has been a strain in relations between Governor and State governments in the recent past." Examine. (10 Marks)
Ans: The Governor of a state plays a critical role in the constitutional framework of India, acting as the representative of the President of India at the state level. However, recent years have witnessed tensions between Governors and state governments, particularly in situations where Governors have been perceived to act in ways that conflict with the interests of the state governments.
Reasons for Strain:

1. Political Influence: The Governor is often appointed by the central government, and tensions arise when the Governor's actions are seen as politically motivated, especially in states with non-BJP governments. For example, the Kerala and West Bengal state governments have had disputes with the Governor, accusing them of acting in a politically biased manner.
2. Interference in State Affairs: Governors have sometimes been accused of overstepping their constitutional boundaries, particularly in conflict over appointments, dissolution of legislative assemblies, and recommendations for President’s Rule. A recent example is the controversy in Maharashtra, where the Governor’s actions regarding the formation of the government after the 2019 elections created a rift between the Governor and the state government.
3. Delay in Assent to Bills: Governors have also delayed or refused to give assent to state bills, leading to friction between the state and the central authority, especially when the state government’s legislative agenda is blocked.

In conclusion, while the Governor is constitutionally expected to remain neutral, the increasing politicization of the office has led to strains in centre-state relations, especially when Governors are perceived as acting on behalf of the central government, rather than in a truly impartial manner.

Q4:
(a) Public sector undertakings have been the bedrock of welfarism in India for many decades. Evaluate the pros and cons of current disinvestment scenario. (20 Marks)
Ans: Public Sector Undertakings (PSUs) have historically played a significant role in India’s economic development by contributing to industrialization, employment generation, and the provision of public goods. Over time, however, the role of PSUs has come under scrutiny, particularly with regard to their efficiency and cost-effectiveness, leading to the current wave of disinvestment.
Pros of Disinvestment:

1. Improved Efficiency: Privatization and disinvestment can lead to better management and operational efficiency, as private entities have more flexibility and performance-based incentives. For example, Air India was privatized to improve its operational efficiency and reduce losses.
2. Revenue Generation: Disinvestment helps raise much-needed funds for the government, which can be used to reduce fiscal deficits or fund developmental projects. The IPO of LIC in 2021 is an example of leveraging PSUs for capital mobilization.
3. Market-Driven Growth: Disinvestment promotes market-driven growth by encouraging private sector competition, innovation, and investment in industries previously dominated by PSUs.

Cons of Disinvestment:

1. Loss of Control: Selling off PSUs reduces the government's control over key sectors such as energy, telecommunications, and defense. This can impact national security and strategic interests.
2. Social Welfare Concerns: Many PSUs are responsible for welfare-oriented services such as subsidized goods and employment generation. Privatization may lead to higher costs or reduced access for vulnerable populations.
3. Job Losses: Disinvestment can result in layoffs or reductions in employee benefits, particularly in sectors where PSUs were large employers. The privatization of BSNL and MTNL has raised concerns about potential job cuts.

In conclusion, while disinvestment can promote efficiency and revenue generation, it needs to be carefully managed to avoid undermining public welfare, strategic autonomy, and job security.

(b) The collegium system of appointments to higher judiciary has been the cornerstone of independence of judiciary. It has remained as the subject of debates in the recent past. Discuss. (20 Marks)
Ans: The collegium system is a method of judicial appointments in India, where a group of senior judges of the Supreme Court and High Courts selects judges for the higher judiciary. It was established to ensure the independence of the judiciary from the executive and legislative influence. While the collegium system has been a cornerstone of judicial independence, it has been subject to increasing debates regarding its transparency, accountability, and efficiency.
Advantages:

1. Judicial Independence: The collegium system protects the judiciary from political influence, ensuring that appointments are made based on merit rather than political affiliation.
2. Expertise in Selection: Senior judges, who are well-versed with the working of the judiciary, are best placed to select candidates who meet the required legal and professional standards.

Disadvantages:

1. Lack of Transparency: The collegium system has been criticized for its opacity in decision-making. The reasons for selecting or rejecting candidates are not always disclosed, leading to concerns about favoritism or lack of accountability.
2. Exclusivity and Nepotism: The system has led to allegations of nepotism and lack of diversity in judicial appointments, with many appointments being from a small circle of senior judges.
3. Judicial Overreach: Critics argue that the collegium system undermines the separation of powers, as it places the judiciary in charge of its own appointments, potentially eroding the system of checks and balances.

Recent efforts, such as the National Judicial Appointments Commission (NJAC), aimed to introduce a more transparent and accountable system, but the Supreme Court struck it down, citing concerns over judicial independence.

In conclusion, while the collegium system has served as a safeguard for judicial independence, it requires reforms to enhance transparency, accountability, and inclusivity without compromising judicial autonomy.

(c) The concept of bureaucratic authoritarianism is one of the models of non-democratic rules. Explain. (10 Marks)
Ans: Bureaucratic authoritarianism is a form of non-democratic rule in which the power is concentrated in the hands of a military or technocratic bureaucracy, often with limited or no political participation. In this system, the bureaucracy plays a central role in governance, prioritizing order, stability, and development over democratic ideals like political participation and civil rights.
Key Features of Bureaucratic Authoritarianism:

1. Technocratic Governance: Bureaucrats, often with a strong background in administrative skills or technical expertise, hold key decision-making positions, sidelining political leaders. They focus on long-term goals such as economic stability and infrastructure development rather than political freedoms.
2. Centralized Control: The bureaucratic elites maintain control over decision-making, often disregarding the legislative and judicial branches. This leads to the suppression of political opposition and lack of political pluralism.
3. Suppression of Political Participation: Political freedoms are often limited or restricted under bureaucratic authoritarianism. Elections may be held, but the political space is highly controlled or manipulated by the bureaucracy.

Examples of bureaucratic authoritarianism include regimes like Pinochet's Chile and Brazil under military rule, where military officials and technocrats held significant power, sidelining democratic institutions and political parties.

In conclusion, bureaucratic authoritarianism represents a form of authoritarian governance where administrative elites exercise significant control over state affairs, prioritizing stability and development while suppressing political freedoms and democratic engagement.