UPSC Civil Services Mains 2025 GS Paper 2 Analysis: Why was this paper the most difficult so far? Why can’t one guidebook suffice? Here’s our review

One major reason for its difficulty was how topics that were merely brief points in your revision notes transformed into full-fledged 10- or 15-mark questions. The ‘specificity’ of the questions challenged aspirants—whether in terms of content depth or answer structuring.

So, it’s not just about recognizing the topics at first glance. The real test lies in how well you understand them in depth and how effectively you present that knowledge in your answers. Knowing just the basics won’t suffice. Relying solely on one guidebook is a fatal mistake. Take note of even the smallest details that appear in newspaper editorials and articles if you truly want to master the ‘polity and governance’ challenge.

On August 23, in the afternoon session of the second day of the Civil Services Mains 2025, UPSC conducted the General Studies Paper 2 exam. The paper comprised 20 questions, distributed across the following sections: Constitution (approx. 110 marks), Governance (50 marks), Social Justice (40 marks), and International Relations (50 marks). While the marks distribution across sections remained similar to previous years, there was a clear message: if you continue the bad habit of ignoring Governance and Social Justice topics, you’re putting yourself at a huge disadvantage.

Here’s a brief review of GS Paper 2:

#1. Discuss the ‘corrupt practices’ for the purpose of the Representation of the People Act, 1951. Analyze whether the increase in the assets of the legislators and/or their associates, disproportionate to their known sources of income, would constitute ‘undue influence’ and consequently a corrupt practice. (Answer in 150 words) 10

UPSC inaugurates the GS 2 paper with a difficult question. No, the subject of this question is simple. The RPA is an all-season topic for a nation that goes to elections almost every year due to many states. But that’s the only easy part. This 10-marker wants to know if you understand what corrupt practices under the RPA are, and what we mean by ‘undue influence’. One requires careful interpretation of statutory definitions and evidence linking wealth to voter coercion, which is rarely straightforward. This is how we exemplify the ‘specificity challenge’ of this paper. To shoot an arrow in the air can be dangerous here.

#2. Comment on the need of administrative tribunals as compared to the court system. Assess the impact of the recent tribunal reforms through rationalization of tribunals made in 2021. (Answer in 150 words) 10

Content specificity might pose a challenge here. Tribunals, often a 2 page chapter in your guide books takes an advance question avatar. A 10 marker means you need to write less. Assessing means that one needs to look at both the negative and positive impacts. While you may talk about improved accessibility due to the abolition of centralized tribunals, on the other hand, consider the issue of overburdening High Courts. Even these points won’t suffice. But how much can you know on this not so obvious question. Words of wisdoms: don’t waste a lot of time here.

#3. Compare and contrast the President’s power to pardon in India and in the USA. Are there any limits to it in both the countries? What are ‘preemptive pardons’? (Answer in 150 words) 10

The power to pardon by a President is an easy topic. But if you didn’t follow the news and explainers, you wouldn’t be able to explain what preemptive pardons are. It is not just about comparing the President’s powers in the two countries; understanding the meaning of such terms is also what makes it challenging.

It was in the news in reference to U.S. President Joe Biden, who, hours before leaving office on Monday (January 20, 2025), issued preemptive pardons. While presidential pardons are typically granted to those accused or convicted of specific crimes, preemptive pardons are given to people who are yet to be convicted or even tried.

Hence, this topic is only easy for those who have followed the news closely.

#4. Discuss the nature of Jammu and Kashmir Legislative Assembly after the Jammu and Kashmir Reorganization Act, 2019. Briefly describe the powers and functions of the Assembly of the Union Territory of Jammu and Kashmir. (Answer in 150 words) 10

Let’s say it’s a tough question — but why? This isn’t a current affairs question from the past year. Moreover, who actually learns the provisions of the Act, apart from a few important ones? The specificity of the question makes it difficult. If you know, you know (IKYK).

#5. “The Attorney General of India plays a crucial role in guiding the legal framework of the Union Government and ensuring sound governance through legal counsel.” Discuss his responsibilities, rights and limitations in this regard. (Answer in 150 words) 10

Here comes one of your polity guidebook questions. What could be easier than this? However, this is the only easy question in the paper. You can’t afford to lose marks here.

#6. Women’s social capital complements in advancing empowerment and gender equity. Explain. (Answer in 150 words) 10

Gender is one of UPSC’s favourite topics. But since it has many dimensions, and specificity has been the demand of this particular paper, your answer needs to be more than just a general one. First of all, what is social capital? Once you know that, start picking micro-topics from the syllabus like SHGs, with examples like SEWA. Women’s political participation can also come to mind. Since the question is about explaining, pick examples and success stories that you saved for GS Paper 1, Ethics, and Essays, and use them to fill the gap in this paper.

#7. e-governance projects have a built-in bias towards technology and back-end integration than user-centric designs. Examine. (Answer in 150 words) 10

E-governance is a buzzword. So, the content is not a big problem here. It is to ‘examine’ which makes the answer writing difficult. Digital divide and accessibility factors should immediately come to mind. But then, on the other side, mention some success stories as a balancing act. Remember, “examine” also has a hidden recommendation clause in it, so come up with suggestions like user-centric designs, multi-language support, continuous feedback, etc. A 10 marker should restrain you from digging deep.

#8. Civil Society Organizations (CSO) are often perceived as being anti-State actors than non-State actors. Do you agree? Justify. (Answer in 150 words) 10

A question which requires not only a good understanding of Civil Society Organizations but also of the difference between non-State and anti-State actors. ‘Do you agree’ or ‘justify’ shouldn’t be a trap that makes you fall on one side of the debate. The tone of the statement should not always be directive in nature.

Discuss how CSO act as watchdogs but can also take an anti-State stance. Talk about their work during disaster relief, educational programs, etc., on one side, and those causing hindrance to development, etc., on the other hand. Don’t take an extreme stand. But have a balanced perspective.

#9. India-Africa digital partnership is achieving mutual respect, co-development and long-term institutional partnerships. Elaborate. (Answer in 150 words) 10

One of the most expected topics on bilateral relations this year. However, a small pointer on the relationship becomes a big 10-marker question in this year’s paper. UPSC specifically asks about the digital partnership, which makes this question tough from a content point of view. Knowing about the India-Africa Summit won’t suffice. You need to talk about South-South cooperation, long-term projects, Pan-African e-project network etc.

#10. “With the waning of globalization, post-Cold War world is becoming a site of sovereign nationalism.” Elucidate. (Answer in 150 words) 10

Most of the questions in this paper revolve around academic terminologies. For example, what is sovereign nationalism? You can guess by applying a logic → post-Cold War → marked by accelerated globalization → (present) declining globalization → protectionism marked by geopolitical conflicts → rise of sovereign nationalism. Connect the dots. To this, add implications. That may be an above-average answer. Easier said than done. Update yourself with the past and connect it with contemporary times by reading enlightening editorials. Your guidebooks won’t suffice here too.

#11. “Constitutional morality is the fulcrum which acts as an essential check upon the high functionaries and citizens alike…” In view of the above observation of the Supreme Court, explain the concept of constitutional morality and its application to ensure balance between judicial independence and judicial accountability in India. (Answer in 250 words) 15

Questions on judicial independence and accountability are not new in the UPSC exam. After all, basic structure has been a key theme. But what is surprising is UPSC’s fondness for ‘constitutional morality’ this year, which appears in the Ethics paper too. A political science teacher will argue, why be surprised? After all, before studying the Constitution, you must know about constitutional morality. True that. But a UPSC aspirant who has been focusing on one guidebook throughout the year will definitely be shocked.

If you concentrate and think, it is not a very difficult question — if you can link constitutional morality with principles of transparency, reasoned decision-making, and institutional integrity. But that’s Ethics. Here, you are answering a Polity question. So, can you talk about landmark judgments like Navtej Singh Johar etc. to make your answer sound like Polity? Here is the challenge — along with writing it for 15 marks. Do you have that much content?

#12. Indian Constitution has conferred the amending power on the ordinary legislative institutions with a few procedural hurdles. In view of this statement, examine the procedural and substantive limitations on the amending power of the Parliament to change the Constitution. (Answer in 250 words) 15

This is not a difficult question. Firstly, because the amending power of legislative institutions is an important theme — a must-do for aspirants. Secondly, it has already been asked previously. The foundation of this question revolves around Article 368 and the Basic Structure Doctrine. However, you need more fodder to stretch it to at least 200–250 words.

#13. Discuss the evolution of collegium system in India. Critically examine the advantages and disadvantages of the system of appointment of the Judges of the Supreme Court of India and that of the USA. (Answer in 250 words) 15

In India, the collegium system and the NJAC debate have always been in the headlines. In the US, politicization in judicial nominations has frequently made the news. This is the background to the 15-marker, which requires a lot of structured content. The evolution of the collegium system through the Three Judges Cases, along with its advantages and disadvantages, should form the first part of the answer. The second part requires knowledge about the US judicial appointment system. You must have prepared the collegium system well, but the comparison with the US can be tricky unless you have followed newspaper explainers.

#14. Examine the evolving pattern of Centre-State financial relations in the context of planned development in India. How far have the recent reforms impacted the fiscal federalism in India? (Answer in 250 words) 15

Federalism has always been an important topic, but this 15-marker feels like an entire chapter, connecting history to the present. The key pointers are straightforward — from the Planning Commission to NITI Aayog, the recommendations of the Finance Commissions (especially the 14th and 15th) on enhancing fiscal federalism, the introduction of GST, and the role of recent centrally sponsored schemes and cooperative federalism. These should aid you well while writing your answer. Remember, a 15-marker demands not just content but a well-structured and coherent presentation.

#15. What are environmental pressure groups? Discuss their role in raising awareness, influencing policies and advocating for environmental protection in India. (Answer in 250 words) 15

Pick up any book on Polity and Governance, and you will definitely find a chapter on ‘Pressure Groups.’ But what was once a half-page pointer in that chapter is now a full 15-mark question — ‘Environmental pressure groups’ is the focus. Post-exam, you might feel it was an easy question; however, the specificity makes it tough.

Environmental pressure groups have a critical role in balancing economic development and ecological sustainability. Reminded of Chipko and Narmada Bachao? But how do such movements influence policies and legislation? How do they raise awareness, and what are their challenges?

For these environmental watchdogs, frequent coverage in newspapers should act as your real guidebooks. If you connect it with current affairs, you will be able to address even the basics effectively.

#16. Inequality in the ownership pattern of resources is one of the major causes of poverty. Discuss in the context of ‘paradox of poverty’. (Answer in 250 words) 15

One of the most common themes across the paper does not guarantee a simple, straightforward question. You might have prepared extensive notes on poverty from editorials, have the best guidebooks at your disposal, and kept yourself updated with poverty indices and poverty alleviation schemes — all of which may prove futile if you don’t understand the concept of the paradox of poverty. Still, you can make a smart guess: poverty existing in a society that produces plenty.

The next challenge in a 15-marker is not just having content, but structuring it effectively. Since the directive is to discuss, the scope is broad. A logical approach would be to define the paradox, identify where such paradoxes exist, explore the causes, cite relevant examples, and suggest a way forward. This is certainly a slightly advanced question to answer within 5–7 minutes, but with clarity of thought and composure under exam pressure, it can be attempted well.

#17. “In contemporary development models, decision-making and problem-solving responsibilities are not located close to the source of information and execution defeating the objectives of development.” Critically evaluate.
(Answer in 250 words) 15

Under the pressure of the examination hall, such a question first tests our patience in unpacking the issue. Secondly, the demand to “critically analyse” raises the difficulty level.

What is the concern with centralised decision-making, and what are the associated bottlenecks? How does it affect efficiency, accountability, and responsiveness?

Take a central scheme like MGNREGA and discuss the ground-level realities of its implementation. As part of your counter-argument, you may refer to broader themes like cooperative federalism and the need for central coordination in crises such as the COVID-19 pandemic.

This is definitely a brain-rotting question — but if you attempt it well, you’ll certainly impress the examiner.

#18. The National Commission for Protection of Child Rights has to address the challenges faced by children in the digital era. Examine the existing policies and suggest measures the Commission can initiate to tackle the issue. (Answer in 250 words) 15

Why is this question difficult to answer? Not because of the issue it discusses, but mainly because it concerns an institution/body that is generally not well-prepared for. Firstly, you should be aware of existing policies; only then will you be able to examine the issue effectively. NCPCR’s engagement with social media platforms and the DPDP Act should be the minimum you know. Suggesting measures can still be relatively easy, since “children in the digital era” is a common theme that aspirants are expected to have prepared for. So, while the first part might be problematic, the second part isn’t as much. The smart way to approach this question is to attempt the second part effectively and not to loose confidence in the first part itself.

#19. “Energy security constitutes the dominant kingpin of India’s foreign policy, and is linked with India’s overarching influence in Middle Eastern countries.” How would you integrate energy security with India’s foreign policy trajectories in the coming years? (Answer in 250 words) 15

Amid rising global tensions, energy security is one of India’s top priorities to address. In fact, energy security is not just an economic issue but an important aspect of India’s strategic outreach. With reference to the Middle East, the examiner will expect students to mention how and why it is important for India to deepen its ties with major oil and gas exporters, aligning energy needs with geopolitical interests. Concluding with a mention of green energy diplomacy, diversification, and the need to secure energy transit routes, which are vital for imports, may help you develop a mature answer. This is definitely a tough question if you do not read good editorials and articles. As a 15-marker, it demands both good quantity and quality of points.

#20. “The reform process in the United Nations remains unresolved, because of the delicate imbalance of East and West and entanglement of the USA vs. Russo-Chinese alliance.” Examine and critically evaluate the East-West policy confrontations in this regard. (Answer in 250 words) 15

This is one of the easiest questions — at least when you look at the first part. The theme is among the most general ones UPSC has asked. Any discussion on the UN almost always involves reforms. Framing it within the East – West confrontation and bringing the US, Russia, and China into context actually makes it easier to form your thoughts.

However, UPSC is not looking for general content. It expects a well-structured answer that both examines and critically evaluates. That is where the challenge lies — especially under exam pressure.

A good answer should explain how the Eastern and Western blocs have used their veto power differently on key global issues, and how the UN structure fails to reflect contemporary geopolitical realities. The examiner will also expect a brief paragraph on India’s official stance on UN reforms. For example India’s Permanent Representative to the UN Ambassador at the annual UN General Assembly plenary on ‘Question of equitable representation on and increase in the membership of the Security Council’ in November 2024 said that in spite of several decades of collective reiteration of the urgent need for the UNSC reform, it is “disheartening that we have had no results to show in this regard since 1965, when the Council was last expanded in the non-permanent category alone.” The Council’s membership was expanded from six elected members to 10 in 1965.

Still, this might be considered an easier question overall and a best fit for a 15 marker, as many aspirants would have prepared extensive notes on the topic both for GS 2 and Essays.

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