What happened to the police and administration during the Emergency?

They functioned as political instruments of the ruling party.

Answer: They functioned as political instruments of the ruling party.
During the Emergency, the police and administration were turned into political instruments of the ruling party.

However, the critical years of emergency brought many issues that have not been adequately grappled with. We have noted in this chapter that there is a tension between routine functioning of a democratic government and the continuous political protests by parties and groups. What is the correct balance between the two? Should the citizens have full freedom to engage in protest activity or should they have no such right at all? What are the limits to such a protest? Secondly, the actual implementation of the Emergency rule took place through the police and the administration. These institutions could not function independently. They were turned into political instruments of the ruling party and according to the Shah Commission Report, the administration and the police became vulnerable to political pressures. This problem did not vanish after the Emergency.