INITIAL PROJECT PROPOSAL

An evaluation of decentralized governance and Pakistan’s current devolution plan

BACKGROUND & RATIONALE

By late 1999, with increasing external pressures on Pakistan’s politics and economy, and growing internal political divisions, government policy making and service delivery was failing, and in October 1999 the political elected government was thrown as the Military took over power in Pakistan. In order to legitimize its stay, the Military Government immediately came up with a “seven point agenda” to address the so-called institutional crisis and to advance “national reconstruction”. The seven point agenda included the following: i) rebuilding national confidence & morale; ii) strengthening the federation while removing inter-provincial disharmony; iii) reviving and restoring investor confidence; iv) ensuring law and order and dispensing speedy justice; v) depoliticizing state institutions; vi) devolving power to the grass root level; vii) ensuring swift and across the board accountability.

Consequently, the National Reconstruction Bureau is undertaking a phased exercise with multiple aims of restructuring of political and service structures through devolution of power including empowerment of citizens, decentralization of administrative authority, decentralization of professional functions, and distribution of financial resources to the provincial and local governments with checks and balances against misuse of power and authority through the diffusion of power-authority masses.

The first phase was expected to devolve political, administrative, and fiscal powers from the provincial to district level. Under this phase, elections to the local bodies were planned. In the second phase, the program aimed at crystallization of civil services structures & systems for the district in all its dimensions and then the conceptualization of political structures in the context of provincial autonomy and consequent civil service structures at provincial levels. Under this phase, elections to the local bodies have been held under new law and local governments established on 14^th August 2001. The third phase will involve devolution of functions from the federal to provincial level.  All this was to be completed by October 2001, when, according to the decision of the Supreme Court of Pakistan, the power has to be shifted to elected representatives through an election.

With the holding of local body elections, as expected, major weaknesses and deficiencies surfaced in the overall setup including administration, political structures, and public policy in Pakistan. The system was immediately put to test with happenings in USA on 11 September 2001 and resultant action in Afghanistan, when many segments of the society came out to protest against government policies in Pakistan. The centuries old administrative systems were no longer there and there was a feeling of getting caught between two systems: one that was not wanted but could not be let go easily due to its deep roots and the other that is being craved for but has difficulties in establishment. Uncertainties in the chain of command, assigning of responsibilities led to a lot of confusion and loss to life and property.

More is expected for a variety of reasons. The plan is being implemented by a military government, which has to work under certain deadlines, without any mandate of the people. The whole exercise is being undertaken at a massive scale without clarity on transitional arrangements. There are unsettled issues in future legal cover and financial sustainability for the continuation of the program. The program is aiming to restructure centuries old systems, the changing of which involve changes in people’s perceptions and understanding. Power is being bestowed upon people, who have been traditionally marginalized and not associated with major political parties. The district administration and police administration has been proposed to be placed under the newly elected political structures. It is still not very clear how this phenomenon will bear on the future of politics, policy and economy of the country.

Broad Objectives

   To study the present devolution plan with a view to identify shortcomings, political and administrative repercussions, and most importantly impact on the people of Pakistan.

    To identify historical trends, if any, among former colonies in general and Pakistan in particular of similar programs brought in by military governments and their intentions and underpinnings.

Plan for Fulfillment

      The project will address its objectives in the following manner:

      Study the overall devolution program in terms of its content, implementation structures, processes, areas of concentration, and political undertones and repercussions.

      Analyze the actual implementation after holding of local body elections, transitional period between transfer of power and accompanying process of fiscal decentralization to find its status, affect and suggest corrective policy measures.

     Identify the political implications of the devolution of power in terms of future policy making in the context of similar exercises (Basic Democracy System in Pakistan) undertaken in the past.

     Compare similar exercises in other countries and ex-colonies for finding their experiences in devolution of power in terms of cross cutting themes such as political developments, impact on policy making, their methods, and overall success in terms of actual dissipation of centralized power for drawing lessons, if any.

     Draw up a set of policy guidelines in matters relating to devolution, decentralization, political empowerment, and public policy.

Research Methodology

 The project will rely on theoretical background research, designing and implementation of field observations in Pakistan including interviews and dialogue with relevant people (political, administrative, stakeholders) for gaining first hand knowledge about the program implementation. The information and data will be analyzed, compared with international experiences and presented in the form of a policy paper highlighting policy issues involved in devolution in Pakistan and suggest, where required, recommendations and guidelines.

The Results of Project

Pakistan with population of over 130 million people, having strategic position in many ways is a unique case where such a massive exercise is being undertaken without people’s consent. This will have major repercussions for the country in a multitude of ways namely political, administrative, and economic both at micro and macro levels. The expected timeframe of this research project coincides with implementation and transfer of power under the new devolution plan in Pakistan Thus results of the project are anticipated to bring out important lessons in the area of devolution of power and fiscal decentralization. The findings of this project will target international community and think tanks to develop strategies and lessons for other countries following the path of devolution and political reform. It will also be useful for other countries and organizations devising strategies to deal with countries undergoing such massive restructuring in terms of policy and development.