Documenti di Didattica
Documenti di Professioni
Documenti di Cultura
h
y
s
l
c
a
l
l
a
n
n
l
n
g
(
o
n
l
y
l
o
r
l
n
L
r
a
u
l
s
L
r
l
c
L
C
o
o
r
d
l
n
a
L
l
o
n
o
f
1
a
h
s
l
l
S
p
a
L
l
a
l
l
a
n
s
r
e
p
a
r
e
d
b
y
1
e
h
s
l
l
/
1
a
l
u
k
a
M
u
n
l
c
l
p
a
l
A
d
m
l
n
l
s
L
r
a
L
l
o
n
.
L
n
e
r
g
y
(
m
l
c
r
o
L
n
e
r
g
y
u
e
v
e
l
o
p
m
e
n
L
C
e
n
e
r
a
L
l
o
n
r
o
[
e
c
L
s
l
o
r
u
s
e
o
f
L
o
c
a
l
C
o
m
m
u
n
l
L
y
L
e
v
e
l
)
L
l
L
e
r
a
c
y
C
o
m
p
a
l
g
n
C
o
n
L
l
n
u
l
n
g
L
d
u
c
a
L
l
o
n
v
o
c
a
L
l
o
n
a
l
L
d
u
c
a
L
l
o
n
l
n
f
o
r
m
a
L
l
o
n
1
e
c
h
n
o
l
o
g
y
u
e
v
e
l
o
p
m
e
n
L
l
n
f
o
r
m
a
L
l
o
n
1
e
c
h
n
o
l
o
g
y
r
o
m
o
L
l
o
n
u
a
L
a
8
a
s
e
8
a
s
l
c
&
8
u
r
a
l
P
e
a
l
L
h
C
h
l
l
d
A
n
d
W
o
m
a
n
P
e
a
l
L
h
o
p
u
l
a
L
l
o
n
W
e
l
f
a
r
e
P
o
s
p
l
L
a
l
s
u
b
l
l
c
P
e
a
l
L
h
8
o
y
s
S
c
h
o
o
l
s
C
l
r
l
s
S
c
h
o
o
l
s
1
e
c
h
n
l
c
a
l
L
d
u
c
a
L
l
o
n
C
o
l
l
e
g
e
(
o
L
h
e
r
1
h
e
n
r
o
f
e
s
s
l
o
n
a
l
)
S
p
o
r
L
s
(
e
d
u
c
a
L
l
o
n
)
S
p
e
c
l
a
l
L
d
u
c
a
L
l
o
n
A
g
r
l
c
u
l
L
u
r
e
L
x
L
e
n
s
l
o
n
L
l
v
e
s
L
o
c
k
C
n
-
f
a
r
m
M
a
n
a
g
e
m
e
n
L
S
o
l
l
l
e
r
L
l
l
l
L
y
l
l
s
h
e
r
l
e
s
l
o
r
e
s
L
L
a
b
o
u
r
S
o
c
l
a
l
W
a
l
f
a
r
e
S
p
o
r
L
s
&
C
u
l
L
u
r
e
C
o
o
p
e
r
a
L
l
v
e
C
o
m
m
u
n
l
L
y
C
r
g
a
n
l
z
a
L
l
o
n
8
e
g
l
s
L
r
a
L
l
o
n
A
c
c
o
u
n
L
s
(
e
d
c
l
u
d
l
n
g
u
l
s
L
r
l
c
L
A
c
c
o
u
n
L
s
C
f
f
l
c
e
s
)
l
a
n
n
l
n
g
&
u
e
v
e
l
o
p
m
e
n
L
L
n
L
e
r
p
r
l
s
e
A
n
d
l
n
v
e
s
L
m
e
n
L
r
o
d
u
c
L
l
o
n
l
l
n
a
n
c
e
L
n
v
l
r
o
n
m
e
n
L
L
e
g
a
l
a
d
v
l
s
o
r
a
n
d
d
r
a
f
f
l
n
g
ce a d D Cff| s ne de by Cs
LuC
AgrlculLure
LuC
CommunlLy
uevelopmenL
LuC
LducaLlon
LuC
llnance &
lannlng
LuC
PealLh
LuC
lnformaLlon
1echnology
LuC
Law
LuC
LlLeracy
LuC
8evenue
LuC
Works &
Servlces
lnLernal AudlL
uuC, Clvll uefence
uuC, CoordlnaLlon
uuC, Puman 8esource ManagemenL
ulsLrlcL CoordlnaLlon Cfflcer
Zlla nazlm
nalb Zlla nazlm
Zlla Councll
I|gure 3
Crganogram of D|str|ct Government
Source: http:]]www.nrb.gov.pk]|oca|_government]f|gure_2.g|f?NCCACnL=1
Loca| Governments |n ak|stan
ChapLer 3
29
.
I|gure 4
Crganogram of 1ehs|| Mun|c|pa| Adm|n|strat|on
Source: http:]]www.nrb.gov.pk]|oca|_government]tehs||_muc|pa|_adm|n_organagram.htm
Loca| Governments |n ak|stan
ChapLer 3
1ehsll munlclpal admlnlsLraLlon
CrganlzaLlon
1ehsll nazlm
lnLernal AudlL
ComplalnL Cell
Ceneral LsLab.Mdmn.
ubllc lnformaLlon
1C
llnance
1ehslal Munlclpal
Cfflcer
1ehsll
Councll
nAl8 1ehsll nazlm
Convener
1ehsll Councll
Cfflce
1C
lnfrasLrucLure
and Servlces
1C
Munlclpal
8egulalons
1C
lannlng
Chlef Cffler aL
non- 1PA PC
Chlef Cffler aL
1MA PC
Speclal hyslcal
lannlng
Land use
lannlng (Land
Sub-ulvlslon,
Zonlng, and use)
WaLer Supply.
SanlLaLlon and
Solld WasLe
ManagemenL
8oads, SLreeLs
and SLreeL
LlghLlng
llre llghLlng
arks and
Cpen spaces
1rafflc
Lnglneerlng
CLhers
CLhers
Sewerage/
uralnage
Llcenslng AccounLlng
Survey
8udgeL
Annual
3-year rolllng
CosL
accounLlng
8evenue
vlgllance
(deLecLlon and
prevenLlon of
revenue
Leakages
and Losses)
laclllLles &
roperLles
Land lncludlng
8lghL of Way
of 8oads And
uralns
uevelopmenL
laclllLaLlon/
ConLrol
8ulldlng
laclllLaLlon
/ConLrol
Pouslng, SlLe
uevelopmenL
kachl Abadl
AmelloraLlon
lans
CoordlnaLlon
and llaLs on wlLh
nelghbourlng
Lehslls and
unlons/vlllage
Counclls
CLhers
CLhers
30
ost Devo|ut|on n|erarchy
L|m|tat|ons |nI|sca| Decentra||zat|on
Someof Lhema[or sLrucLural changes broughL abouL ln devoluLlon plan areworLh menLlonlng here.
8efore Lhe devoluLlon reforms, Lhe deconcenLraLed provlnclal bureaucracy aL Lhe dlsLrlcL level was
accounLable Lo Lhelr non-elecLed provlnclal secreLarlaL whereas under Lhe LCC Lhey are
accounLable Lo Lhe elecLed heads of dlsLrlcL and 1ehsll governmenLs. ulLlmaLe declslon maklng
auLhorlLy has been shlfLed from provlnclal governmenL dlsLrlcL offlcer who would reporL Lo Lhe
provlnclal bureaucracy, Lo an elecLed nazlm (Mayor) who ls ulLlmaLely answerable Lo hls dlsLrlcL's
consLlLuenLs. 1he uepuLy Commlssloner (uC), used Lo reporL Lo Lhe non-elecLed provlnclal
bureaucracy, whereas ln Lhe local governmenL sysLem Lhe head of Lhe dlsLrlcL admlnlsLraLlon, Lhe
ulsLrlcL CoordlnaLlon Cfflcer (uCC) reporLs Lo LheelecLed ulsLrlcL nazlm.
1he auLhorlLy of Lhe nazlm over Lhe uCC and LxecuLlve ulsLrlcL Cfflcers (LuC) ls clrcumscrlbed ln
maLLers of Lransfers and promoLlons, whlch conLlnueLo remaln under Lhepurvlew of Lheprovlnclal
secreLarlaL. Slnce Lhe auLhorlLy of nazlm ls llmlLed ln Lhls regard, publlc scruLlny and accounLablllLy
ln publlc secLor managemenL remalns amblguous. Moreover Lhe non-parLy basls of local
governmenL elecLlons has lnvarlably ended up weakenlng pollLlcal llnkages beLween elecLed
provlnclal governmenLs and local governmenLs. ollLlcal parLles ln governmenL aL Lhe provlnclal
level vlew local governmenLs as a compeLlng Ller. under LCC plan, dlsLrlcL governmenLs' lead
responslblllLles lnclude decldlng on Lhe locaLlon of new schools, arranglng fundlng for Lhelr
consLrucLlon, monlLorlng Lhe schools, carrylng ouL annual evaluaLlon of Leachers and provlde
powers Lo dlsLrlcL offlcers for Leachers' appolnLmenL, Lransfer and promoLlon (lCC, 2004).
llscal decenLrallzaLlon was lnLended Lo enable Lhe clLlzens Lo esLabllsh lndependenL local
governmenLs and Lo glveLhem declslon maklng responslblllLy ln publlc servlce dellvery. lmposlLlon
of Laxes and revenue generaLlon for servlce dellvery were also lncluded ln Lhe flscal
decenLrallsaLlon. Accordlng Lo CharlLon eL al. (2002), Lhe new Local CovernmenL SysLem envlsages
formula based flscal Lransfers Lo Lhe dlsLrlcLs Lhrough rovlnclal llnance Awards. ln addlLlon, local
governmenLs are allowed Lo levy local Laxes/fees from a speclfled llsL of local Laxes/ fees. 1o
promoLe Lrade and commerce ln Lhe counLry Lhe lmporL/exporL Lax (ocLrol) on movemenL of goods
Lhrough dlsLrlcL has been ellmlnaLed. Accordlng Lo Lhenew LCC, local governmenLs arenoL allowed
Lo lncur any debL Lo flnanceLhelr expendlLures. 1heprlnclpleof Lheformulafor provlnclal Lo dlsLrlcL
Lransfers ls LhaL dlsLrlcL and local governmenL should generaLe Lhelr own resources Lo Lhe exLenL
posslble. revlous local governmenL reforms falled Lo esLabllsh an adequaLe flscal Lransfer sysLem
wlLh Lhe resulL LhaL local counclls were unable Lo perform even Lhe llmlLed expendlLure funcLlons
asslgned Lo Lhem (Pyder 1999).
1he scenarlo wlLh devoluLlon reforms ln 2001 ls noL much dlfferenL. 1he 'rovlnclal llnance
Commlsslon' awards deLermlne Lhe non-dlscreLlonary lnLergovernmenLal flscal Lransfer
process.1he bulk of local governmenL resources are flscal Lransfers from provlnclally appolnLed
provlnclal flnance commlsslons (lC), up Lo 98 ln some cases (lCC 2004). ulsLrlcL governmenLs
Loca| Governments |n ak|stan
ChapLer 3
31
have llmlLed dlscreLlon over Lhelr budgeLary resources. Cver 80 of Lhe money Lransferred ls for
salarles and cannoL be used for any oLher purposes. Pasnaln (2008) malnLalns LhaL Lhe provlnclal
allocable amounL ls Lransferred Lo Lhe local governmenL broadly under Lwo separaLe block granLs,
onefor recurrenL expendlLures, whlch consLlLuLes approxlmaLely 88 of LheallocableamounL, and
Lhe remalnder for developmenL expendlLures, wlLh no de [ure dlscreLlon Lo local governmenLs Lo
re-allocaLe across Lhese Lwo wlndows. ln oLher words, flscal decenLrallsaLlon has [usL been pald llp
servlce and local governmenLs rely almosL solely on hlgher Llers of governmenL for Lhelr flnanclal
requlremenLs.
1MAs have some revenue ralslng auLhorlLles buL agaln Lhe sLrlngs aLLached wlLh LhaL auLhorlLy
lmpedes effecLlveness and efflclency ln flscal affalrs. 1MA revenues from own source (Lhe parklng
fee, caLLle markeL fee, Lax on Lransfer of lmmovable properLy eLc.) are noL allocaLed Lo any
funcLlonal unlL of Lhe 1MA. WaLer fees are noL earmarked for waLer servlces, raLher Lhese become
parL of Lhe overall 1MA pool of revenues (nayyar-SLone eL al. 2006). Such pool arrangemenL
provldes no lncenLlve for Lhe 1C-l&S (1own Cfflcer - lnfrasLrucLure and Servlces) Lo lmprove lLs
collecLlon efflclency. ApparenLly Lhelocal governmenLs haveLheapproprlaLlon auLhorlLy over Lhelr
flscal recelpLs whlch lnclude revenues Lransferred Lo Lhem from Lhe provlnce. Powever, Lhrough
varlous admlnlsLraLlve orders Lhe local governmenLs are ofLen dlrecLed Lo respecL hlsLorlc salary
allocaLlons as well as varlous approprlaLlons Lo operaLlonal expendlLures ln accordance wlLh Lhe
prevlous ouLlays (Cyan 2007).
Such norms or consLralnLs compel Lhem Lo be paLh dependanL and as such local governmenL
represenLaLlves hardly have any opporLunlLy Lo brlng ln lnnovaLlons lnLo Lhelr revenue ralslng and
resource allocaLlon formulae. Councll's lnvolvemenL ls lnslgnlflcanL and nomlnal. Cyan and orLer
(2004) conLends LhaL law prescrlbes Lhe councll's role ln budgeL maklng buL Lhls funcLlon ls aL all
levels of governmenL led by Lhe execuLlve ln such a way LhaL marglnallzes councll. Au (Annual
uevelopmenL lan) dlsLrlbuLed among unlon counclls mosLly goes lnLo a large number of small
pro[ecLs. 1he amounL of fund becomes meagre when lL Lrlckles down Lo a unlon councll level. ln
allocaLlon of Au, LuC-llnance domlnaLes Lhe budgeLlng auLhorlLy Wllllamson eL al. (2003). 1hree
argumenLs are offered here, flrsLly, local governmenLs are sLlll dependanL on hlgher Llers of
governmenL for Lhelr flscal arrangemenLs, secondly, LhelnsLlLuLlonal norms coerceLhem Lo bepaLh
dependanL and bea parL of LhesLream, Lhlrdly, deslgn of flscal decenLrallsaLlon leaves Lhe1MA and
unlon Councll wlLh lnadequaLe funds LhaL are seldom sufflclenL for any subsLanLlal developmenL
pro[ecL.
ConsequenLly such developmenL funds are spenL or aL Llmes wasLed ln a large number of small
pro[ecLs. llgure 3 clLed ln Wllllamson eL al. (2003) compares per caplLa non wage (uevelopmenL
fund allocaLlon) ln baslc healLh and prlmary educaLlon of dlsLrlcL uera lsmall khan and AbboLLabad
wlLh uganda, a counLry wlLh per caplLa lncome almosL half LhaL of aklsLan. llgure 6 shows LhaL
wlLhln LhaL llmlLed porLlon allocaLed Lo baslc healLh and prlmary educaLlon, roads or lnfrasLrucLure
developmenL pro[ecLs are prlmary concerns for local governmenL offlclals. LlLeraLure reveals LhaL
oLher Lhan Lhe Lhree reasons menLloned above, local pollLlclans flnd lL more useful Lo lnlLlaLe
lnfrasLrucLure pro[ecLs aL local level because such Lrlumphs are more vlslble and noLlceable and
evenLuallyadd up ln bulldlng pollLlcal credlblllLyfor local pollLlclans.
Loca| Governments |n ak|stan
ChapLer 3
32
Local nazlms and counclllors enhance Lhelr chances of geLLlng re-elecLed. ConcreLe reforms ln
healLh and educaLlon secLor e.g. lncrease ln enrolmenL ln prlmary schools or reducLlon ln lnfanL
morLallLy raLes requlreserlousness of pollLlcal wlll, enLhuslasm and moreresources. Powever, such
meanlngful changes may noL galvanlse pollLlclans' pollLlcal lmage. llgure 6 ls an lllusLraLlon
explalnlng dlsLrlbuLlon of nazlm Au schemes ln uera lsmall khan ln l? 2003. AnoLher reason for
poor performance by local governmenL ls LhaL lC and verLlcal programmes adversely affecLs Lhe
efflclency of resource allocaLlons as lL wldens Lhe gap beLween salary and non-salary expendlLures.
(llgure7)
I|gure: S
er Cap|ta Non-Wage Current Spend|ng on 8as|c nea|th and r|mary Lducat|on |n I200S
.
ly=llscal ?ear
Sources: AbboLLabad ulsLrlcL CovL. 2004. 8evlsed LsLlmaLes 2003-4 and 8udgeL LsLlmaLes CovL.
2004. 8udgeL for Lhe year 2004/3. uera lsmall khan: dara lsmall khan ulsLrlcL local CovL: World
bank, 1he 2004. 1he 8epubllc of uganda counLy lnLegraLed flduclary AssessmenL 2004.vol.2: ubllc
LxpendlLure8evlew WashlngLon, uC:1heworld 8ank.
Source: ClLed ln Wllllamson eL al. (2003)
Loca| Governments |n ak|stan
ChapLer 3
33
I|gure: 6 D|str|but|on of Naz|m AD Schemes |n Dera Isma|| khan |n I 200S
AD = Annua| Deve|opment |an, I = I|sca| year
Source : uera lsmall khan ulsLrlcL local CovernmenL 2004 . 8udgeL for Lhe ?ear 2003/3 .
Source: ClLed ln Wllllamson eL al. (2003)
I|gure 7: Sa|ar|es Dom|nate 8udgets |n NWI |n I 200S
Loca| Governments |n ak|stan
ChapLer 3
34
Loca| Governments |n ak|stan
ChapLer 3
C|t|zenCommun|ty 8oards (CC8s)
ln order Lo make Lhe mosL of decenLrallsaLlon reforms, effecLlve local volunLary communlLy
organlsaLlons are exLremely crlLlcal. CommunlLy organlsaLlons play caLalyLlc role ln ldenLlflcaLlon
and sLreamllnlng of local pecullar developmenLal needs and arLlculaLlon of clLlzen's volce.
unforLunaLely esLabllshmenL of CC8s, ln leLLer and splrlL, as per Lhe local governmenL plan
remalned a wlshful Lhlnklng and evenLually communlLy parLlclpaLlon and grass rooL level
lnvolvemenL of clLlzens remalned eluslve. CC8s are volunLary and non proflL groups of local people
formed under Lhe Local CovernmenL Crdlnance 2001, ln order Lo promoLe communlLy
parLlclpaLlon ln local governmenL and lnvolved ln musLerlng local parLlclpaLlon of communlLles ln
developmenLal acLlvlLles. Accordlng Lo uecenLrallsaLlon SupporL rogramme (uS), communlLy
parLlclpaLlon ln local governmenL ls lmporLanL, boLh Lo ensure LhaL plannlng and developmenL are
carrled ouL ln accordance wlLh local needs, and Lo monlLor servlce dellvery and promoLe
Lransparencyand accounLablllLy.
CC8s lnvolve malnly ln developmenL, managemenL and malnLenance of publlc faclllLles. 1hey are
also lnvolved ln developmenLal acLlvlLles llke moblllzaLlon of resources, asslsLance of desLlLuLe,
wldows and poor famllles, esLabllshmenL of cooperaLlves, organlslng assoclaLlons llke 1As
(arenL-1eacher AssoclaLlons) for communlLy parLlclpaLlon. CC8s arerequlred Lo ralse20 of funds
for a pro[ecL Lhemselves whlle Lhe remalnlng 80 would be provlded by local governmenLs. 23 of
local governmenL developmenL funds are reserved for CC8s. 1hls money can noL be spenL on
anyLhlng else, lf noL used, lL ls carrled forward. CC8 prepares pro[ecL proposal asslsLed by local
governmenL offlcers. 1he pro[ecL proposal ls Lhen submlLLed Lo Lhe LuC-Cu (CommunlLy
uevelopmenL), Lhe 1ehsll/1own Cfflcer (lannlng), or Lhe unlon SecreLary Cu. Local governmenL
offlcers rank Lhe proposals and lncorporaLe Lhem ln Lhe Annual uevelopmenL rogram. 1he
pro[ecLs are Lhen submlLLed Lo Lhe councll for approval. When approved, Lhe local governmenL and
Lhe CC8 slgn an agreemenL for lmplemenLaLlon of Lhe pro[ecL. MonlLorlng ls [olnLly carrled ouL by
LheCC8, councll monlLorlng commlLLees and local governmenL offlces deallng wlLh CC8s.
Powever as menLloned above, CC8s ln mosL cases remaln elLher non exlsLenL or aL Lhe mosL,
nomlnal enLlLles. LaLlf (2006) malnLalns LhaL CC8s have dlfflculLles ln geLLlng Lhelr pro[ecLs sLarLed
malnly because Lhey (members from local communlLy) do noL have Lhe capaclLy Lo submlL
Lechnlcal proposal and cosL esLlmaLes. CovernmenL lacks sLaff Lo process proposals and
appllcaLlons. nazlms' conLrol on CC8s fund and pro[ecLs also undermlnes LheablllLy and progress of
CC8s. LuC- Cuhas agreaL deal of auLhorlLy ln pro[ecL approval and as such LheyarenoL answerable
Lo local governmenL.
AddlLlonally, LuC-Cu has Loo many responslblllLles and hls offlce ls amalgamaLlon of deparLmenL
of labour, soclal welfare, sporLs, culLure, cooperaLlves, and communlLy organlsaLlons. 1herefore
CC8s are one of many concerns for Lhe offlce of LuC-Cu and usually CC8s drops down ln prlorlLy
llsL. Cn conLrary, lnfluenLlal buslness communlLy and pollLlcal paLrons domlnaLe Lhe affalrs of CC8s.
nCCs geL reglsLered as CC8s ln order Lo geL exLra fundlng from local governmenL. nazlm see CC8s
as a LhreaL Lo Lhelr own auLhorlLy and paLronage. 1here ls no formal accounLablllLy mechanlsm
lnvolved ln esLabllshmenL and funcLlonlng of CC8s llke elecLlons. ulspuLes over malnLenance and
3S
ownershlp of CC8s and delays by relevanL llne deparLmenL ln pro[ecL approval and fund sancLlons
havebeen wldelywlLnessed.
WorsL case scenarlo have been reporLed ln form of fraudulenL reglsLraLlon of CC8s whereln people
announced fake moLorcycle draws ln order Lo obLaln 23 naLlonal lu card numbers Lo geL a CC8
reglsLered on behalf of people who don'L even know abouL lL. LaLlf (2006) menLlons LhaL ln un[ab
only 37 of CC8s have submlLLed pro[ecL proposal ouL of whlch half were approved. 8s. 8 8llllon
allocaLed for CC8s ls unspenL (!lCA clLed ln LaLlf 2006). 1here are some excepLlons Loo. under Lhe
guldellnes for CC8s, 2 pro[ecLs are allowed per CC8 per year. Powever ln ChlnloL, 24 pro[ecLs were
awarded Lo oneCC8ln oneyear (LaLlf 2006). ln Lhelr analysls, Cyan and orLer (2004) argueLhaL Lhe
LCC provlde for 23 allocaLlon of developmenL budgeL for CC8s and beyond Lhls Lhere are no
lncenLlves for Lhe local governmenLs. rovlnclal governmenLs reckon CC8s as compeLlLors for Lhelr
flscal space. 1hey prescrlbe LhaL a provlnclal granL brlnglng addlLlonal funds as maLchlng
arrangemenLs for CC8s pro[ecLs would creaLe a poslLlve pollLlcal aLmosphere by prescrlblng
process condlLlons for CC8 reglsLraLlon, local dlalogue and publlc access, pro[ecL approval and
monlLorlng arrangemenLs and allow addlLlonal lncenLlve funds for local dlscreLlonary allocaLlon. A
componenL of Lhe granL would flnance lncenLlves for local governmenLs where CC8 allocaLlons are
provlded ln Llmefor Lhelr pro[ecLs.
Loca| Governments |n ak|stan
ChapLer 3
36
ln Lhe llghL of LheoreLlcal underplnnlng dlscussed ln chapLer 2, Lhls chapLer hlghllghLs Lhe lmpacL of
reforms on publlc servlce dellvery, uslng Lhe avallable secondary daLa and sLudles conducLed for
assessmenL of devoluLlon reforms ln aklsLan. Scope of devoluLlon reforms and lLs lnLended
lmpllcaLlon ln Lerms of dellverables ls vasL and as such assessmenL of every componenL ls noL
posslble ln a slngle research paper. Powever, Lhls sLudy focuses chlefly on lmpacL of reforms uslng
lndlcaLors llke baslc healLh, prlmary educaLlon and waLer and sanlLaLlon faclllLles Lo arrlve aL a
general undersLandlng.
Some basellne sLudles by World 8ank, uflu, Aslan uevelopmenL 8ank and unlLed naLlons
uevelopmenL rogramme have already been conducLed ln order Lo assess Lhe lmpacL of
uevoluLlon reforms ln developmenL conLexL, locallsed governmenL are expecLed Lo efflclenLly
dellver healLh, educaLlon and munlclpal servlces ln such a manner LhaL Lhey could be more
responslve Lo Lhe local needs of communlLy and be able Lo provlde efflclenL and bespoke servlces
for whlch Lhey could be held accounLable. 1hese benchmarks or parameLers are used Lo gauge Lhe
exLenL Lo whlch local governmenL reforms ln aklsLan (2001) have been successful ln lmprovlng
publlc servlcedellvery.
AdmlnlsLraLlon of Leachlng hosplLals, agrlculLural research and developmenL, supervlslon of
forelgn funded pro[ecLs, and regulaLlon of medlcal sLandards have remalned aL Lhe provlnclal level
even afLer Lhe devoluLlon of oLher acLlvlLles ln Lhe same deparLmenLs. CerLaln budgeLary heads of
expendlLures have effecLlvely been reLalned aL Lhe provlnclal level e.g. salary and allowance
expendlLures of all deparLmenL employees. rlmary healLh care and managemenL of dlsLrlcL and
1ehsll hosplLals, assessmenL and collecLlon of land Laxes, agrlculLural lncome Lax, agrlculLural
exLenslon and farm waLer managemenL, plannlng and deslgn of dlsLrlcL roads and bulldlngs are
now devolved Lo Lhe dlsLrlcL governmenLs from Lhe provlnce. Servlces such as Lhe esLabllshmenL of
new schools, up gradaLlon of exlsLlng schools, and Lhe malnLenance and lnspecLlon of schools are
now Lhe responslblllLy of Lhe dlsLrlcL governmenLs. Servlces provlded by Lhe local governmenL and
8ural uevelopmenL deparLmenL, houslng, urban developmenL, and ubllc PealLh Lnglneerlng
ueparLmenL (PLu) have been devolved from Lhe provlnclal Lo Lhe 1ehsll level. key munlclpal
servlces such as waLer supply, sewerage, sanlLaLlon, dralnage schemes and sLreeL llghLs have been
devolved from urban/ 8ural counclls Lo 1ehsll/ 1own level.
8lrd's eyevlew of posL devoluLlon plcLurels dlscouraglng. 1hefemale-malellLeracy gap lncreased ln
aklsLan whlle lL decllned ln Lhe comparaLor counLrles, whlle lnfanL morLallLy decllned by 36 ln
Lhe comparaLor counLrles, compared Lo only 27 ln aklsLan (Cyan and orLer 2004). Pasnaln
(2003), analyslng Lhe pre-devoluLlon perlod menLlons LhaL aklsLan had Lhe worsL soclal lndlcaLors
ln Lhe developlng world. 1he 1990s, aklsLan's decade of democracy, was also a decade of
sLagnaLlon. 1he adulL llLeracy raLe ln 2001/02 aL 43 was only sllghLly hlgher Lhan ln 1993-96, and
Lhe neL prlmary enrolmenLs (nL) raLe had decllned from 46 ln 1991-92 Lo 42 ln 2001-02.
Access Lo lndoor plped drlnklng waLer decllned from 23 Lo 22, and Lhere were only mlnor
lmprovemenLs ln lmmunlzaLlon coverageand reducLlons ln Lhelncldenceof dlarrhoea.
.
Impacts of Devo|ut|on keforms ChapLer 4
37
r|mary andSecondary Lducat|onSector
1wo maln varlables have been Laken lnLo accounL here, posL devoluLlon enrolmenL of chlldren ln
schools and enhanced parLlclpaLlon of clLlzens, especlally Lhe parenLs, ln lmprovlng servlce
dellvery. AudlL of soclal servlce dellvery ln aklsLan by CockcrofL eL al. (2003) found LhaL neL school
enrolmenL (ln any school or grade) among chlldren aged 3-9 years lncreased from 70 ln 2002 Lo
77 ln 2004. CuL of all 3-9 year old chlldren ln 2004, 43 were enrolled ln governmenL schools,
30 ln prlvaLeschools, 3 ln madarls and 1 ln non-formal schools. 8eLween 2002and 2004, Lhere
was a2 lncreaseln enrolmenL lnLo governmenL schools and 3 lncreaseln enrolmenL lnLo prlvaLe
schools ls observed. 1he percenLage of enrolled chlldren ln governmenL schools fell because of Lhe
greaLer lncrease ln enrolmenL lnLo prlvaLe schools. 1wo reasons whlch parenLs gave for sendlng a
chlld Lo a governmenL school were ease of access and Lhe low cosL lncenLlves. ln 2004, 73 of
parenLs of chlldren ln a governmenL school were saLlsfled wlLh Lhe school, compared wlLh 91 for
chlldren ln a prlvaLe school, 86 for chlldren ln a non-formal school, and 93 for chlldren ln
madarls.
1he governmenL's acLlon plan for educaLlon secLor reforms seL a goal of ralslng nL (neL prlmary
enrolmenL) from 66 ln 2001 Lo 76 ln 2004 (MlnlsLry of LducaLlon, Co 2002). Accordlng Lo Lhe
MlnlsLry of Lconomlc Affalrs and SLaLlsLlcs, Co (2002), Lhe flgure for nL ln 2001 was 66. lPS
(aklsLan lnLegraLed Pousehold Survey) from Lhe 1990sflnds LhaL overall enrolmenLs were low and
Lhey exhlblLed perslsLenL, large gender, urban-rural, and rlch-poor gaps. rlmary gross enrolmenL
raLes among Lhe Lop 3 declles, by per caplLa consumpLlon, were around 90, whereas LhaL among
Lhe boLLom 3 declles was around 30. Slmllarly, ln Slndh only 23 of glrls llvlng ln rural areas were
enrolled ln prlmary school, compared Lo 62 ln lLs urban areas (keefer eL al. 2003). unlCLl's nL
flgure for aklsLan durlng Lhe perlod 1996-2003 ls 36 l.e. 62 male and 31 female (CockcrofL eL
al. 2003). 1he aklsLan Soclal and Llvlng SLandards MeasuremenL Survey (SLSM) (2004-03) had
reporLed anLflgureof 32(lederal 8ureau of SLaLlsLlcs 2003).
1rends observed ln Lhese sLaLlsLlcs are self explanaLory. WhaL ls obvlous ls LhaL desplLe
resLrucLurlng and lnLegraLlon of local bureaucracy and local governmenLs and provlslon for
esLabllshmenL of clLlzens' commlLLees, resulLs are far from saLlsfacLory. LnrolmenL ln schools has
been elLher sLagnanL or lncreased lnslgnlflcanLly. lndeed LhesllghL enhancemenL ln enrolmenL may
well be aLLrlbuLed Lo Lhe general lncrease ln demand for educaLlon as lL has been observed by Lhe
burgeonlng number of prlvaLe schools boLh ln rural and urban areas. Changes observed ln publlc
schools reveals rural / urban and gender blas l.e. progress can be seen only ln urban publlc schools
and lLs mosLlymalesLudenLs whoseenrolmenL has lmproved sllghLly.
ApproxlmaLely 70 populaLlon of aklsLan ls rural and dependenL on agrlculLure for Lhelr
subslsLence, dlrecLly or lndlrecLly. lL ls malnly Lhe cosL of schoollng LhaL consLralns parenLs Lo
absLaln from sendlng Lhelr chlldren Lo schools. Walklng dlsLance Lo school and faclllLles provlded ln
school also slgnlflcanLly deLermlneLhedeclslon of parenLs ln Lhls regard. CosL of schoollng may also
lnclude opporLunlLy cosLs l.e. chlldren helplng parenLs ln anlmal husbandry, culLlvable land and
1 lural of Madrasa, arellglous (Musllm) educaLlon lnsLlLuLe.
Impacts of Devo|ut|on keforms ChapLer 4
38
uolng oLher household chores may lncur hlgh opporLunlLy cosLs lf allowed Lo pursue Lhelr
educaLlon. As menLloned ln prevlous chapLer, local governmenL are prlmarlly concerned wlLh
noLlceable pro[ecLs lnsLead of lmprovlng Lhe enrolmenL and educaLlon sLandards. keefer eL al.
(2003) sLudy of 100 vlllages show LhaL compeLlLlon for voLes leads Lo school consLrucLlon (Langlble
and vlslble) buL llLLleLo LhelmprovemenL of quallLyof educaLlon.
SMCs (School ManagemenL CommlLLees), known as School Counclls ln un[ab, 1As (arenL-
1eacher AssoclaLlons) ln nWl, arenL 1eacher School ManagemenL CommlLLees (1SMCs) ln
8alochlsLan, operaLe wlLh varylng degrees of effecLlveness under Lhe new sysLem of devoluLlon.
Pead Leachers have Lhe lnfluence ln mosL of Lhe cases and Lhey selecL members for SMCs. 1As are
domlnaLed by Leachers raLher Lhan parenLs (WaLson and khan 2004). Surprlslngly, research sLudles
reveal LhaL mosL SMCmembers haveno ldea of Lhelr [obs and responslblllLles. A [olnL sLudy by Au8,
uflu, World 8ank (2004) menLlons LhaL ln many dlsLrlcLs of Slndh, locally elecLed offlclals were
pushlng for unlon nazlmeen Lo bechalrpersons of SMCs, or werepressurlng school headmasLers Lo
make purchases from cerLaln dealers. ConLrarlly, ln some cases, acLlve encouragemenL of SMCs by
dlsLrlcL or unlon nazlm has resulLed ln slgnlflcanL lmprovemenLs ln school quallLy. khalrpur ls
among Lhe mosL lnnovaLlve dlsLrlcLs ln Lerms of communlLy lnvolvemenL ln servlce dellvery. SMCs,
wlLh Lhehelp of unlon counclls, havebeen glven LheresponslblllLy Lo consLrucL shelLer less schools.
noL only have 33 been compleLed, buL wlLh communlLy monlLorlng, Lhelr consLrucLlon cosLs were
reduced Lo around 8s.200000 - 230000 as compared Lo approxlmaLely 8s.780000 for slmllar ones
prevlouslybullL byLheLducaLlon deparLmenL.
Analysls of some key lndlcaLors ln healLh secLor of aklsLan porLrays a dlsmal plcLure. Local
governmenL ordlnance (2001) made Lhe provlnces responslble for plannlng and monlLorlng of
healLh servlces buL noL for dellvery of healLh servlces, whlch are now a dlsLrlcL funcLlon. 1he efforLs
of local governmenLs Lo lmprove healLh servlces, lncludlng lncreaslng avallablllLy of medlclnes are
reflecLed ln Lhe lncreased saLlsfacLlon of boLh servlce users and households beLween 2001/2 and
2004. 8uL Lhe saLlsfacLlon of governmenL healLh servlce users ls sLlll lower Lhan LhaL of users of
prlvaLe and unquallfled pracLlLloners and household saLlsfacLlon (CockcrofL eL al. 2003). 1he soclal
audlL 2004 flgure of 27 of households saLlsfled wlLh governmenL healLh servlces ls comparable
wlLh Lhe SLSM survey flgures of 36 saLlsfled wlLh governmenL baslc healLh faclllLles and 11
saLlsfled wlLh famlly plannlng servlces ln 2004. Powever, Lherels also evldenceof a decllneln useof
governmenL faclllLles beLween 2001/2 and 2004 (SLSM Survey 2003). LeL's gauge Lhe progress of
healLh secLor on basls of someLlmeLesLed prlnclples of good governanceas follows.
1he exLenL Lo whlch rules apply equally Lo everyone ln socleLy lrrespecLlve of sLaLus and Lhe
degreeof lnvolvemenL and ownershlp of Lheconcerned sLakeholders areconsldered Lo beof ma[or
lmporLance ln publlc pollcy formulaLlon. racLlce ln healLh secLor of aklsLan before and afLer Lhe
devoluLlon reforms dos noL seem Lo be coherenL wlLh Lhese prlnclples. ln 2004, vulnerable
households and Lhose who pald Lo Lravel Lo Lhe faclllLles were less llkely Lo be saLlsfled wlLh
avallable governmenL healLh servlces, whlle urban dwellers, Lhe educaLed, and women were more
llkely Lo be saLlsfled. 1hls slmply lndlcaLes LhaL poor classes of socleLy llvlng ln Lhe urban areas have
rogress |nr|mary nea|thCare
Impacts of Devo|ut|on keforms ChapLer 4
39
noL been LargeLed for Lhe servlce dellvery. SLudy conducLed by Wllllamson eL al. (2003) ascerLaln
LhaL access Lo governmenL healLh faclllLles remalns a problem ln rural areas, wlLh around 30 of
households lacklng a healLh faclllLy ln Lhelr vlllages. Medlcal sLaff aL governmenL healLh faclllLy has
llLLle or no say ln Lhe allocaLlon of Lhe medlclne supply budgeL. PealLh unlLs run ouL of speclflcally
requlred medlclnes whlle Lhey slmulLaneously recelve Lhose medlclnes LhaL Lhey may noL need aL
LhaL parLlcular polnL of Llme.
ln quesL for ldenLlflcaLlon of reasons for poor access Lo baslc publlc servlces by Lhe people resldlng
ln LheremoLerural areas, Wllllamson eL al. (2003) found LhaL many Leachers and healLh workers are
unwllllng Lo work ln remoLe areas, reason belng, Lhey have Lo Lravel dally Lo and from Lhose remoLe
workplaces. 8esldes Lhls, Lhere ls exLra cosL and Llme lnvolved ln Lravelllng. 1hey may noL flnd
sulLable accommodaLlon. ln 8Pus (8aslc PealLh unlLs), docLors geL accommodaLlon buL faclllLles
llkegood schools for Lhelr chlldren arenoL avallable. AlLernaLlvely Lheycan earn good moneylf Lhey
go for prlvaLe pracLlce or sLay aL urban cenLres. ln remoLe areas Lhey also have llLLle scope of
supplemenLlng Lhelr prlvaLepracLlcewhlch obvlously can bebesL managed lf Lheywork aL an urban
sLaLlon. ulsLrlcL healLh and educaLlon secLor do noL provlde regular supporL Lo Lhelr fronLllne sLaff
ln fleld becauseLheylack adequaLeLransporL servlce, operaLlonal fundlng and capaclLy. 1hls means
LhaL sLaff ls less llkelyLo beableLo dellver professlonal servlces.
1he exLenL Lo whlch publlc offlclals elecLed / appolnLed are responslble for Lhelr acLlons and
responslve Lo publlc demands ls Lermed as accounLablllLy whlle Lransparency ls Lhe degree Lo
whlch declslons made by publlc offlclals are clear and open Lo scruLlny by clLlzens or Lhelr
represenLaLlves. CreaLlng accounLable relaLlons beLween clLlzens and elecLed represenLaLlves has
proven eluslve slnce aklsLan's formaLlon ln 1947 (!alal 1993). erpeLual lack of such
lnsLlLuLlonallsed prerequlslLes have sLagnaLed lmprovemenL ln Lhe healLh secLor of aklsLan.
AlmosL all users of governmenL faclllLles ln 2004 pald someLhlng for Lhe vlslL, lncludlng
lnvesLlgaLlon fees. Medlclnes were noL provlded by Lhe faclllLy (Wllllamson eL al. 2003). Pe
elaboraLed furLher LhaL abouL half Lhe governmenL servlce users, who pald fees, pald more Lhan
Lhe offlclal raLe. AbouL 7 pald for medlclnes ln governmenL faclllLles, 3 pald healLh workers, and
9 lncurred oLher cosLs. Less Lhan a Lhlrd of users of governmenL healLh faclllLles ln Lhe lasL Lhree
monLhs reporLed LhaL Lhey recelved all Lhe prescrlbed medlclnes from Lhe faclllLy. 1hls ranged from
38 ln un[ab down Lo 9 ln nWl.
eople would be more saLlsfled lf Lhe medlclnes are all avallable and dellvered Lo Lhem free of
charge. SwlLchlng over Lo prlvaLe healLh faclllLles, Lhe 'exlL' opLlon may well be deslrable buL noL
always an affordable and vlable for Lhe sLruggllng classes of socleLy. Checks and balances on Lhe
prlvaLe pracLlces of docLors and oLher healLh faclllLles are almosL nexL Lo non exlsLenL. CorrupLlon
aL governmenL healLh faclllLles boLh aL rural and urban areas ls sLlll ublqulLous. SLaff aL Lhe faclllLles
ls lnvolved ln selllng Lhe drugs, whlch are supposed Lo be avallable free of charge for Lhe publlc.
SLaff aL Lhe faclllLles ls also reporLed Lo be lnvolved ln personal mlsuse of all equlpmenL lncludlng
ambulances. Ceneral publlc conslders lL as sheer wasLage of Llme Lo complaln agalnsL such
nulsance as Lhey argue LhaL Lhey can noL change Lhe sysLem. LlecLed local governmenL has
overslghL auLhorlLy over Lhe dlsLrlcL sLaff ls nomlnal as LhaL sLaff ls recrulLed, works under, and ls
responslbleLo Lheprovlnclal governmenL.
Impacts of Devo|ut|on keforms ChapLer 4
40
laLe as Lhe end of Lhe second quarLer of Lhe flnanclal year. 1hus, even Lhough dlsLrlcL governmenLs
have Lhe legal and lnsLlLuLlonal auLhorlLy Lo provlde varlous healLh servlces, Lhelr ablllLy Lo
effecLlvely manage Lhese servlces ls consLralned by Lhe provlnclal bureaucracy's admlnlsLraLlve
conLrol over dlsLrlcL sLaff (nayyar-SLoneeL al. 2006).
ApproxlmaLely 73 of Lhe budgeL ls consumed by salarles of medlcal and non-medlcal sLaff, whlle
only abouL 13 ls allocaLed for medlclne and relaLed consumables. All cosLs ln Lhe Lable are
covered by Lhe provlnclal governmenL Lhrough granLs Lo Lhe dlsLrlcL governmenL (nayyar-SLone eL
al. 2006).
1ab|e 1
Sa|ary and Non-Sa|ary Lxpend|tures on Lducat|on, 2004200S, ks. M||||ons
Source: S|a|kot D|str|ct 8udget c|ted |n Nayyar-Stone et a| (2006)
nayyar-SLone eL al (2006) elaboraLe LhaL Lhe revenues collecLed by varlous hosplLals and oLher
healLh faclllLles are noL reLalned by Lhe ulsLrlcL CovernmenL, raLher, Lhey are deposlLed ln Lhe
provlnclal governmenL's accounL. 1he amounL collecLed aL Lhe dlsLrlcL level becomes parL of Lhe
provlnclal pool of resources. lL ls dlsLrlbuLed among Lhe dlsLrlcLs accordlng Lo Lhe rovlnclal
llnanclal Commlsslon (lC) award's formula and noL accordlng Lo Lhe acLual amounL collecLed ln
each dlsLrlcL.
LlmlLaLlons of local publlc offlclals consLraln Lhem ln varylng degrees e.g. Lhe sLaff of Lhe LuC-
PealLh offlce spends more Llme ln deallng wlLh managemenL lssues of dally rouLlne and managlng
varlous aspecLs of healLh servlces raLher Lhan provldlng Lhe acLual servlces. L.g. Lhe Medlcal
SuperlnLendenL of any hosplLal or Senlor Medlcal Cfflcer of a 8ural PealLh CenLre ls a quallfled and
experlenced docLor buL mosL of hls Llme ls spenL managlng Lhe Lechnlcal and admlnlsLraLlve
maLLers of Lhe hosplLal (nayyar-SLone eL al. 2006). naLurally ln such clrcumsLances, essenLlal Lasks
requlred for lmprovemenLs ln healLh servlces are pushed down ln prlorlLy llsLs and offlclals'
lnvolvemenL ln admlnlsLraLlve affalrs become unavoldable for Lhem. rovlnclal and federal
governmenLs usually abuse Lhelr auLhorlLy Lo manlpulaLe local admlnlsLraLlon ln order Lo secure
Lhelr pollLlcal paLronage. World 8ank (2004b) expllcaLes LhaL byLheLhreaL of unpleasanL Lransfer or
Lhe promlse of an aLLracLlve one, Lhe senlor sLaff members can be puL under pressure Lo accede Lo
Lransfer of a[unlor sLaff.
ulsLrlcL 8udgeL 8evlsed 8udgeL LsLlmaLes
Salary non - Salary Salary non - Salary
SlalkoL (un[ab) 1,416 97 40 3 1,467 93 76 3
Impacts of Devo|ut|on keforms ChapLer 4
41
A very common pracLlcebydocLors aL governmenL healLh faclllLles ls LhaL Lheypersuadeand coerce
paLlenLs Lo see Lhem aL Lhelr personal prlvaLe cllnlcs, whereby Lhey charge Lhem dearly for
consulLaLlon and medlclnes and aL Llmes a wlde range of unnecessary medlcal LesLs. CovernmenL
healLh pollcy ls leasL concerned wlLh Lhe conLrol of reLall prlces of drugs ln markeL. Well known
speclallsL physlclans geL brlbed by Lhe medlclne manufacLurers for klckback ln reLurn for
prescrlblng Lhelr drugs Lo paLlenLs, even lf noL necessary. 1he dllemma ls LhaL poor llllLeraLe
paLlenLs can noL dlsLlngulsh or ldenLlfy Lhe alLernaLlve cheap medlclnes leavlng Lhem wlLh no oLher
opLlon Lhan purchaslng medlclnes prescrlbed by Lhe prlvaLe pracLlLloners. A rough esLlmaLe of
dlsLrlbuLlon cosLs of medlclnes produced ls around 80 of LoLal reLall prlce charged ln Lhe markeL.
Cne can well lmaglne whaL porLlon of LhaL unlL prlce goes Lo Lhe one who prescrlbes, or Lo be more
preclse, sell Lhem on behalf of Lheproducers.
Cn poslLlve slde, Wllllamson eL al. (2003) quoLe LhaL among Lhose LhaL usually used governmenL
healLh faclllLles, more people knew how Lo complaln abouL servlces ln 2004 (12 ln 2001/2 and
16 ln 2004). Among oLher lnsLances, lL was found by Au8/uflu/World 8ank (2004) LhaL some
healLh commlLLee ln karachl clalmed Lo have boLh lncreased Lhe aLLendance of sLaff by 20 and
lmproved Lhe quallLy of malnLenance and repalr. 1hls clalm was generally verlfled by nCCs and
[ournallsLs. Slmllarly, LheclLy healLh commlLLeesLaLed LhaL lL had vlslLed 23hosplLals ln LhelasL year
Lo oversee Lhe quallLy of servlce and reduce absenLeelsm. 1he commlLLee members belleve LhaL
Lhls lmprovemenL has been achleved because of Lhelr conslsLenL monlLorlng. 8eporLs are common
LhaL docLors are more ofLen presenL ln healLh faclllLles and Leachers ln schools as compared Lo pre-
devoluLlon perlods. 1he lncreaslng avallablllLy of sLaff can lead Lo Lhe lncreased chances LhaL local
faclllLles, parLlcularly for healLh, wlll acLually have medlclnes avallable for Lhe LreaLmenL. WlLh Lhe
full devoluLlon of procuremenL, publlc medlcal faclllLles are now well sLocked and Lherefore more
uLlllzed by Lhe publlc. 8uL such excepLlons are seldom observed and ln many cases, resLrlcLed only
Lo somelargeclLles.
Au8/uflu/World 8ank (2004) menLlons a case abouL user fees ln healLh. ln kllla Salfullah and
karachl, no Cu(CuL aLlenL ueparLmenL) fee was charged, buL oLher recelpLs were deposlLed lnLo
Lhe provlnclal accounL. ln 8annu and 8ahawalpur, Lhe Cu fee and oLher user charges were
deposlLed lnLo Lhe provlnclal accounL. ln khalrpur, by conLrasL, Cu fees are collecLed and
deposlLed ln a [olnL accounL of Lhe faclllLy and nalb nazlm of Lhe unlon councll concerned Lo be
spenL on small day Lo day requlremenLs of Lhe faclllLy. ln lalsalabad, Cufee and oLher recelpLs do
beneflL Lhe dlsLrlcL as Lhey are deposlLed ln dlsLrlcL accounL. A serles of dlscrepancles ln flscal and
admlnlsLraLlvemechanlsms ls observed here.
1he long Lerm cosLs of such shorL Lerm approaches are dearer. CLher Lhan Lhe overrldlng auLhorlLy
ln local affalrs by Lhe provlnclal llne mlnlsLrles, lL ls Lhe confuslon regardlng [urlsdlcLlonal
demarcaLlon and subsequenL non compllance of rules and procedures LhaL deLerloraLe Lhe already
dlmlnlshed effecLlveness and efflclency of publlc secLor organlsaLlons sLlll furLher. 1he
procuremenL process for obLalnlng medlclnes ls also sLlll carrled ouL by Lhe provlnclal governmenL,
whlch ofLen delays medlclneprocuremenL unLll afLer Lheend of LheflrsL quarLer and someLlmes as
Impacts of Devo|ut|on keforms ChapLer 4
42
Water andSan|tat|on
khan (1998) wroLe LhaL ln 1998 lL was esLlmaLed LhaL Lhe urban areas of aklsLan generaLed abouL
20 mllllon Lons of solld wasLe per annum and LhaL Lhere was noL a slngle clLy ln aklsLan wlLh a
properly planned wasLe managemenL sysLem. 1he raLe of collecLlon was esLlmaLed aL 31 Lo 69.
8ased on flgures from several surveys, Lhe WPC/unlCLl [olnL monlLorlng sysLem reporLed access
Lo lmproved sanlLaLlon ln 2000 as 93 ln urban and 44 ln rural areas (WPC/unlCLl 2001).
Accordlng Lo Lhe lPS (2001-2), only 17 of aklsLanls pald for Lhe waLer LhaL Lhey used ln 2001,
43 ln urban cenLres and 7 ln rural areas. Powever, Lhls probably excludes lrregular paymenLs for
communlLy malnLalned waLer schemes. naLlonal WaLer SecLor roflle descrlbe LhaL aklsLan's
overall waLer supply coverage ln 2001 was 63 of Lhe naLlonal populaLlon, 84 ln Lhe 12 ma[or
urban cenLres, 32 ln lnLermedlaLeurban cenLres, and 33 ln rural areas. AbouL 37 of peoplehad
plped supply Lo Lhelr homes, Lhe remalnder goL waLer from hand pumps, wells, communlLy Laps or
prlvaLe waLer vendors. Cver 30 of vlllage waLer supply was Lhrough prlvaLe hand pumps.
(MlnlsLry of WaLer and ower, Co, 2002)
rlor Lo devoluLlon reforms, provlnclal ubllc PealLh Lnglneerlng ueparLmenL (PLu) was malnly
responslble for Lhe developmenL and malnLenance of waLer and sanlLaLlon servlces, speclflcally for
largepro[ecLs ln rural areas. uevelopmenL AuLhorlLles (uAs) and WaLer and SanlLaLlon AssoclaLlons
(WASAs) were provldlng slmllar servlces ln large, urban cenLres. Au8/uflu/World 8ank (2004
)reporL LhaL alLhough ln governmenLal Lerms, waLer and sanlLaLlon are now clearly asslgned Lo
1ehslls or Lowns wlLh an excepLlon Lo ClLy ulsLrlcLs (where Lhey are dlsLrlcLs' responslblllLles), Lhe
slLuaLlon of arrangemenLs reveals Lhe lncompeLence of provlnclal conLrol. Lach provlnce has
devolved PLuln adlfferenL way. 1hepre-devoluLlon sLrucLureof LhedeparLmenL was Lhesameln
all four provlnces. ln nWl, PLuhad lnlLlally been devolved Lo Lhe dlsLrlcL and noL 1MA level, buL
was subsequenLly recenLrallzed Lo Lhe dlvlslon or clrcle level. Slndh and un[ab were good
examples of lmplemenLaLlon of Lhe LCC, buL even Lhere, lL was mosLly Lhe provlnclal conLrol.
rogress of decenLrallsed governmenL can hardly be [udged ln a falrly as mosL of Lhe managemenL
sLlll remalns ouL of local governmenL dlrecL conLrol.
nayyar-SLone(2006) descrlbeLhaL 1MAs areprovldlng waLer servlces only ln Lheurban cenLres and
more Lhan 60 of Lhe populaLlon llvlng ln rural areas ls noL covered by 1MA servlces. Coverage ln
Lhe maln Lowns ranges from 70-80 for waLer supply and from 30-60 for underground sewerage
servlces. MalnLenance of Lhe exlsLlng lnfrasLrucLure ls very poor wlLh rusLed plpes, broken sewers
and broken or lnefflclenL Lube wells. 8esldes, mosL of Lhe 1MAs do noL have accuraLe daLa on
servlce levels and relaLed servlce dellvery lndlcaLors. Whereas Wllllamson eL al. (2003) found LhaL
access Lo safe drlnklng waLer ls reasonable excepL ln nWl where 46 of households dld noL have
access Lo safe porLable waLer supply. 61 of households ln aklsLan has access Lo hand or moLor
powered waLer pump lmplylng LhaL mosL peoplerelyon prlvaLewaLer supplyschemes (Co 2002).
AnoLher ma[or lssue ln regard Lo waLer supply ls user fees and uLlllLy bllllng. 1he facL LhaL waLer
producLlon cosLs are hlgher Lhan lncome from paymenL of bllls, worsens flscal lmbalances. urban
households are more llkely Lhan rural households Lo pay for Lhelr waLer supply lndlcaLlng Lhe
dlfflculLles ln collecLlng user charges ln rural areas (Co 2002). 8yand large, Lhls problemhas
Impacts of Devo|ut|on keforms ChapLer 4
43
exacerbaLed ln posL devoluLlon era. Local represenLaLlves flnd lL very hard Lo levy user fees for
waLer supply and oLher assoclaLed uLlllLy charges ln rural consLlLuencles LhaL ls where he/she
geLselecLed from. nazlmeen fear Lhe loss of voLe banks ln case lf Lhey supporL Lhe 1MA
admlnlsLraLlon ln punlshlng Lhe defaulLers. 8evenue generaLed from vasL rural areas ls Lhus usually
lnsufflclenL Lo produceand malnLaln LhewaLer supply schemes. urban clLlzenry, on LheoLher hand,
can noL easllyavold paylng LhewaLer and sanlLaLlon user charges.
8ural and urban admlnlsLraLlve dlvlslons have been abollshed slnce 2001 wlLh Lhe onseL of local
governmenLs. ollLlcal acLlvlsm and voLer LurnouL ls hlgher ln rural areas and local governmenL
represenLaLlves usually bank on rural consLlLuencles Lo seek voLe from where Lhey mosLly belong.
uevelopmenL funds allocaLed aL Lehsll and Lown level mosLly geL spenL ln rural Lowns or rural
suburbs of clLles. ln oLher words, clLlzens ln urban areas pay Lhe prlce for servlces LhaL are hlghly
LargeLed Lowards Lhe rural areas. 1hls ls a Lyplcal 'free rlder' lssue. urban populace cannoL usually
geL away wlLh paylng for Lhese servlces because of relaLlvely hlgher levels of accounLablllLy and
probablllLy of dlsconnecLlon of faclllLy. ConLrary Lo Lhelr rural counLerparLs, Lhelr pollLlcal
connecLlons wlLh nazlmeen are noL sLrong enough Lo sLlpulaLe exempLlons from paymenLs or
punlLlvecharges ln caseof defaulL.
1he mosL frequenLly dlscussed lssue ln Lhe recenL devoluLlon reforms ln aklsLan ls [urlsdlcLlonal
overlap beLween dlfferenL Llers of governmenL and federal/provlnclal bureaucracy. ubllc cannoL
assess servlces provlded when varlous levels of governmenL are lnvolved ln dellverlng Lhe same
servlces e.g. ln healLh and educaLlon secLors, all Lhree Llers of governmenL are lnvolved l.e. federal,
provlnclal and local governmenL. Accordlng Lo Lhe Au8/uflu/World 8ank (2004), Lhe overlap Lhus
weakens lncenLlves Lo perform well on servlce dellvery and encourages pollLlclans Lo LargeL
servlces Lo Lhelr core supporLers. !urlsdlcLlonal overlap ls Lhus a ma[or lssue ln all servlces lncludlng
educaLlon and healLh servlces.
MulLlple levels of governmenLs provldlng same servlces ends up ln dupllcaLlon of pro[ecLs l.e.
overprovlslon of servlces and pro[ecLs ln cerLaln areas aL Lhe expense of oLhers. 1hls lssue ls relaLed
Lo [urlsdlcLlonal overlaps emanaLlng from sLrucLural flaws ln deslgn of lnLer-governmenLal
hlerarchy. 1he provlnclal and federal governmenL provlde developmenL granLs Lo each member of
Lhe provlnclal assembly (MA) and Member naLlonal Assembly (MnA), for underLaklng
developmenL work ln hls/her consLlLuency. MosL MAs and MnAs do noL lnvolve 1MAs ln Lhe
execuLlon of Lhelr developmenL programs. lederal and provlnclal governmenLs are sLlll Lhe maln
declslon makers ln promoLlng and execuLlng naLlonal pollcy prlorlLles and hold sway ln local
governmenL expendlLures on servlcedellvery vlaLop down verLlcal programs.
Slnce Lhe provlnclal governmenL remalns Lhe LuC's employer, lL holds A1 powers over Lhem. 1hls
ls hlghly pollLlclsed arrangemenL Lo lnfluence Lransfers ln Lhe dlsLrlcL. Senlor ulsLrlcL managers are
employed by Lhe provlnclal governmenL and Lhey are bound Lo comply as per provlnclal orders.
Passan (2002) argues LhaL Lheprovlnclal supporLlng auLhorlLles Lend Lo keep aLlghL conLrol boLh on
auLhorlLy and resources of Lhe local governmenLs and Lhe federal governmenL and Lhe federal
pollLlcal auLhorlLles have Lhe same approach Lowards provlnces. nazlm's conLrol over local pollce
Serv|ce De||very and Iur|sd|ct|ona| Constra|nts
Impacts of Devo|ut|on keforms ChapLer 4
44
Pead ls sLlll very LlLular. 1he ablllLy of local governmenLs Lo lmplemenL local and speclal regulaLlons
has been affecLed because Lhere are no procedural deLalls and LhaL Lhe verLlcal relaLlonshlp of Lhe
pollce chlef wlLh hls deparLmenLal hlerarchy sLand ln Lhe way of lmplemenLlng Lhe new
arrangemenLs under Lhe ollce Crder. !urlsdlcLlonal demarcaLlon ls also requlred ln healLh and
educaLlon secLor, absence of whlch would ulLlmaLely deLerloraLe Lhe relaLlonshlp beLween Lhe
servlceprovlders and LheclLlzens as well as beLween Lhepollcymakers and Lheservlceprovlders.
lnLer and lnLra dlsLrlcL sLaff Lransfers were consldered Lo be Lhe maln reasons of confllcL beLween
provlnclal and local governmenLs by Au8/uflu/World 8ank (2004). SLudy explalns LhaL Lhe
relaLlonshlp beLween LhedlsLrlcL nazlm and Lhesenlor sLaff ln LhedlsLrlcL, parLlcularly LheuCCand
uC, can be vulnerable. nazlmeen have very llLLleeffecLlve auLhorlLy over Lhese sLaff as wrlLlng Lhe
Annual ConfldenLlal 8eporLs (AC8s) of uCCs ls [usL a nomlnal mechanlsm for enforclng
accounLablllLy. 1ehsll level managers possess greaLer conLrol over preparlng salary budgeLs and
over local personnel, Lhelr recrulLmenL and Lransfer. Powever, ln Lhe dlsLrlcLs, lL's Lhe oLher way
round. ulsLrlcL offlclals, have weak conLrol over sLaff numbers. 1hey cannoL, on Lhelr own, declde
Lhelr salary budgeLs or sack Lhe exLra sLaff and can only recrulL wlLhln lnsLrucLlons glven by Lhe
provlnces. lormulaLlon of paypollcyls nelLher ln dlsLrlcL nor Lehsll auLhorlLles' [urlsdlcLlon.
ln slmllar veln, lnLernaLlonal Crlsls Croup (lCC 2004) hlghllghLs some of Lhe LransformaLlons ln posL
devoluLlon perlod. Accordlng Lo Lhe reporL, SecLlon 20 of LCCmakes nazlm personally responslble
for flnanclal losses and unlawful expendlLures. Several nazlms complaln LhaL Lhls creaLes
"responslblllLy wlLhouL auLhorlLy" and leaves Lhem vulnerable. Many admlnlsLraLlve powers
prevlously exerclsed by Lhe dlsLrlcL commlssloner remalned unspeclfled ln Lhe new sysLem. oorly
deflned enforcemenL mechanlsms are anoLher problem. Whlle Lhe 1ehsll admlnlsLraLlon en[oys
quasl-[udlclal powers such as lmposlng flnes, lLs offlclals flnd lL nearly lmposslble Lo enforce Lhelr
wrlL wlLhouL Lhe enforcemenL powers prevlously exerclsed by execuLlve maglsLraLes backed by Lhe
pollce. 1he reporL also spells ouL LhaL coordlnaLlon has grown worse. 1here are no hlerarchlcal
llnkages beLween Lhe varlous levels of local governmenL, and each pracLlcally operaLes ln lsolaLlon.
1here ls vlrLual absence of accounLablllLy of dlsLrlcL nazlms. 1he provlnclal Local CovernmenL
Commlsslon can lnlLlaLe speclal audlLs and lnspecLlons of dlsLrlcL governmenLs buL Lhese can aL
besL be sporadlc and are noL a vlable subsLlLuLe Lo permanenL, lnsLlLuLlonallsed checks and
balances aL dlsLrlcL level. 1he exLenslve range of flnanclal conLrols and Lhelr effecLlve exerclse,
however, remaln conLlngenL on Lhe pollLlcal relaLlonshlp beLween nazlms and Lhe councll headed
by Lhe nalb nazlm. Slnce Lhe nazlm and nalb nazlm are elecLed on a [olnL LlckeL, Lhe former can
wleld enormous lnfluence over Lhe councll wlLhouL endurlng correspondlng leglslaLlve checks on
hls auLhorlLy
AC8 (Annual ConfldenLlal 8eporL) ls legacy of colonlal clvll admlnlsLraLlon whereln superlor offlcers wrlLe annual
progress reporL of subordlnaLe sLaff ensurlng lLs uLmosL confldenLlallLy. lronlcally, Lhe person whose AC8 ls wrlLLen
remalns LoLallyobllvlous of LhenaLureand conLenL of reporL.
2
Impacts of Devo|ut|on keforms ChapLer 4
4S
1he greaLer focus on physlcal lnfrasLrucLure lnvesLmenLs, Lhe emphasls on small, locallzed
developmenL schemes, and Lhe lack of efflclenL prlorlLlzaLlon of operaLlons and malnLenance
suggesLs LhaL reLurns for provldlng vlslble, LargeLed beneflLs are hlgher for local pollcy-makers.
Cheema and Mohmand (2004) found ln vlllages Lhey surveyed ln un[ab LhaL sanlLaLlon and draln
provlslon was belng LargeLed Lo speclflc households even wlLhln a lane ln a glven vlllage. 1hls ls
worse case scenarlo ln selecLed provlslon of servlces. SelecLed provlslon of servlces ls a menace
LhaL ls common across all secLors. Local and reglonal pollLlclans wlLh llmlLed resources have lesser
opporLunlLles Lo bulld Lhelr pollLlcal credlblllLy and Lherefore usually have Lo go for selecLed
provlslon of publlc servlces. Wllder (1999) quoLes a very lnLeresLlng example of pollLlcal paLronage
ln aklsLan. Pe relaLes Lhe words of former members of Lhe naLlonal Assembly from un[ab as
Annual ConfldenLlal 8eporLs (AC8s) of uCCs ls [usL a nomlnal mechanlsm for enforclng
accounLablllLy. 1ehsll level managers possess greaLer conLrol over preparlng salary budgeLs and
over local personnel, Lhelr recrulLmenL and Lransfer. Powever, ln Lhe dlsLrlcLs, lL's Lhe oLher way
round. saylng: eople now Lhlnk LhaL Lhe [ob of an MnA and MA ls Lo flx Lhelr guLLers, geL Lhelr
chlldren enrolled ln school, arrange for [ob Lransfers . Lhese Lhlngs consume your whole day.." .
Look, we geL elecLed because we are 'ba'asar log' (lnfluenLlal people) ln our area. eople voLe for
me because Lhey percelve me as someone who can help Lhem...somebody's son ls a maLrlc fall and
l geL hlm a [ob as a Leacher or a governmenL servanL. . ." Pe (Wllder) furLher explalned LhaL voLlng
behavlour ls lncreaslngly belng lnfluenced by voLer demands for parLlcular local lssues such as
asslsLance ln 'Lhana-kaLchehrl' (pollce sLaLlon and courLs affalrs), or Lhe need for a road, school, or
baslc healLh unlL ln Lhelr vlllage or for an elecLrlclLy, Lelephone, or naLural gas connecLlon for Lhelr
house, or for [obs, promoLlons, or Lransfers ln Lheworkplace.
As Lhe evldence reveals, healLh, educaLlon and munlclpal servlces provlslon responslblllLles
overlap among local, provlnclal and federal governmenL and clvll admlnlsLraLlon of respecLlve
deparLmenLs. When such uncerLalnLles exlsL, lower Llers of pollcy makers caplLulaLe Lo hlgher ones
and declslon maklng becomes Lop down exerclse. Also, credlL clalmlng for a parLlcular servlce
becomes dlfflculL lf mulLlpleLlers of governmenL areprovldlng Lhesameservlce. 1hls dlsLorLlon can
Lhen creaLe lncenLlves for pollLlclans Lo focus on selecLed beneflLs or on more vlslble lnLervenLlons
(Pasnaln 2008). ln a socleLy LhaL ls hlghly fragmenLed on Lhe basls of prlmordlal facLors llke lncome,
educaLlon, eLhnlclLy, language and culLure, Lallorlng of servlces as per Lhe requlremenLs of local
populace becomes all Lhe more dlfflculL. Pusnaln (2003) belleves LhaL one reason for selecLed
dellvery of goods and servlces ls hlgher degree of fragmenLaLlon, facLlonallsaLlon and polarlsaLlon
of socleLy and pollLlcal parLy sysLem. ulfferenL eLhnlc groups have varled problems and dlfferenL
preferences maklng lL dlfflculL for pollcymakers Lo dellver baslc servlces
Pusnaln (2003) concludes LhaL ma[or causes of lnefflclenL servlce dellvery are ellLe capLure of
resources, pollLlcal lnsLablllLy and lnformaLlon asymmeLry. lssues assoclaLed wlLh funcLlonlng of
local governmenL are mulLlfaceLed. AparL from pollLlcal and flscal lssues, admlnlsLraLlve and
CommonIssues n|nder|ng Deve|opment
Impacts of Devo|ut|on keforms ChapLer 4
46
capaclLy llmlLaLlons lmpede Lhe developmenL lnlLlaLlves. Wllllamson eL al (2003) expllcaLes LhaL
many LuCs who are Leachers and docLors by professlon, and have had no prevlous experlence ln
managlng sLaff and allocaLlng budgeLs arenow requlred Lo carry ouL such roles. lL ls common Lo flnd
an LuC llnance and plannlng wlLh a background unrelaLed Lo Lhe demands of such a Lask.
roponenLs of devoluLlon reforms clalmed LhaL new local governmenL sysLem would lmprove Lhe
access relaLlonshlps beLween Lhe pollcy makers and clLlzens. lL was belleved LhaL prevlously clvll
servanLs and members of naLlonal and provlnclal assembly were noL easlly accesslble and
accounLable Lo Lhe masses. 1here has been a poslLlve change ln Lerms of access relaLlonshlp
beLween local governmenL represenLaLlves and clLlzens. 8eporL by u1CL ln 2003 found LhaL
approxlmaLely 23 of households reporLed havlng some conLacL wlLh Lhelr unlon counclllors over
Lhe precedlng Lwelve monLhs, up from 22 ln 2001. Cver 60 of Lhe households clalmed LhaL Lhey
would approach a unlon counclllor or nazlm for Lhelr problems, as compared Lo only 10 who
would approach an MA or MnA. Powever such access cannoL be consldered as a vlLal
achlevemenL. 1ake for lnsLance n88's (2002) naLlonal survey whlch lndlcaLes LhaL clLlzens prlmarlly
accessed unlon Counclllors for flnanclal asslsLance. Less Lhan 2 approached Lhem ln relaLlon Lo
Impacts of Devo|ut|on keforms ChapLer 4
47
Concluslon
As menLloned earller, lL won'L be falr Lo [udge Lhe performance of local governmenLs ln dellvery of
soclal servlces for Lwo maln reasons. llrsL, Lhe very deslgn and ulLlmaLely Lhe embedded rule of
federal and provlnclal governmenLs and clvll bureaucracy aL Lhe dlsLrlcL level dldnoL really allow
sufflclenL auLhorlLy Lo Lhe local governmenLs. Secondly, local governmenLs are ln Lhelr lnfancy
sLage. lL Lakes decades for a sysLem Lo evolve and ulLlmaLely geL lnsLlLuLlonally maLure enough Lo
prove lLs worLh. ln aklsLan, servlce provlders are cenLrally conLrolled and Lherefore Lhe
accounLablllLy mechanlsms aL local levels are naLurally far from effecLlve. nomlnal revenue ralslng
capaclLy of local governmenLs leaves Lhem wlLh reduced opporLunlLles Lo make dlfference and
Lhereby maklng Lhe assessmenL of Lhelr performance all Lhe more dlfflculL. 1hls sLudy however,
ldenLlfles key lssues ln healLh, educaLlon and munlclpal servlces secLors uslng secondary daLa from
nascenL research conducLed ln Lhls fleld.
unquallfled healLh pracLlLloners serve people ln rural areas and Lhere ls no lmprovemenL ln posL
devoluLlon perlod Lo check such hazardous pracLlces. CosLs lnvolved ln Lravel Lo relaLlvely beLLer
healLh faclllLles ln urban areas keeps a largepopulacedeprlved of baslc healLh servlces. urban rural
blas ln provlslon of healLh faclllLles perslsLs desplLe lnLegraLlon of urban and rural areas ln LCC
2001. SwlLchlng over Lo prlvaLe healLh provlders ls an expenslve and unaffordable opLlon for
marglnallse ma[orlLy of rural clLlzenry. lncreased lncenLlves are requlred for aLLracLlng quallfled
sLaff ln rural healLh faclllLles. AllocaLlon for provlslon of free medlclne ln budgeL allocaLlons ls
negllglble and a huge chunk of budgeL goes Lo salarles. LmbezzlemenLs ln dlsLrlbuLlon of llmlLed
free medlclnes remaln Lhe order of Lhe day. PealLh managers and auxlllary sLaff are noL dlrecLly
answerableLo LheelecLed represenLaLlveof local governmenL and henceLhelr accounLablllLyls non
exlsLenL. MosL managerlal posLs are fllled ln by docLors who evenLually spend mosL of Lhelr Llme ln
deallng wlLh managerlal lssues (appolnLmenLs, posLlngs, Lransfers and oLher rouLlne offlclal
managemenL) lnsLead of focuslng on lmprovemenL of healLh faclllLles.
1here ls hardly any slgnlflcanL progress seen ln lmprovemenL of enrolmenL ln prlmary and
secondary publlc schools ln pre and posL devoluLlon perlods. CosL of schoollng remalns by far Lhe
ma[or hlndrance for parenLs wlshlng Lo send Lhelr chlldren Lo schools. 8udgeL allocaLlon for
faclllLles ln school ls lnslgnlflcanL and llke budgeLs ln healLh secLor, enormous percenLage of
allocaLlon goes Lo salarles and admlnlsLraLlve heads of accounL. CverslghL mechanlsm prlmarlly
lnLended vla school managemenL commlLLees ls elLher weak or non-exlsLenL aL all. lndeed among
Lhe exlsLenL ones, mosL are capLured by elLher Lhe school sLaff or local governmenL represenLaLlves
and as such Lhere ls leasL lnvolvemenL or parLlclpaLlon from parenLs. WlLh a few mlnor excepLlons,
boLh, healLh and educaLlon secLors show hlgh levels of paLh dependenL Lendencles. osL
devoluLlon sLrucLure of governmenL and publlc secLor may well have changed ln books buL Lhe
pracLlces ln publlc servlcedellvery haveelLher noL changed or deLerloraLed.
WaLer supply and sanlLaLlon secLors ls no dlfferenL. eople Lry Lhelr level besL Lo Lurn Lo prlvaLe
sources of waLer supply. CollecLlon of user fee ls an admlnlsLraLlve and pollLlcal lssue ln rural areas
where consumpLlon ls hlgher. 1MA admlnlsLraLlon ls undersLaffed and lncapable Lo mlLlgaLe Lhe
free
Impacts of Devo|ut|on keforms ChapLer 4
48
free rlder lssue ln rural areas. Slnce Lhe voLe blocs of elecLed local governmenL represenLaLlves llve
malnly ln rural areas, Lhey usually pressurlse 1MA admlnlsLraLlon for lmpunlLy of defaulLers.
LlmlLed revenue ralslng / Lax levylng and collecLlon auLhorlLy of 1MA conflne Lhelr budgeLs and
afLer LherecurrenL expenses, llmlLed resources areavallablefor malnLenanceand developmenL.
!urlsdlcLlonal overlaps have been commonly observed. MulLlple Llers of governmenL provlde
slmllar resulLlng ln overprovlslon of servlces ln some areas aL Lhe expense of oLher deservlng
consLlLuencles. LlmlLed developmenL funds and naLure of local pollLlcal organlsaLlons compel local
governmenL represenLaLlves Lo LargeL Lhe provlslon aL hls/her consLlLuency only. Cyan and orLer
(2004) sLaLe LhaL currenLly verLlcal programs (Lhose cascadlng from upper levels of governmenL)
guaranLees federal and provlnclal assembly members LhaL Lhey wlll be able Lo use local salary,
sLafflng, resource allocaLlon and developmenL conLracLlng as Lhe prlme source of paLronage and
plunder. 1he provlnclal assembly members conslder Lhe counclllors and Lhe nazlms as Lhelr
pollLlcal compeLlLors ln Lhe consLlLuencles. LllLe capLure of local resources has also been reporLed.
lor local governmenL Lo perform well, Lhe exlsLence of professlonal and capable publlc secLor
organlsaLlons ls a pre condlLlon. Cne can only expecL local governmenL Lo dellver when Lhls
precondlLlon ls meL.
Impacts of Devo|ut|on keforms ChapLer 4
49
lL ls cerLalnly noL a Lyplcal Lo flnd gllLches ln Lhe devolved local governmenL sysLem LhaL ls ln lLs
lnfancy, speclflcally conslderlng lL ln Lhe conLexL of developlng counLry llke aklsLan LhaL has been
golng Lhrough a serles of pollLlcal and economlc dlsorders. ln developlng counLrles lL ls noL [usL Lhe
pollcy deslgn of decenLrallsaLlon LhaL maLLers buL also Lhe degree of falrness, serlousness of
pollLlcal wlll, accounLablllLy and Lransparency lnvolved ln lLs lmplemenLaLlon. Covernance ls a
Lerrlbly complex process and same ls Lhe case wlLh devlslng and lmplemenLlng an ldeal publlc
pollcy. key Lo success ls sysLemaLlc lnvesLlgaLlon of lssues and proper plannlng for effecLlve
managemenL. Cood governance ls Loo crlLlcal Lo be lefL only Lo local governmenL. WlLhouL meeLlng
Lhe essenLlal pre-requlslLes for Lhe developmenLal needs of sLaLe l.e. slncere pollLlcal wlll of pollLy
and coordlnaLlon among sLrong lnsLlLuLlons along wlLh balanceof power and auLonomy, successful
publlc pollcy wlll remaln adream. uecenLrallsaLlon models havebeen successful ln mosL developed
counLrles afLer golng Lhrough LranslLlonal phases yeL lLs synchronlsaLlon wlLh soclo-pollLlcal and
economlc conLexLs ln developlng counLrles needs careful conslderaLlons.
ln Lhe process of ldenLlflcaLlon of lssues ln LCS ln aklsLan, Lhe llmlLaLlons ln delegaLlon of auLhorlLy
and responslblllLles Lo Lhe elecLed members of local governmenL are also deplcLed clearly. Servlce
provlders are cenLrally conLrolled wlLh very llmlLed accounLablllLy and unllmlLed auLhorlLy. LlecLed
governmenLs on Lhe oLher hand have llmlLed conLrol over Lhe flnances and Lhe servlces Lhey
supporL and dellver. Local CovernmenL Crdlnance has over-cenLrallzed Lhe A1 powers ln Lhe
hands of uCC. llscal decenLrallzaLlon Lo Lhe local represenLaLlves ls llmlLed and nomlnal because
dlsLrlcLs governmenLs sLlll have Lhe same convenLlonal Lax collecLlon and expendlLure domalns.
ollLlclans are more concerned wlLh paLronage and consolldaLlng Lhelr voLe bank Lhan provldlng
programmaLlc publlc goods and servlces LhaL would beneflL ma[orlLy of Lhe clLlzens. 1he budgeL
consLralnLs can also lead Lo unpredlcLable flow of resources Lo local governmenLs Lhereby
undermlnlng Lhelr ablllLy and capaclLy Lo plan, manage and coordlnaLe resources effecLlvely and
efflclenLly.
1he gap beLween salary and non-salary expendlLures ls huge. 8ulks of funds are allocaLed Lo wages
and hence Lhe small porLlon of LoLal funds lefL afLer Lhe allocaLlons of salarles ls lnadequaLe Lo spur
developmenL. Many bureaucraLs worklng as LuCs lack Lhe requlred managerlal skllls and
capablllLles as Lhey are noL quallfled, Lralned, and experlenced for efflclenL publlc managemenL.
8easons for approach Lo Lhe local governmenL were found Lo be almed aL flnanclal asslsLance and
rarely concerned wlLh any lmprovemenLs ln healLh and educaLlonal servlce provlslon. ubllc
percepLlons of local pollLlclans' scope of responslblllLy seldom go beyond Lhe ldea LhaL lL ls only
abouL lmplemenLaLlon of developmenL schemes such as roads, waLer supply or elecLrlclLy eLc.
ubllc's demand of accounLablllLy ln resource allocaLlon and servlce dellvery has rarely been
observed. Cenerally, ln mosL of publlc secLor organlsaLlons, commonly observed lssues were
culLureof absenLeelsm, poor moLlvaLlon, lackof dlsclpllne, and lnadequaLeand nonquallfled sLaff.
MulLlple Llers of governmenL and several publlc deparLmenLs are lnvolved ln dellvery of same
servlces. verLlcal programs by federal and provlnclal governmenL consequenLly resulLs ln
dupllcaLlon of pro[ecLs. 1hls noL only undermlnes coordlnaLed plannlng buL also creaLes ownershlp
1he Way Iorward
ChapLer 3
S0
problems and evenLually leads Lo over-provlslon of servlces ln some areas and deprlvaLlon ln
oLhers areas. 8ureaucraLs are employed by Lhe provlnclal governmenL and Lhey are
undersLandably bound Lo comply Lhe provlnclal governmenL's lnsLrucLlons. rovlnclal
governmenLs belng Lhelr employer, hold A1 powers over mosL of Lheclvll bureaucracy. Senlor sLaff
ln publlc organlsaLlons are pressurlsed by provlnclal governmenL Lo comply wlLh Lhe Lransfer
lnsLrucLlons of Lhe subordlnaLe sLaff. rovlnclal auLhorlLles Lry Lo keep a LlghL conLrol on auLhorlLy
and resources of Lhe local governmenLs. lederal pollLlcal auLhorlLles follow slmllar approach
Lowards provlnces.
A more lenlenL probe of decenLrallsaLlon reforms may come up wlLh somewhaL encouraglng
argumenLs as well, speclflcally when Lhe 'lnfancy' facLor consldered. 1hls ls noL Lo say LhaL Lhe new
sysLem ls absoluLely fuLlle. noLwlLhsLandlng all Lhe flaws expllcaLed ln Lhe analysls, Lhe new sysLem
shows aL leasL some slgns of hope for beLLer prospecLs. Plgher level of publlc engagemenL wlLh Lhe
new local governmenLs, especlally Lhe unlon counclls, ls encouraglng. Servlces from 1ehslls ln
parLlcular seem Lo be dolng conslderably well. Mlnlmally Lhough, Lhere has been an lncrease ln neL
school enrolmenL among 3-9 year old chlldren. Whlle Lhe lncrease slnce 2002 ls more lnLo prlvaLe
schools, governmenL schools are apparenLly caLerlng more for glrls and chlldren from vulnerable
households.
ulsLrlcL governmenL, Lehsll admlnlsLraLlon and unlon admlnlsLraLlon desperaLely need harmonlsed
plannlng and coordlnaLed provlslon of servlces. 1hese are lmperaLlve condlLlons wlLhouL whlch,
local governance cannoL make efflclenL use of resources. lor Lhe formulaLlon of a sysLem of flscal
Lransfers beLween dlfferenL levels of governmenL, lL wlll be lmporLanL Lo ensure Lransparency and
allowance of auLhorlLy Lo local governmenLs ln order Lo ralse addlLlonal resources. Awareness of
Lhelr rlghLs and clvlc educaLlon needs dlssemlnaLlon ln publlc ln llghL of devoluLlon reforms. ubllc
should also be lnformed abouL whaL Lhey should expecL of newly elecLed represenLaLlves. As
suggesLed by CockcrofL eL al. (2003), Lhe sLrongesL lndlvldual facLor ln users' saLlsfacLlon was Lhe
user reporL of recelvlng medlclnes ln governmenL faclllLles.
8educlng embezzlemenLs ln provlslon of medlclne and LransparenL accounLablllLy measures are of
uLmosL lmporLance ln order Lo keep Lhe clLlzens lnformed abouL Lhe faclllLles Lhey are enLlLled Lo.
1o lmprove Lhe lnLeracLlon beLween docLors and oLher healLh care provlders and Lhelr paLlenLs, a
solld cusLomer orlenLed approach could be a rellable soluLlon. lnsLlLuLlonal capaclLy bulldlng
mechanlsms are needed whlch would dlmlnlsh Lhe Lendency of paLronage by pollLlclans e.g. as
Pasnaln (2003) prescrlbes, Lhe esLabllshmenL of lndependenL ubllc Servlce Commlsslons LhaL
areglven supervlsory role ln Lhe recrulLmenL and career managemenL of key servlce dellvery
personnel, lmprovemenLs ln Lhe legal, and regulaLory framework for procuremenL ln order Lo
provlde clLlzens wlLh access Lo key publlc records. ClLlzens' lnvolvemenL vla Lhelr local
represenLaLlves ln publlc accounLs commlLLees should be lmproved ln a manner LhaL would be
conslsLenL wlLh boLLom up approach raLher Lhan Lop down.
Some o||cy Imp||cat|ons
1he Way Iorward
ChapLer 3
S1
Local governmenL sLaff conducL can be lmproved by lnvolvlng Lhe local governmenL managers ln
A1 declslon maklng. 1ransparency of A1 process needs Lo be lmproved and Lhls would only be
posslble lf local governmenL represenLaLlves are glven subsLanLlal auLhorlLy and lnvolvemenL ln lLs
declslon maklng, afLer all lL ls Lhe local governmenL LhaL ls ulLlmaLely held responslble for dellvery
of publlc servlces. rofesslonallsaLlon of clvll bureaucracy l.e. 'rlghL man for Lhe rlghL [ob' ls
essenLlal. Slnce local governmenLs work ln coordlnaLlon wlLh appolnLed publlc offlclals, reformlng
clvll servlces deparLmenLs are equally lmporLanL. 1here should be lnnovaLlve soluLlons developed
Lo encouragesLaff Lo serveln remoLeareas l.e. provldlng addlLlonal allowances, bulldlng resldenLlal
faclllLles aL remoLeareas for Leachers and healLh workers along wlLh all oLher baslc faclllLles. Checks
and balances by dlsLrlcL healLh and educaLlon sLaff, monlLorlng commlLLees, and by Lhe provlnclal
governmenLs needs Lo be ensured. CommunlLles and unlon counclllors should monlLor sLaff's
aLLendance.
A greaLer volume of non-salary developmenLal fundlng ls requlred from cenLral and provlnclal
governmenL along wlLh sufflclenL declslon maklng auLhorlLy for Lhe elecLed local governmenL for
key publlc servlces. ollcy makers should ensure devoluLlon of resource allocaLlon responslblllLles
Lo Lhe local governmenL. 1horough scruLlny of developmenL funds by publlc would fosLer
accounLablllLy and efflclency. CommunlLy lnvolvemenL and parLlclpaLlon of Lhe concerned
sLakeholders mlghL lead Lo Lhe lmprovemenL of publlc servlces. Pavlng consldered all Lhese pros
and cons of decenLrallsaLlon, lL ls very obvlous LhaL pollLlcal decenLrallsaLlon can be effecLlve when
applled and lmplemenLed ln leLLer and splrlL. lmprovemenL ln pollLlcal skllls, naLlonal lnLegraLlon,
democracy, equallLy and welfare, and maklng declslons more relevanL Lo local needs are all
advanLages of decenLrallsaLlon, provlded lL follows Lhe prlnclples of parLlclpaLlon, falrness,
accounLablllLy, Lransparencyand efflclency.
Slncere pollLlcal wlll and supporL from hlgher Llers of governmenL ls vlLal for local governmenL Lo
perform and dellver. unforLunaLely devoluLlon of power reforms have been lmplemenLed vla
presldenLlal ordlnance buL Lhelr recognlLlon as Lhlrd Ller of governmenL has noL been proLecLed by
lncorporaLlng lL ln Lhe consLlLuLlon of aklsLan. lf declslon maklng ls lnLended Lo be broughL down
Lo grass rooL level, a far greaLer lnvolvemenL of unlon counclls ls essenLlal. ulsLrlcL as a devolved Ller
of local governmenL ls Loo large Lo be consldered as local. ln some cases number of unlon counclls
lncluded ln one dlsLrlcL ls approxlmaLely 100. lf dlsLrlcL ls eplcenLre of local governmenLs' pollLlcal,
admlnlsLraLlve and flscal declslon maklng, devoluLlon of power wlll remaln noLhlng more Lhan
rheLorlc.
8lzvl (2007) clarlfy LhaL redeflnlng power sLrucLure does noL mean compleLe Lransfer of auLhorlLy
from cenLre Lo local level- lnsLead lL calls for parLlclpaLlon of local governmenL ln plannlng and
declslon maklng process. Slmllarly Panson (1998) advocaLes LhaL an educaLlon sysLem, run by
governmenL ls Lhe one LhaL ls an opLlmum blend of cenLrallsaLlon and decenLrallsaLlon and as such
Lhere cannoL be an efflclenL educaLlon sysLem LhaL ls LoLally decenLrallsed. llnally Lhe deslgners of
publlc pollcy should always regard Lhe sLaLus of economlc poslLlon of masses ln socleLy and
evaluaLewheLher exlL opLlon ls avallableLo Lhepeoplel.e. wheLher Lheycan afford Lo swlLch over Lo
prlvaLe provlslon of publlc goods and servlces. ln case of aklsLan, Lhls may be a deslrable opLlon
buL cerLalnly noL an affordable one for marglnallsed classes. 1helr rellance on publlc servlces
provlslon makes effecLlvedevoluLlon reforms aLop prlorlLy.
1he Way Iorward
ChapLer 3
S2
Allen, 1. &1homas, A. (2000) lovettyooJuevelopmeot lo21st ceototy. Cxford unlverslLyress:
London
Au8, uflu, World 8ank. (2004) uevolotloo lo loklstoo vol. 1-J, lslamabad: Aslan
uevelopmenL 8ank, ueparLmenL for lnLernaLlonal uevelopmenL (uflu), and World 8ank
8ardhan, . (2002) 'uecenLrallzaLlon of Covernance and uevelopmenL', 1be Iootool of
cooomlc letspectlves, vol. 16, no. 4, pp. 183-203.
8ardhan, . (1996) 'uecenLrallsed uevelopmenL' loJloo cooomlc kevlew, vol. xxxl, no.2, pp.
139-136.
8ardhan, . & Mookher[ee, u. (2003) 'uecenLrallzaLlon, CorrupLlon and CovernmenL
accounLablllLy: An Cvervlew', ln nooJbook of cooomlc cottoptloo', Susan 8ose- Ackerman
(ed.), Ldward Llgar, ChelLenham.
8ardhan, . &Mookher[ee, u. (2006) 'uecenLrallsaLlon and AccounLablllLy ln Lhe lnfrasLrucLure
uellvery ln ueveloplng CounLrles,' 1be cooomlc Iootool, vol. 116, (!anuary), pp. 101-127,
8lackwell, Cxford.
CharlLon, !., Lbel, 8., MukhLar, P., ScoLL, 8. & lrancols valllancourL, l. (2002) 'aklsLan
uevoluLlon: A noLe ln SupporL of Lhe uevelopmenL ollcy 8evlew', World 8ank and Lhe
neLherlands MlnlsLry of lorelgn Affalrs.
Cheema, A. and Mohmand, S. k. (2003) 'Local CovernmenL 8eforms ln aklsLan: LeglLlmlslng
CenLrallzaLlon or a urlver for ro-oor Change?,' aper wrlLLen for Lhe 'loklstoo utlvets of lto-
loot cbooqe' SLudy conducLed by lnsLlLuLe of uevelopmenL SLudles uk, CollecLlve for Soclal
Sclence8esearch, karachl and ullu, uk.
Cheema, A. &Mohmand, S.k. (2004) '8rlnglng LlecLoral ollLlcs Lo uoorsLeps: Who Calns Who
Loses?', Mlmeo, LahoreunlverslLyof ManagemenL Sclences, aklsLan.
Cheema, A., khwa[a, A. and Cadlr, A. (2003) 'uecenLrallsaLlon ln aklsLan: ConLexL, ConLenLs
and causes', laculLy 8esearch Worklng aper Serles no. 8W03-034, !ohn l kennedy School of
CovernmenL, Parvard unlverslLy.
Cheema, A. & Sayeed, A. (2006) '8ureaucracy and ro-poor Change', luL Worklng paper
2006:3, aklsLan lnsLlLuLeof uevelopmenL Lconomlcs, lslamabad, akslLan.
CockcrofL, A., Andersson, n., Cmer, k., Ansarl, n., khan, A. Chaudhry, uu. & Saeed, S. (2003)
5oclol AoJlt of Covetoooce ooJ uellvety of lobllc 5etvlces lo loklstoo 2004/05, naLlonal
8eporL, u1CL/ClL1, lslamabad.
8l0ll0f80
S3
Cyan, M. & orLer, u. (2004) 'lnnovaLlons under ConsLralnL: Local CovernmenLs and Servlce
uellvery ln aklsLan', aper repared for keqloool coofeteoce oo lto-poot 5etvlce uellvety by
locol Covetomeots, Aslan uevelopmenL 8ank, Moollo, 10-12lebruary
Cyan, M. (2007) 'llscal ArchlLecLure: A leLLer on new Local CovernmenLs ln aklsLan?',
lotetootloool Iootool of lobllc AJmlolsttotloo, vol. 30, no.12, pp. 1439- 1483.
uS (2006) cltlzeo commoolty 8ootJ-Ootcome kepott, uecenLrallsaLlon SupporL
rogramme, CovernmenL of aklsLan.
(u1CL) & ClL1 (2003) 5oclol AoJlt of Covetoooce ooJ uellvety of lobllc 5etvlces. Notloool
kepott 2004/05, uevoluLlon 1rusL for CommunlLyLmpowermenL, lslamabad.
uohad, 8. (2002) leople's Assemblles oo uevolotloo of lowet. A cose 5toJy oo lopolot lolltlcol
lottlclpotloololoklstoo. LA noLes, vol. 43: pp. 26-28.
LasLerly, W. (2003) '1he ollLlcal Lconomy of CrowLh wlLhouL uevelopmenL: A Case SLudy of
aklsLan, ln lo5eotcbof ltospetlty (ed.), 8odrlck, u., rlnceLon unlverslLyress, n!.
lederal 8ureau of SLaLlsLlcs, CovernmenL of aklsLan.
lrledman, P. !. (1983) 'uecenLrallsed uevelopmenL ln Asla: Local ollLlcal AlLernaLlves' ln
ueceottollsotloo ooJ uevelopmeot. lollcy lmplemeototloos lo ueveloploq cooottles, Cheema
and 8ondlnelll (eds), SACLubllcaLlons, 8everlyPllls, pp. 33-37.
CovernmenL of aklsLan (2001) 5N8l locol Covetomeot OtJloooce, 2001.
CovernmenL of aklsLan (2002) loklstoo loteqtoteJ noosebolJ 5otvey. koooJ lv 2001-2002,
lederal 8ureau of SLaLlsLlcs, CovernmenL of aklsLan.
CovernmenL of aklsLan (2002) utlllsotloo of lobllc neoltb locllltles lo loklstoo, MlnlsLry of
PealLh, CovernmenL of aklsLan, lslamabad.
CovernmenL of aklsLan (2006) 1be locol Covetomeot 5ystem2001, naLlonal 8econsLrucLlon
8ureau [Cnllne], avallable: hLLp://www.nrb.gov.pk/
Panson, M.L. (1998) SLraLegles of LducaLlonal uecenLrallsaLlons: key CuesLlons and Core
lssues, Iootool of Jocotloool AJmlolsttotloo, vol. no. 36(2), pp. 111-128.
Pasnaln, Z. (2003) '1he ollLlcs of Servlce uellvery ln aklsLan: ollLlcal arLles and Lhe
lncenLlves for aLronage, 1988-1999' lkM wotkloq lopet 5etles, 8eporL no. SAS8-6, 1he
World 8ank, WashlngLon u.C.
8l0ll0f80
S4
Pasnaln, Z. (2008) 'uevoluLlon, AccounLablllLy, and Servlce uellvery: Some lnslghLs from
aklsLan', lollcy keseotcb wotkloq lopet 4610, 1he World 8ank SouLh Asla 8eglon overLy
8educLlon Lconomlc ManagemenL ueparLmenL.
Passan, M.1. (2002) 'Covernance and overLy ln aklsLan' MlMAl 1ecbolcol lopet 5etles no.13,
aklsLan lnsLlLuLeof uevelopmenL Lconomlcs, lslamabad, aklsLan.
Peywood, A. (2007) 'lolltlcs', algraveMacmlllan, new ?ork.
Peymans, C., resLon, A. and SlaLer, 8. (2004) 'LffecLlve uecenLrallsaLlon: A 8esearch Scoplng
SLudy', 5oppottloqlocol Covetoooce 5etles, Worklng aper 63301, CPklnLernaLlonal.
Pughes, C. L. (eds) (1998) lobllc Moooqemeot ooJAJmlolsttotloo, Macmlllan ress, London.
Pusaln, l. (1999) loklstoo. 1be cooomy of oolltlst 5tote, Cxford unlverslLyress, karachl.
Pyden, C. & CourL, !. (2002) 'Covernance and uevelopmenL', wotlJ Covetoooce 5otvey
ulscusslon aper no. 1, unlLed naLlons unlverslLy.
Pyden, C., CourL, !., &Mease, k. (2004) 'Mokloq 5eose of Covetoooce, mpltlcol vlJeoce ftom
16ueveloploqcooottles', Lynne8lenner, London.
Pyder, 1. A. (1999) Moolclpol Moooqemeot ooJ lloooce lo 5ootbeto loojob, WaLer and
SanlLaLlon rogram, World 8ank, lslamabad.
lCC (2004) 'uevoluLlon ln aklsLan, 8eform or 8egresslon', lotetootloool ctlses Ctoop 8eporL
no.77, lslamabad/8russels.
!alal, A. (1993) uemoctocy ooJ Aotbotltotloolsm lo loklstoo. A compototlve ooJ nlstotlcol
letspectlve, Sang-e-Meel, Lahore.
!enklns, 8. (2002) 1heLmergenceof 1heCovernanceAgenda, SoverelgnLy, neo-llberal 8las and
1he ollLlcs of lnLernaLlonal uevelopmenL' ln 1be compooloo to uevelopmeot 5toJles, (eds.) v.
uesal, &8.8. oLLer, Arnold, London.
keefer, .L., narayan, A. & vlshwanaLh, 1. (2003) 'uecenLrallsaLlon ln aklsLan: Are Local
ollLlclans Llkely Lo be More AccounLable? Worklng aper: uevelopmenL 8esearch Croup,
1he World 8ank.
8l0ll0f80
SS
khan, A. (1967) ltleoJs Not Mostets. A lolltlcol Aotobloqtopby, Cxford unlverslLy ress,
London.
Lh
khan, M.P. (1998) 'Solld WasLe ManagemenL ln aklsLan', paper presenLed aL 24 WLuC
Conference: SanlLaLlon and WaLer for All, lslamabad, aklsLan.
LaLlf, M. (2006) 1be lolltlcs of lottlclpotloo. vlJeoce ftom llve ulsttlcts lo loklstoo, CS
lnLernaLlonal ollcylellowshlp rogram, CenLral Luropean unlverslLy, CenLrefor ollcySLudles,
Cpen SocleLylnsLlLuLe.
LefLwlch, A. (1994) 'Covernance, Lhe SLaLe and uevelopmenL', uevelopmeot ooJ cbooqe, vol.
23, pp. 363-386.
MaLhur, k. (1983), 'AdmlnlsLraLlve uecenLrallsaLlon ln Asla' ln ueceottollsotloo ooJ
uevelopmeot'. lollcy lmplemeototloos loueveloploqcooottles, C. Shabblr Cheema&uennls A.
8ondlnelll (eds), SACLubllcaLlons, London, pp.39-76.
Mlnogue, M. & McCourL, W. (eds) (2001) 1be lotetootlooollzotloo of lobllc Moooqemeot.
keloveotloqtbe 1bltJwotlJ5tote, Ldward Llgar, ChelLenham.
MlnlsLry of Lconomlc Affalrs and SLaLlsLlcs, Co, (2002) cooomlc 5otvey2001/2.
MlnlsLry of LducaLlon, Co (2002) Jocotloo5ectot kefotms. Actloolloo2001-2004.
MlnlsLry of WaLer and ower, Co (2002) loklstoowotet 5ectot 5ttoteqy. vol 5. Notloool wotet
5ectot ltoflle, Cfflceof LheChlef Lnglneerlng Advlsor/Chalrman lederal llood Commlsslon.
naLlonal 8econsLrucLlon 8ureau (2002) 5oclol AoJlt of Covetoooce ooJ uellvety of lobllc
5etvlces. 8oselloe 5otvey 2002, naLlonal 8eporL, lslamabad, CovernmenL of aklsLan and
Canadlan lnLernaLlonal uevelopmenL Agency.
nayyar-SLone, 8., Lbel, 8., lgnaLova, S., 8ashld, k., PaLry, P., &eLerson, C. (2006) 'Assessloqtbe
lmpoct of uevolotloo oo neoltbcote ooJ Jocotloo lo loklstoo', aper prepared for aklsLan
uevoluLlon SupporL ro[ecL, unlLed SLaLes Agency for lnLernaLlonal uevelopmenL by 1he urabn
lnsLlLuLe, WashlngLon.
Csborne, u. & Caebler, 1. (1992) keloveotloq Covetomeot. now tbe ottepteoeotlol 5pltlt ls
1toosfotmloqtbe lobllc 5ectot, enguln, new ?ork.
8l0ll0f80
olldano, C. (1999) '1henew ubllc ManagemenL ln ueveloplng CounLrles', lulM, unlverslLy of
ManchesLer, ubllc ollcyand ManagemenL Worklng aper no. 13.
olldano, C., Mlnogue, M., & Pulme, u. (eds) (1998), 8eyooJ tbe New lobllc Moooqemeot.
cbooqloqlJeos ooJltoctlces loCovetoooce, Ldward Llgar, ChelLenham.
unch, k. (2003) ueveloploqffectlve keseotcbltoposols, SagepubllcaLlons, London.
Calsranl, S. (2001) 'aklsLan: Wlll Lhe MlllLary 8eally Clve More ower Lo Lhe Crass 8ooLs?'
leJetotloos Newslettet, vol.1no. 4, CLLawa: lorum of lederaLlons.
8lzvl, M. (2007) 'keJefloloq lowet 5ttoctotes wltblo tbe cootext of ueceottollsotloo lo
loklstoo', paper presenLed aL Lhe lnLernaLlonal SLudy of AssoclaLlon for 1eachers and 1eachlng
(lSA11) ConferenceaL 8rookunlverslLy.
8olls, M. (2008) 'Wlll 'uevoluLlon' lmprove Lhe AccounLablllLy and 8esponslveness of Soclal
Servlce uellvery ln 8alochlsLan, aklsLan? A ollLlcal Lconomy erspecLlve,' Worklng aper
Serles no.08-86, uevelopmenL SLudles lnsLlLuLe, London School of Lconomlcs and ollLlcal
Sclence.
8ondlnelll, u.A. and Cheema, C.S. (1983), 'lmplemenLlng uecenLrallsaLlon ollcles' ln
ueceottollsotloo ooJ uevelopmeot. lollcy lmplemeototloos lo ueveloploq cooottles, SACL
ubllcaLlons, London.
Schnelder, A. (2003) 'Who CeLs WhaL lrom Whom? 1he lmpacL of uecenLrallzaLlon on 1ax
CapaclLy and ro-oor ollcy', luS Worklng aper 179, lnsLlLuLe of uevelopmenL SLudles,
unlverslLyof Sussex, uk.
Slddlqul, k. (1992) locol Covetomeot lo5ootbAslo, unlverslLyress LlmlLed, uhaka.
SmlLh, 8.C. (1983) ueceottollsotloo. 1be 1ettltotlol ulmeosloo of tbe 5tote, Ceorge Allan and
unwln, London.
SLaLlsLlcs ulvlslon, lederal 8ureau of SLaLlsLlcs, Co. (2003) loklstoo5oclol ooJllvloq5tooJotJs
Meosotemeot 5otvey(2004-05), lslamabad.
1alboL, l. (2003) loklstoo. A MoJetonlstoty, algraveMacmlllan, London.
1urner, M. &Pulme, u. (1997) Covetoooce, AJmlolsttotlooooJuevelopmeot. Mokloqtbe 5tote
wotk, Macmlllan, London.
8l0ll0f80
S7
WaLson, u. & khan, A. C. (2004) '8ollJloq fot ueceottollseJ Jocotloo 5etvlce uellvety lo
loklstoo', Luropean CenLre for uevelopmenL ollcy ManagemenL (LCuM) ulscusslon aper
no. 37C
World 8ank (1991) 1be cbolleoqes of lovetty. wotlJ uevelopmeot kepott, World 8ank,
WashlngLon uC.
World 8ank(1992) Covetoooce ooJuevelopmeot, 1heWorld 8ank, WashlngLon uC.
World 8ank (1994) wotlJ uevelopmeot kepott 1994. loftosttoctote fot uevelopmeot, Cxford
unlverslLyress, World 8ank.
World 8ank(1997) 1be 5tote loocbooqloqwotlJ, 1heWorld 8ank, WashlngLon uC.
st
World 8ank(1999) otetloqtbe 21 ceototy, 1heWorld 8ank, WashlngLon uC.
World 8ank (2000) loklstoo kefotmloq ltovloclol lloooces lo tbe cootext of uevolotloo, Ao
lqbt lolot AqeoJo, Lconomlc 8eporL no. 21362volumeno: 1
World 8ank (2004) Mokloq 5etvlces wotk fot tbe loot, World uevelopmenL 8eporL, 1he World
8ank, WashlngLon uC.
World 8ank (2004b) loklstoo lobllc xpeoJltote Moooqemeot, 5ttoteqlc lssoes ooJ kefotms
AqeoJo, overLy 8educLlon and Lconomlc ManagemenL SecLor unlL, SouLh Asla 8eglon, ubllc
LxpendlLure8evlew 8eporL no. 23663vol. 1&2, 1heWorld 8ank, WashlngLon uC.
WPC/unlCLl (2004) Access to lmptoveJ 5ooltotloo. loklstoo, WPC/unlCLl !olnL MonlLorlng
rogrammefor WaLer Supplyand SanlLaLlon CoverageLsLlmaLes.
Wllder, A. (1999) 1be loklstool votet. lectotol lolltlcs ooJ votloq 8ebovloot lo tbe loojob,
Cxford unlverslLyress, karachl.
Wllllamson, 1., Ahmad, M., and SmlLh, S. (2003) lmptovloq uevolveJ 5oclol 5etvlces uellvety
lo N.w.l.l ooJ loojob, Au8/uflu, lslamabad.
8l0ll0f80
uecenLrallsaLlon ls belng reckoned around Lhe globe as a successful sLraLegy ln
publlc secLor managemenL slnce Lhe Second World War. ubllc pollcy analysLs
belleve LhaL devoluLlon of admlnlsLraLlve and flscal auLhorlLles Lo Lhe
democraLlcally elecLed local governmenL would slgnlflcanLly enhance
efflclency, Lransparency and falrness ln resource allocaLlon and soclal servlce
dellvery. AlLhough Lhe ouLcomes of such reforms lnLroduced worldwlde,
parLlcularly ln developlng counLrles, are noL enormously consLrucLlve, beneflLs
derlved from such reforms cannoL be denled alLogeLher. ln order Lo make
decenLrallsaLlon reforms successful, pre-requlslLes ln socleLy's soclal, pollLlcal
and economlc lnsLlLuLlons need Lo be meL and a falr degree of falrness,
accounLablllLy, parLlclpaLlon and efflclency lnvolved ln lmplemenLaLlon of
reforms, needs Lo be ensured. 1hls sLudy seeks Lo lnvesLlgaLe lmpacL of
devoluLlon reforms of 2001 on ubllc Servlce dellvery ln aklsLan. lnLroduced,
deslgned and lmplemenLed by Lhe mlllLary reglme, Lhese reforms are vlewed
relaLlvely more comprehenslve as compared wlLh Lhe ones Lrled earller.
AdvocaLes of reforms oplne LhaL devoluLlon has enabled Lhe people from grass
rooL level Lo parLlclpaLe ln Lhe publlc managemenL and declslon maklng ln local
governance. 1he evldence so far reveals Lhe facL LhaL local governmenL sysLem
of 2001 has noL subsLanLlally lmproved Lhe publlc servlce dellvery ln Lhe
counLry because of cerLaln lnherenL weaknesses of Lhe sysLem and amblgulLy
regardlng Lheroles and responslblllLles of local governmenL represenLaLlves.
1-A, 5ectot -5, lbose-vll, noyotoboJ,lesbowot
lbooe. (091) 9219544, (091) 5861024-26 (091) 9217451
cpptlmscleoces.eJo.p