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Governance and

Administrative Reforms

Q.1. Theories of
Administrative Reforms

Administrative Reform
Blue team

Administrative reform means an induced,


permanent improvement in administration
(Wallis 1989, 170)

An administrative reform is a conscious, well-considered change that


is carried out in a public sector organization or system for the purpose
of improving its structure, operation or the quality of its workforce.
According to Caiden (1968), Reform is based on the simple idea that
man should not wait for changes to take place naturally but should
seek to speed, by artificial means, improvements in the world order.
While all organizations seek to do better at achieving their objectives
(effectiveness) and boosting their productivity (efficiency) public
sector organizations must also concern themselves with the political
dimensions of administrative life.
Thus, beyond economic dimensions, public administration reforms can
target objectives concerning improvements to public life, such as
eliminating patronage, nepotism and corruption, increasing
representativeness, fostering the participation of citizens and groups,
and enhancing accountability and transparency.

In addition, every administrative reform has a political dimension, since


the notion of improvement implies a choice of values. As a result, any
ensuing change will be viewed as a reform or a setback depending on
the ideology of the observer or actor involved. Thus, for example, the
privatization of state-owned enterprises, the introduction of user fees
for public services, programs of employment equity or access to
information will be seen as reforms by some and their opposite by
others. Admittedly, a technical reform to streamline bureaucratic
procedures will carry little political freight, but even so, it is likely to
produce winners and losers. The emergence of typewriters in the 19th
century created an opening in the employment market for women, who
quickly familiarized themselves with this new technology; at the same
time, one of the oldest professions of the world that of scribe
underwent a transformation at the expense of those whose primary
qualification had consisted in having fine handwriting. Ultimately, most
reforms run up against resistance or inertia, thus forcing their
proponents to engage in some measure of advocacy.

Defining the term public


administration reform
Public administration with both of its
components (state administration and
selfgovernment) is considered to be the most
dynamic part of the modern state.
That is why the word reform is inherited
feature of public administration.
Generally, the word reform means to make
something better, to improve something or to
remove the faults of something, in our case the change of public administration.

Generally, the word reform means to make


something better, to improve something or to
remove the faults of something.
Public administration reform has also many
aspects that can be (and often are) interlinked,
e. g.
- political,
- Legal
- Institutional
- technical (IT utilization - e-government, edemocracy etc.)

personnel,
financial,
social,
psychological and many more.

The meaning of public sector reform


Induced, permanent improvement in administration
(Wallis 1989, 170)
Administrative reform strategies (Turner and Humle 1997)
Restructuring
Participation
Human resources issuesAccountability Public private mixes

Challenges

Management (finance/human
resource/leadership)
Measuring performance
Accountability/responsibility for implementation
Governance

Historical overview

Q.2. Types of
Administrative Reforms

Administartive reforms in
Pakistan

Civil Service Reforms


Soon after the independence of Pakistan, the government
decided to review the system of administration and some
foreign experts were invited to study and make
recommendation in this connection.
The famous among those expert reports were the two reports
on administrative reforms. These were:
1. Egger Report 1953
2. Gladieux Report

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Civil Service Reforms


In 1953, Rowland Egger of USA made following observations
about the civil service of Pakistan:
1. It is possessed with interests of those already in service.
2. Recruitment standards are out-dated.
3. Recruitment techniques are far from currently accepted good
practices.

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Civil Service Reforms


Rowland Egger recommended the following to improve civil
service working:
a. Standardized pay scales based on comprehensive job analysis
b. The generalists should not dominate other services.
c. There is need to have specialization in the civil service.

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Civil Service Reforms


In 1955, Mr. Bernard Gladieux also from USA was engaged
by government as consultant on Public Administration.
He said that technical and professional civil servants also
possessed administrative skills and should be encouraged to
hold higher positions.
In 1955, the First Five Year Plan of the Government of
Pakistan also took note of dominance of the generalists cadre
of civil service over other cadres.

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Civil Service Reforms


It was recommended in the plan that non-technical Central
Superior Services should be converted into branches of this
combined civil services all having identical pay scales.
These should be treated as if they were the branches of a
single central service.

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Civil Service Reforms


Pay and Service Commission (1962)
In 1962, the Pay and Service Commission also criticized the reservation of the
senior posts for the CSP especially at the centre.
This report recommended that the entire public service should be build up in
seven tiers of groups. These are:
GROUP

GRAD
E

Unskilled workers

Semi-skilled workers

Skilled workers and rank and file staff

Lower inspectional and middle


supervisory staff

Basic officer class

Managerial class, District level up to


Divisional level

Top directly and higher administrative

PAS (Pakistan

DESCRIPTION

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Civil Service Reforms


Working Group (1969)
A Working Group which comprised of CSP as well as non-CSP officers
was appointed by the Government to study the structure of the civil service.
The Working Group gave the following recommendations:
All branches of civil service should have same status, though they
should retain their individuality
For ex-cadre positions, same criteria should be used as for the cadre
services
There should be no difference of pay scales of the provincial and
central civil servants.

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Several Commissions and Committees were formed in


the first twenty five years after independence for
reform of the administrative structure and civil
services. Some changes were introduced during Ayub
Khans regime in the 1960s to improve the efficiency of
the Secretariats but the tendencies for centralized
controls and personalized decision making got worse in
this period.
Pakistan continued to suffer from what has been
termed as Confused federalism in which weak local
and provincial bodies are unable to match the ability of
the Central Government to mobilize resources and
provide services

Civil Service Reforms


Administrative Reforms Committee (1972)
This committee was appointed to study all aspects of the civil
service and made the following recommendations based on
careful observations:
All services and cadres should be merged into a unified graded
structure with equality of opportunity for all who enter service at
any stage based on the required professional and specialized
competence necessary for job.
All classes among government servants would be abolished and
replaced by a unified graded structure: a peon at the bottom and
Secretary at the top.
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Civil Service Reforms


Administrative Reforms Committee (1972)
This committee was appointed to study all aspects of the civil
service and made the following recommendations based on
careful observations:
The correct grading of each post will be determined by job
evaluation.
There should be provision for entry into government service of
talented individuals from private sector in such fields as
banking, insurance etc.
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Civil Service Reforms


Implementation of the Reforms
In the light of directives, the measures taken for implementation of
the reforms included:
The head of Ministry was Secretary who was in Grade 22, the
Additional Secretary was in 21. There were lower grades for junior
executive.
There were about 600 grades or scale of pay of the government
which were reduced to 22 grades. These were applicable to all
government organizations and professions.
Grade 1 was the lowest and Grade 23 was highest grade. Grade
23 was the post of Secretary General and there were only 2-3
positions in government.
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Civil Service Reforms


In order to emphasis professionalism in field of administration, the following
Occupational Groups were formed:
1. District Management Group
2. Police Group
3. Income Tax Group
4. Customs and Excise Group
5. Accounts Group
6. Information Group
7. Postal Group
8. Commerce Group
9. Foreign Affairs Group
10. Office Management Group
11. Military Land and Cantonment Group
12. Railways Group
13. Secretariat Group
14. Tribal Areas Group
15. Economists and Planners Group

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Civil Service Reforms

Promotion was made purely on the basis of merit and


performance.
Common training was given to all the officers in Academy
for administrative training.
Rules and regulations were framed for the implementation of
these reforms.

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Civil Service Reforms


The Civil Service Today
The Constitution of the Islamic Republic of Pakistan 1973 gives
the:
Executive Authority of Federation which is exercised by the
Government in the name of President.
The PM is the Chief Executive of the Federation and the Federal
Cabinet exercises its authority to him.
According to the 4th schedule, there is concurrent list of
areas/responsibility of Federal Government.
The concurrent list gives responsibilities of both the
governments (Federal & Provincial).
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Civil Service Reforms


Categories of the Civil Service
The services and posts under the government of Pakistan whether
under Federal or Provincial can be classified in the following 3
categories:
1) Generalist Services: recruitment is based on the basis of general
education of candidate
2) Semi-Technical Specialized Services: recruitment is based on
advanced academic attainment in University without formal
education or training in professional institution.
3) Purely Technical Services: recruitment on technical
qualification like doctor, engineers.
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Civil Service Reforms


Civil Service Recruitment in Pakistan
The criteria of recruitment to civil service are:
Based on pure merit.
All posts must be advertised before selection.
Assessment is based on selection boards, selection committees etc.
Due representation to every province is given.

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Civil Service Reforms


Main Recruiting Agencies
The main recruiting agencies are:
Federal Public Service Commission at the Federal Level
Provincial Public Service Commission at the Provincial Level
Departmental Selection/Promotion Committees

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Civil Service Reforms


Training
Training of Civil Servants is divided into the following:
Pre-Service Training:
service.

This training is given before entry to

In-Service Training:
service.

This training is given during the

On-the-job Trainings:
Off-the-job Trainings:
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Civil Service Reforms


The Major Training Institutions are: National Institute of Public Administration
Pakistan Academy for Rural Development
Pakistan Administrative Staff College

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Problems with civil services


absence of accountability for results. There is both too much and
too little accountability of those involved in public affairs in
Pakistan.
On one hand, the plethora of laws and institutions such as Anti
Corruption Bureaus, National Accountability Bureau, Auditor
Generals reports, Public Accounts Committees of the legislature,
parliamentary oversight, judicial activism and the Ombudsman
system have created an atmosphere of fear, inertia and lack of
decision making among the civil servants.
On the other hand, instances of rampant corruption, malpractices,
nepotism and favoritism and waste and inefficiency have become
a common folklore in the administrative culture of the country.
Too much emphasis on the ritualistic compliance with procedures,
rules and form has taken the place of substantive concerns with
the results and outcomes for welfare and justice.

Reforms
The Government established the National Commission
for Government Reforms (NCGR) in April 2006 and
mandated it to prepare proposals for governance
reforms in Pakistan. The Commission decided that the
following broad principles will underpin reforms in each
area of responsibility:

Civil services
open, transparent merit based recruitment to all levels and grades of public
services with Regional Representation as laid down in the constitution.
Performance based promotions and career progression for all public sector
employees with compulsory training at post induction, mid-career and senior
management levels.
Equality of opportunities for career advancement to all employees without
preferences or reservations for any particular class.
Replacement of the concept of Superior Services by equality among all cadres
and non-cadres of public servants.
Grant of a Living wage and compensation package including decent retirement
benefits to all civil servants.
Strict observance of security of tenure of office for a specified period of time.
Separate cadre of regular Civil Services at the Federal, Provincial and District
levels co-existing with contractual appointments.
Creation of an All Pakistan National Executive Service (NES) for senior
management positions drawn through a competitive process from the Federal,
Provincial and District level Civil Servants and outside professionals.
Introduction of three specialized cadres under the NES for Economic
Management, Social Sector Management and General Management.

Structure of Federal, Provincial and District


Governments.
Devolution of powers, responsibilities and resources from the
Federal to the Provincial Governments.
Establishing inter-governmental structures with adequate
authority and powers to formulate and monitor policy
formulation.
Clear separation of policy making, regulatory and operational
responsibilities of the Ministries/ Provincial departments.
Making each Ministry/ Provincial department fully empowered,
adequately resourced to take decisions and accountable for
results.
Streamline, rationalize and transform the attached
departments/ autonomous bodies/ subordinate offices/ field
offices etc. into fully functional arms of the Ministries for
performing operational and executive functions.

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