Bureaucracy of Pakistan: Critical Analysis

Review of Literature

Bureaucracy of Pakistan in the initial two and half decades had competency and capability to take decisions in the interests of the masses. This was because we inherited a strong steel bureaucracy from our colonial masters which also led them to have a mindset of ruler. In the years to follow system got damaged because of the regular interference of the prevailing regimes and the civil institutions remained highly damaged. Politics of interests has left the administration in an ailing condition.

For nearly Two decades (i.e. 1950–1970) the academic community presented bureaucracy in the developing countries as engine of growth, development and an agent of change Bureaucracy in Pakistan provided a lead and received laudatory comments for its role in initiating economic development and promoting political stability.Bureaucratic elites and public institutions were expected to provide leadership, order and stability. Again Pakistani bureaucracy stood the test and fulfilled these expectations. By the late 1960s that witnessed movements of popular protest and agitation against the authoritarian and repressive role of the government, the opposition political parties, and a segment of the print media started portraying the bureaucracy as an instrument of oppression. This portrayal had an impact on public consciousness. Bureaucrats were seen as being inimical to their interests. By the mid-1970s the academic community and the World Bank (both in their own wisdom and direction) began to reassess and reevaluate the role of bureaucracy Corruption, inefficiency, bloated size, absence of accountability, and resistance to change were portrayed as the manifestations of bureaucracy.Academic community raised concerns about authoritarian values and corrupt practices that bureaucracies promoted in the developing countries—i.e. violation of human rights and suppression of liberties. The academic community recognised and conceded some positive contribution of bureaucracy in the direction of growth and development. In short negative images of bureaucracy and a cry for reform dominated the policy and academic research environment. the issue of governance to the core of the debate on institutional reform arose. There were cultural, political and institutional factors that influenced the process of governance. In short, public policy debate underwent a shift in which institutional reform i.e. reform of the bureaucracy, judiciary, legislatures became the cry of this decade. In a developing country what is the primary function of bureaucracy? The answer could vary depending on the culture of a society, its level of socioeconomic development and the nature of its political system. In a traditional sense, in most political systems, bureaucracy has been expected to ensure continuity of policies, political order/stability, uphold rule of law, promote economic development and cultural cohesion. In most countries of South Asia, the authority and social elite status of bureaucracy is still recognised; despite erosion of power and politicisation. Its major failure is in its inability to promote welfare, development, equity and provide justice to the citizens.

It cannot be denied that very much like Japan, Pakistani society does give credence and legitimacy to its elites.The elites can be divided into two categories i.e. elites of ascription—who enjoy position of power, privilege and prestige on the basis of their descent, family, social class etc. Second, the elites of merit, achievement and excellence. The latter enjoy a position of power, privilege and prestige on the basis of education and professionalism. In most societies the relationship between elites of ascription and those of achievement is complex and Pakistan is no exception. A certain degree of cohesion, staying power, organisational capacity to sustain continuity of policies, preserve the status quo and maintain a semblance of stability continue to be the hallmarks of Pakistani bureaucracy. Is it possible to bring out any attitudinal and structural changes in the Pakistani bureaucracy? There is a need to redesign the “DNA” of bureaucracy. The two argue that bureaucracy must be changed and restructured from within. This would be accomplished by adopting the following strategy: – To restructure public organisations to redefine their purposes. – Enhance accountability. – Provide incentives. – Re-organise distribution of power, and most importantly. – Change their cultures. The challenge for the state is to reform and rebuild the public institutions that would be competitive, enterprising and capable of upholding the rule of law. Thus reform in civil service demands prudence and caution. Laws and procedures should be adopted through transparent mechanisms, so that they promote merit, fairplay and Crisis of Governance 999 accountability among public officials. Clearly, strengthening bureaucracy does not mean preserving the status quo, it implies building the capacity to initiate change and manage it effectively. The foregoing review of literature captures the debate on the centrality of bureaucracy, its staying power, elite status, capacity to sustain, continuity of policies and its reluctance to change giving rise to demands for reform and innovation in its functioning. The challenge is: how to build a bureaucracy that is efficient, humane, development-driven, is citizen-friendly and facilitates good governance and human developmentt.

Training and career planning are essential for an efficient bureaucracy. In 1961 the government initiated an administration policy. In pursuance of this policy the Pakistan Administrative Staff College and National Institute of Public Administration were established in Lahore. Simultaneously the discipline of Public Administration was also introduced as a Master’s degree programme at the Punjab University. The thrust was to build training institutions and to prepare the civil servants as good, efficient, administrators and policy-makers. However, the initiative was lost early, as no effort was made to train the trainers for the training institutions. Nor did the Establishment Division formulate any policy to link training with career advancement and vertical mobility of the civil servants. Therefore those who joined the training institutions as “some sort of professionals” and those civil servants who were posted in the training institutions as ‘deputationists’, never really had their ‘heart and soul’ in training. The trainers at the training institutions developed into a disgruntled lot because they did not have any cadre system. They were and remain uncertain about their career advancement and prospects in the training institutions. The civil servants in general have accepted a posting at the training institutions with reluctance and hesitation. Rightly so, because posting at the training institutions is considered neither meritorious, nor has a good reflection on a civil servant’s career prospects. Unless training institutions are given the status that they deserve they would remain a temporary sanctuary for ‘out of favour’ officers.

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There are three challenges that have emerged as a consequence of the global trend towards democratisation, privatisation, and internationalisation of world economy. The Civil Services of Pakistan are confronted with how to combat these challenges. The first major challenge is how to adapt and operate in a quasi democratic set up? In Pakistan the transition to democracy is taking place, but the rules and the spirit of democracy is being violated blatantly. Democracy implies government by law, besides electoral competition, majority rule and respect for minority rights and dissent. The challenge for the Civil Services is to provide an anchor for democratic consolidation. Civil Services reflect continuity of policies. Irrespective of who assumes political control, their job is to minimise conflict on policies, develop consensus and ensure continuity. Given their education, training, social background, they can play a pivotal role in strengthening democratic institutions. For the past two decades, conflict among the political leadership has polarised the Pakistani society. This polarisation has affected almost all segments of civil society.

There is a need to evolve a balance between generalist practice and demands of professionalisation. In top policy positions the leadership of the generalist may be retained but professional’s advice and input must be encouraged and incorporated in the policy process. Twenty five years ago a Pakistani scholar making pioneer study of Civil Services perceptively suggested that “key posts” in government may be assigned to “generalist-specialist’—someone with “sustained practical experience in a single, well defined, broad area of government activity ... who displays special aptitude for general management” [Ahmad (1964)]. Partnership between bureaucrats, professionals, academic community on policy issues should be encouraged.

There is a need to devise rules and procedures for freedom of access to information. Currently, bureaucracy thrives on withholding information under the garb of secrecy. Information on any—area of public concern (Including Customs, FIRs (I.Tax) but its intra-working decisions also (e.g. budgetary grants, expenditures, employee promotions, disciplinary actions etc.) must be available to citizens. The government may levy a token fees for this purpose, but information must be available readily. The freedom of access to information could make public Crisis of Governance 1013 transactions transparent, it will minimise the usage of discretionary powers if any, and would make the bureaucracy conscious of accountability. Once the civil servants realise that any information from government can be obtained in public interest, swiftly and at a small financial cost, their ability to use discretionary laws would be restricted. Then discretion would be used only for public good and public welfare and not against public interest

This intensified conflict of interest between the district administrators and local councillors. This conflict has affected governance at the local level. To strength local government institutions, enhancing community participation and devolution of power, it is desirable that power-sharing mechanisms be evolved and strengthened between local public office holders and district administration. Decentralisation has failed—the answer to the problem is devolution of authority.