Representation in decentralized

governance : Country study of Pakistan

by

Sajid Kazmi, Shahbaz Bokhari, Zeb Rifaqat

Sustainable Development Policy Institute

(SDPI)

2006
 The overall research question
“In what ways can representation be made
more accountable in decentralized local
governance?”

Focus of the study:

The instruments available for making
elected and administrative officials in local
government accountable
History of devolution in Pakistan

• Basic Democracy by Gen. Ayub Khan

• Baldiati Nizam (Local Govt. System) by

Gen. Zia

• Devolution Plan by Gen. Musharraf

 Why Devolution?

• Inefficiency of the centralized govt. systems

• Inequitable in the provision-of social
services, and
• Well being of citizens compromised 
• Crisis of governance
• Lack of responsiveness to the problems of
vulnerable groups
 Why Devolution?
• Sixth National Finance Commission (1997) made
the case for the decentralization of state functions

• The Poverty Reduction Strategy Paper (PRSP)

makes a similar case for good governance for
economic growth and poverty alleviation
 
• Others scholars (Shah 1996, 1997, Burki (ed)
1999, Thornton 2000, & Work 1999) also made
case for Pakistan to join the international thrust
towards decentralization
 Stated goals of devolution
• To enable districts to manage themselves more
efficiently
• Empowering the people at the grass roots
• Provide affordable and speedy justice near the
doorstep
• Ensure financial autonomy and equitable
opportunities of livelihood
• Enable the people to have a meaningful role in
development
The focal areas of Local Govt. Plan

• State-citizen relations

• Rural-urban divide

• Integration among various tiers of govt.

• Coordination of efforts
 Structural and administrative reforms

• Tiers of government
• Previously Now
• Federal Federal
• Provincial Provincial
• Division District
• District Teshil
• UC
 

•  
 Current scheme
• Nazim (elected representative) is the executive
head of the district
 
• DCO (District Coordination Officer), heads the
government administration of the district
 
• The district head of police and the DCO report to
the district Nazim
 

•  
 Accountability mechanisms

• Monitoring committees
• Citizen Community Boards (CCBs)
• Zila Mohtasib (District Ombudsman)
• District Public Safety Commission
• Musalihat Anjuman (Reconciliation
Council)
• Village and Neighbourhood Councils
 Methodology
• Desk Study
• Focus Group Discussions
– With UC Members (31)
– With Women (33)
– CCB Members
• Citizen Survey (30 each at 4 UC)
• Performance in 2 sectors
– Education
– Health
 Sampling

• 2 Districts
• 4 Union Councils
– One locality with a closely balanced political
party representation

– One locality with a clear dominant political

party
 Topics discussed during the FGDs

• Reasons to take part in the elections

• Reasons for their success in the elections
• Reasons for failure of their opponents
• Presence and representation of marginalized
communities
• Role of political parties in the elections
• Role of Biraderis (Clans)
 Topics discussed during the FGDs

• Role of CCBs in the process of development of their

UC
• Process of identification of development projects
• Factors determining success of development projects
• Peoples’ participation in the decision making
• Role of female councilors in the uplift of women
• Accountability process of the local government
system via representatives
• Accountability process of representatives by the
electorate
 FGD with females
• Lack of awareness about the system
• Motivation to contest election from within the
household
• Female councilors had only token presence in the
Union Council
• Mobility seen as the major problem
• Female councilors were not taken seriously by their
male counterparts
• Low level of education
• Proxy presence of the female councilors
 FGD with CCB members

• Past experience with NGOs

• Involvement in welfare work
• Selected through consultative process
• 20% contribution by community was seen
as major hurdle
• Resorting to smart accounting
• Favouritism in allocation of funds
 Recommendations
• The system needs fine tuning

• Devolution, not decentralization is required

• CCB and resource capture by local elites should be

avoided

• Capacity building of CCBs is needed

 
• 20% Community share is a major hurdle
 Recommendations
• Community match the cost by providing labor
•  
• Allowances to councilors are very modest

• Better coordination b/w representatives and

officials

• Timely release of development funds must be

ensured
 Recommendations

• Role of media for effective campaigns to

educate citizens on Devolution Plan

• Direct elections of district and Tehsil

Nazims will increase accountability and
defuse political pressure