policy support for devolution pakistan -...
TRANSCRIPT
UUNDP Regional Centre in Bangkok Serving Asia and Pacific
Policy Support for Devolution Pakistan
Neil Webster
Henrik Fredborg Larsen
March 2006
Page 2 of 43
Preamble
A UNDP mission was fielded in Pakistan with the purpose of reviewing the progress of the
devolution reforms to date, and assist the Government and UNDP in taking stock of the
opportunities and challenges and help define the main pillars of support for policy design and
implementation of the reforms over the next years. UNDP is a partner of the Government of
Pakistan for the devolution reforms, and the aim is also to define UNDP role in policy advice and
programming by identifying key areas for UNDP contribution to institutional change and the
type of support to be provided, including the continuation of support to NRB to lead the reform
process [could be changed to quote the purpose and outputs/activities].
The present report should be read in conjunction with the body of literature studying the
devolution reforms and builds upon research undertaken by a range of Government, research,
NGO and donor agencies.
During the mission, the team met with government and non-governmental partners in at Federal,
Provincial and local level and multilateral and bilateral donor agencies. While this report draws
upon input from many people in UNDP Pakistan and beyond, the assessment and
recommendations are those of the authors alone.
The mission was carried out in the period 21 September to 5 October 2005 by Henrik Fredborg
Larsen, Policy Advisor on Decentralization and Local Governance at the Regional Centre in
Bangkok, and Neil Webster, Head of Department of Development Research at the Danish Centre
for International Studies and independent consultant to UNDP.
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List of Abbreviation
AWP Annual Work Plan
CBO Community Based Organization
CCB Citizens’ Community Boards
CCF Country Cooperation Framework
CEDAW Convention on the Elimination of All Forms of Discrimination Against
Women
CIDA Canadian International Development Agency
CIET CIET International (www.ciet.org)
CP Country Programme
CSO Civil Society Organization
DCO District Coordination Officer
DSP Devolution Support Programme
DTCE Devolution Trust for Community Empowerment
EIROP Essential Institutional Reforms Operationalization Programme
FATA Federally Administered Tribal Area
GoP Government of Pakistan
GSP Gender Support Programme
HRBA Human Rights-Based Approach
ICT Islamabad Capital Territory
LGO Local Government Ordinance
LGP Local Government Plan
LGPP Local Government Proposed Plan
MNA Member of the National Assembly
MoF Ministry of Finance
MoLG Ministry of Local Government
MoPD Ministry of
MP Member of the Provincial Assembly
NGO Non-Governmental Organization
NRB National Reconstruction Bureau
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NSC National Security Council
NWFP North-Western Frontier Province
OECD Organization for Economic Co-operation and Development
PMU Programme Management Unit
PLFC Provincial Local Finance Commission
PLGC Provincial Local Government Commission
SDC Swiss Development Cooperation
SDRP Support to Devolution Reforms in Balochistan
SPDI Sustainable Development Policy Institute
SRF Strategic Results Framework
UNCDF United Nations Capital Development Fund
UNDP United Nations Development Programme
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Part 1 Situation Analysis: Devolution in Pakistan and Lessons Learned from UNDP
Assistance
Context
1. Pakistan continues to face enormous challenges in delivering basic services such as health,
education and water and sanitation services to its population. It continues to face serious
problems in its economic development and in generating the resource base necessary to meet
the needs and expectations of its population. Its system of governance continues to support
high degrees of inequity within the population with access to services, resources and the rule
of law being denied to substantial sections of the population.
2. The government that came to power in Pakistan under General Pervaiz Musharraf after the
military coup in October 1999 brought with it a new proposal for politically empowering
citizens and promising them a role in the process of governance. The National
Reconstruction Bureau (NRB) was established on November 18 P
thP, 1999, to formulate
proposals for a reconstruction of the system of governance based upon citizen empowerment
in Pakistan. Devolution of government to locally elected authorities was to be at the core of a
reconstruction agenda. The NRB’s mandate was broad with nine fields of focus for its work
covering political, governmental, law enforcement, public employment, educational,
population welfare, and primary health care structures and systems.
3. Less than one year after the coup, in May 2000, the NRB’s Local Government Proposed Plan
(LGPP) was released with the title ‘Devolution of Power and responsibility: Establishing the
Foundation of Genuine Democracy’. It was presented as being ‘a new beginning’ that broke
with the existing system and structures of governance in Pakistan in which the interest of the
ruling elite took precedence over all other interests in the country’s governance. It argued
that the crisis of governance in Pakistan had reached critical levels, with profound effects for
economic development, inequalities and poverty in the country. The need for a fundamental
reform of the political system was seen to be supported by a broad consensus across all
segments of society and that a system of decentralized local government with devolved
powers and responsibilities was a fundamental prerequisite for such reform.TP
1PT The proposal
argued that successful decentralization based on the reform of local government institutions
and the restructuring of roles, responsibilities and resources between Federal, Provincial and
Local Government was a basic requirement for bringing about a system of governance
capable of addressing these fundamental problems.
4. The LGPP proposed a set of reforms based upon principles of ‘people-centered, rights and
responsibility-based, and service-oriented’, and with a’ bottom-up methodology’. In that the
proposals called for fundamental break with the past structures and system of governance it
recognized that there would be powerful opposition from vested interests within the
bureaucracy and elsewhere as their ability to exploit the institutions of government for
personal political advantage and economic gain would be threatened.
TP
1PT Local Government Proposed Plan, GoP, National Reconstruction Bureau, May 200, Safar 1421.
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5. Following further consultations the NRB drafted the Local Government Plan 2000 (LGP
2000) and a model Local Government Ordnance to serve as the basis for the Local
Government Ordnances promulgated by the provincial governments in August 2001. TP
2PT The
first elections to the new local government councils were held between December 2000 and
September 2001.Following the completion of the first term of office for these councils new
elections have been held in 2005, with the final phase involving the election to the District
Councils being completed in early October 2005.
6. During the first period of local government tenure a significant number of major policy
initiatives have been taken with NRB continuing to play the leading role at the national level
(see table 1 for a summary). These include the formulation and promulgation of the Local
Government Election Ordinance, of the Legal Framework Order (2002), of the Police Order
(2002) and Model Police Rules (2002), and an internal review of the LGO 2001 leading to a
set of amendments passed in 2005 (see below). In addition proposals have been formulated
for a range of institutions and processes including a restructuring of the Civil Services and
Higher Government structures and systems, a Local Government finance system, a Local
Government Plan for the Federally Administered tribal Area (FATA) and a plan for the
establishment of a city district government in the Islamabad Capital Territory (ICT). TP
3PT
7. The changes to the Constitution enacted on 30 P
thP December 2003, have placed the local
government system, as prescribed by the provincial LGOs, in the sixth schedule of the 1973
Constitution with the result that they cannot be altered, repealed, or amended without the
sanction of the President. This has effectively secured their existence until 2009.
8. In 2005 a series of amendments to the 2001 Local Government Ordinance and to the Police
Order 2002 were passed. In the case of the LGO the reforms include measures designed to
give greater power to the Chief Executive of the Province. These include the power to
suspend a Nazim for 90 days while the Provincial Local Government Commission
undertakes an enquiry and to remove the Nazim if the case is upheld and the power to
suspend council resolutions while these are investigated for irregularities by the Provincial
Local Government Commission. There are also measures designed to enhance the capacity
and accountability of the local government councils such as the creation of a District Service
Cadres at district and tehsil levels, and the administrative restructuring of provincial
departments to make them compatible with the Devolution Plan
TP
2PT Sindh/Balochistan/North West Frontier/Punjab Local Government Ordinance 2001.
TP
3PT See Annex A, ‘An Overview of National reconstruction Bureau’, Support to Good Governance PAK/98/005
(Project Phase II)
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Table 1 - Devolution in Pakistan: Major Achievement
Prior to 1999, Pakistan did face a very difficult economic situation. However, since then the macroeconomic indicators have improved considerably with the
Development expenditure reaching almost Rs.272 billion. The LGO 2001 has devolved political power and decentralized administrative and financial authority to accountable local governments for good governance, ef fective
delivery of services and transparent decision-making through institutionalized participation of the people at the grassroots level. About 6637 (District/City District Governments, Tehsil/Towns Municipal Administrations and Union Administrations) are functioning in the four provinces within the provincial framework. The significant change is that elected leaders are now responsible and accountable for service provision at local levels and the local councils monitor performance.
The provincial governments are in the process of restructuring their Departments. Their new roles mainly focus on provincial legislation, policies, regulation and
standard setting in relation to the local governments. The share of women in decision-making has improved significantly. The 33 percent quota under the devolution plan for women at the union, tehsil and district levels
has helped an unprecedented number of women. This provides a platform for mainstreaming women in the development process and encouraging women participation in the political process. Minority, peasants and workers seats on each local council ensure inclusion of the vulnerable and poor groups.
The PFCs have been established in all four provinces. Since FY 2002-2003, formula based allocation and transfers are taking place. The share of each local
government is clearly indicated in the award. The interim awards are in the process of being replaced by three-year Awards by the Provincial Finance Commissions. New systems of planning, implementation, resource allocations and people’s participation in decision-making have been introduced. Under the bottom up planning
process the schemes identified by the Union Councils are forwarded to the Tehsil/Town Municipal Administration and District Government. Similarly schemes identified by the Tehsil/Town Council are forwarded to the District Government and Union Administration. District Council may also recommend schemes to the Tehsil/Town Municipal Administration and Union Administrations. All schemes are approved by the respective Council. Several types of rules have been notified by all the provinces and additional rules and byelaws are being developed.
The citizens priorities are fully articulated by the councilors as is evidenced from the heated debates in the councils. Nazims and councilors are fully accessible to the people. Compared to the pre-devolution period access of citizens has increased tremendously. Participation of citizens through their elected representatives is the biggest achievement of the local government system. The pace of development work has been appreciated by all including provincial governments, donors and the public. All social sector indicators have improved considerably since 2001 as per the latest survey Pakistan Social and Living Standards Measurement Survey (PSLM) conducted by FBS in 2004-2005. CCBs are an integral part of the planning system at local level. Low utilization of CCB funds in the initial years was known at the design stage and is not a surprise.
The linkage of Planning Commission with the provincial Government is through well established institutional mechanism. Local Governments are represented at the
national level through the provincial Governments. This can be seen in the MTDF documents. In the MDTF document the critical parameters and policy framework for local governments are included. The MDTF document is not classified by level of government.
The civil services reforms are being undertaken to make the civil services a more lean, skilled, efficient and decentralized civil service. The LGO provides a number of checks and balances for ensuring that the expenditure is incurred judiciously and in accordance with the law, rules and regulations.
The Auditor General of Pakistan conducts the audit and the report of the audit is placed before the concerned accounts committee of the respective council for necessary action. If required, a nazim can request a special audit at any time during the year. The provincial LGC can also request for a special audit of the accounts of local governments. In addition to the external audit, nazims are to appoint an internal auditor. Poorly managed projects should be judged in comparison with pre devolution period when there were “graveyard of projects”. Misused is to be judged through the audit report of AGP for FY 2001-2002 and compared with pre-devolution audit paras e.g. SAP and line Departments.
The national financial system introduced in the local governments is a strong point of the system. All accounts of the receipts and expenditure of LGs are kept in
accordance with the principles prescribed by the Auditor General of Pakistan. The district and tehsil accounts officer and the union accountant perform pre-audit of all payments from the LG funds before approving the disbursements of monies. The district accounts are consolidated at the district level. The main function of the accounts committees is to address complaints and improve the functioning of the accounting offices in consultation with the people.
A number of other LG related institutions and committees have also been set up at various tiers to facilitate smooth functioning of the LG system. A comprehensive review of implementation problems experienced by the first local governments was undertaken through a consultative process during the years
2003 and 2004 involving all stakeholders. The consultative process included Bar Associations, Press Clubs, Chambers of Commerce and Industries, NGOs, MNAs, Senators, MPAs, Provincial Chief Ministers, Provincial Chief Secretaries, Provincial Secretaries of Finance, Services and General Administration, Local Government, Home and Law departments, District Public Safety and Police Complaints Commissions, Associations of Nazims and Councillors, Union, Tehsil/Town and District Nazims, DCOs, DPOs and other government functionaries were consulted. Out of over 100 consultative meetings, 35 meetings related to consensus on proposals. The basic demand of the provinces was further strengthening of the accountability and check and balance mechanisms and not clarification of roles and responsibilities. The LGO is an extremely detailed document and clearly lays down the roles and responsibilities of the various levels of governments.
* Based on Summary prepared by NRB
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Analysis
9. The momentum achieved during the first 5 years of the devolution reform process has been
considerable. As indicated above there has been a strong pressure and support for the reforms
from the centre spearheaded by the work of the NRB. This has been matched by a ready
willingness to implement the reconstruction agenda by the District, Tehsil and Union
Councils as well as at the community level. The extent of the break with previous system of
local governance is symbolized by the reservation of 33% of seats in all levels of local
government for women and the fact that more than 30,000 women entered into formal
politics in the first elected local government councils. While problems with the second round
of local government elections have been reported, TP
4PT there is an apparent popular enthusiasm
suggesting that the support for the new system of devolved governance remains strong within
the electorate.
10. The rapidity of the reform process has also led to problems. These are reflected in the uneven
progress between different levels of the provincial and local government bodies, failures in
coordination between line departments and local government, and significant local variations
in the degree of community involvement in local development activities. Problems with the
lack of procedural clarity for implementing the reforms and the lack of mechanisms for
securing coordination and ownership between the many parties involved have further
exacerbated the lack of commitment to the reform agenda by groups with the bureaucracy
and elsewhere. This is particularly apparent with government departments and ministries at
national and provincial levels. At the same time the reforms have created high expectations
amongst citizens and communities at the grassroots level that the new system and structures
has often had great difficulty in meeting.
11. At the local level the pressure to implement the reform and to utilize budget allocations to
local government has also resulted in funds being poorly managed or misused due to poor
collaboration between line departments, elected councils and CCBs. There is an absence of
integrated planning and little or no capacity in participatory planning techniques at all levels
of local government.
12. At the community level the CCB modality for community empowerment and local
development has been slow to take off in many localities and there were delays in the
preparation and dissemination of the rules and guidelines for implementation. The work of
DTCE and its partner organizations initially in 13 districts in the Punjab has demonstrated the
considerable potential present within communities to mobilize resources and implement local
development activities. It has also demonstrated the potential for establishing effective
partnerships between CCBs, NGOs and local government in the identification, formulation
and implementation of development projects in which citizens have set the agenda on the
basis of their own needs assessments. The success of the DTCE and its local partners
demonstrates the lack of readiness for such a demand driven local development modality
elsewhere.
TP
4PT Reports from the Commonwealth electoral observers cited in New Dawn 27 P
thP September 2005.
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13. What remains to be demonstrated is the capacity for local government to bring citizen
participation into the other development activities and service provision for which it is
responsible outside of the 25% development budget allocation for CCB projects. It also
remains to be seen how the bottom-up approach driving the CCBs’ project activities can be
incorporated into local development planning at Union, Tehsil, Town and District (Zila)TP
5PT
levels. Failure to do so will further delay the development of local government bodies with
downward accountability to citizens and will increasingly lead to problems in the equity of
local service and resource provision within and between communities as well as in their
sustainability due to problems of maintenance and in meeting other recurrent expenditure
requirements.
14. At the Union, Tehsil, Town and District levels the procedural framework for devolved
local government is well developed in the LGO 2001 and the subsequent 2005 amendments.
The detail and sophistication of the framework is impressive when considering the relatively
short period within which policies had to be formulated, legislation drafted and promulgated,
operational rules and guidelines prepared and disseminated, trainings developed and
imparted. The degree and extent of the change in local government at the sub-provincial level
has placed considerable pressure on the capacity of the new councils and the associated
administrative departments to take on the new functions and responsibilities and to provide
the levels of service provision and development activity expected. For example the DCO in
Lahore District pointed to the number of staff under his direct administrative responsibility
increasing almost overnight from under 2,000 to over 40,000. It is clear that the quality and
quantity of training for staff and elected members at all three tiers has not been adequate and
that the poor distribution of staff is creating significant problems for the functioning of local
government. This problem is particularly acute at the Union level of government.
15. The poor administrative alignment of the Provincial departments with District departments
and the staffing of District departments with senior staff from the National and Provincial
Civil Service have undermined the administrative functioning and accountability of these in
the devolved system of local governance. For example, the powers to hire, fire, transfer and
promote have not been in the managerial remit of the local government authorities. The
District Coordination Officer (DCO) responsible for coordinating a district’s administration
is usually a Federal or Provincial civil servant on at least Basic Scale 20. The requirement in
the 2005 Amendments that the Provincial departments be restructured and that a District
Service of district and tehsil groups be undertaken by 31P
stP December, 2005, will provide the
administrative basis for addressing some of these problems. Their successful implementation
will undoubtedly take longer if the root causes of the problems are to be resolved as they
include administrative traditions and work cultures, acceptance of new forms of
accountability and significant changes for individual career paths.
16. Local government finance in the LGO 2001 centers on the creation of a District Fund, a
Tehsil Local Fund, Town Local Fund and a Union Local Fund. Their revenues include
government grants-in-aid, transfers from a higher tier of local government, incomes from
taxes or charges levied by the local government, and fines levied. Expenditures are according
TP
5PT A Zila is a District. Both the English and Urdu terms are used in the legislation, policy documentation and other
literature.
Page 10 of 43
to annual and supplementary budgets, prioritized according to the bottom up planning system
laid out in the LGO 2001. 25% of the budgets are solely for utilization through the CCB
modality. Monies cannot be transferred to a higher level of government except in the case of
debts incurred prior to the LGO 2001 coming into force.
17. The LGO 2001 established the financial framework for accountable budgeting combining
both supply driven and demand driven local development in terms of service provision,
resource allocations and infrastructural development. The implementation has had problems
in the areas of revenues being received, budget planning being participatory and demand
driven, and allocations being utilized. For example fees for collecting taxes have not been
paid TP
6PT and CCB allocations have been systematically underutilized and prone to
irregularities.TP
7PT
18. The electoral system established under LGO 2001 has also experienced problems. Two
issues that are frequently referred to are (i) the strong influence of political parties in the
elections to the three tiers of local government and management of local affairs despite the
elections formally being non party-based and (ii) the current system of indirect elections to
the Tehsil and District Councils which de facto give provincial/national politicians
significant influence in the selection and election of candidates. Both are seen to reduce the
accountability of the representatives to the electorate and to the individual citizen and to
strengthen the role of personal patronage in influencing the outcome of elections.
19. A further issue is the relationship between the elected councils and the civil service with the
accountability of the latter to local government being questioned by the local councils’
members.. This has been addressed with the proposal for a District Civil Service Cadre
introduced in the LGO Amendments 2005. To achieve an effective working relationship
between the elected councils and the civil service in administrations will require time and
effort to change belief and work cultures that run counter to the principles of modern local
government and not least to secure an acceptance of new forms of accountability involved.
20. At the Provincial level it is clear that the emphasis on the district level and below during the
first four years of implementation has led to tensions at the provincial level of government.
Elected Provincial Governments were not in place when the lower tiers of elected
government were established or when many of the initial reconstruction initiatives were
being designed and implemented. In retrospect it can also be seen that reorganization of
functional responsibilities was not based upon a consultative process that secured adequate
ownership and commitment at the provincial level to the reform process. There remains a
lack of clarity on the division of roles and responsibilities between provincial government
and district councils and their respective departments; as indicated above the structures of the
civil service have not be conducive to effective and accountable systems of government at
the district level and below and important areas such as tax and revenue collection and
distribution are a constant source of tension between provincial and district governments.
TP
6PT It was reported by the former Nazim in Lahore District that the 10% fee from the collection of the property tax had
not been paid by the Provincial government.
TP
7PT A forthcoming report from a study conducted by SPDI in Abbotbad indicates a high incidence of irregularities
based upon poor management and mis-management of CCB projects and their funds. (Interviews with SPDI staff)
Page 11 of 43
21. Problems in the allocation of functional responsibilities are further exacerbated by changes in
political roles introduced by the devolution reforms. Where previously the Provincial
Government was the clear political and administrative authority over the district government,
this is no longer so apparent. The constituency for a District Nazim is often much larger than
that for a member of the Provincial Assembly (MP) or of the National Assembly (MNA).
Combined with the new powers invested in the District Nazim and Council, it has led to a
marked shift in the political balance reflected in MPs and MNAs contesting for election as a
District Nazim.
22. The Provincial Local Government Commission (PLGC) is designed in LGO 2001 to play a
critical role mediating between different levels of government and between elected and
administrative departments of government. Problems in the allocation of functions and
duties, the lack of clear guidelines for implementing key reforms, political interests, and
similar problems have weakened the role of the PLGC and thereby the effective and
accountable functioning of the new local government system. The 2005 LGO Amendments
have addressed a number of these problems paving the way for a stronger and more active
role for the PLGC. Ideally it should play an active and central role in anchoring the system of
local government in each province securing the role of the Provincial Governments as both a
promoter and a defender of the system.
23. The Provincial Local Finance Commission (PLFC) under the LGO 2001 is required to
provide recommendations to the provincial Governor on a formula for distributing the
Provincial Consolidated Fund to the different tiers of local government and to make
recommendations on any other matter relating to finance for and of local government
referred to it by the Governor, the provincial Government or by a local government authority.
Powers invested in the PLFC cover fiscal allocations and the flow of fiscal transfers. For
example statements of estimated revenues and expenditures are required to be provided by
the provincial government to the PLFC at least three months prior to finalizing the Provincial
Budget. As such the PLFC has a potentially very important role to play in the effective
functioning of local government and in facilitating the reform process.
24. As previously indicated the 2005 Amendments to the LGO 2001 have addressed some of
these issues with the reassertion of the Provincial Governments central position within a
system of local government through such measures as the increase of the powers of
provincial Chief Ministers over District Nazims and the decision-making of the District
Councils and lower elected bodies. In the next phase of reforms, the clearer delineation of the
status of the provincial Government both with respect to local government and to federal
government will be a critical factor for the successful consolidation of the reform process.
25. At the National Level the leading role of the NRB with its status of being under the Office
of the Prime Minister is a cause for coordination problems with the main line ministries
working with service delivery at the sub-national level. The creation of the NRB effectively
weakened the status of the Ministry of Local Government and is seen by some in the
Ministry to be linked directly to the downsizing of that Ministry at the federal level. The
Planning Commission and the Ministry Planning and Development appear not to have close
Page 12 of 43
vertical linkages with planning institutions and processes at provincial levels and below. The
Mid-Term Development Framework recently released contains only minimal reference to the
institutions of local government for whom an effective planning system linking needs to
policies and their implementation is a critical requirement. Vertical programmes remain a
prominent characteristic of government service delivery extending from Federal Ministries
through Provincial governments and downwards through line departments. Finally donor
support both directly to the devolution process and elsewhere to sector programmes that fall
within the areas of local governments’ jurisdiction have tended to promote vertical service
provision through line departments; furthermore the institutional anchoring of these
programmes has not always followed the strategy promoted by the GoP through the creation
and work of the NRB.
26. The creation of a strong national ownership of the reconstruction process based upon a broad
consensus amongst the national and donor stakeholders on content and approach has not been
achieved as yet. In this context it is important to recognize that NRB is not a permanent
institution and that it will in all likelihood be terminated in 2009 when the current protected
status of the new councils ends or 2010 after the third local government elections are held . It
is therefore critical that not only is the reform process successful in securing a strong
ownership at the provincial and local levels of government, but that the commitment of
federal government to maintaining the local government system is also secured.
UNDP Support for Institutional Reforms
40. The country programme of UNDP Pakistan and the Strategic Results place considerable
emphasis on the governance thematic area focus, on institutional reforms specifically, and on
women and governance.
Country Cooperation Framework and UNDP Strategic Results Framework 1998-2003
27. The main thematic areas of the Country Co-operation Framework (1998-2003) are
Governance, Gender and Sustainable Livelihoods. The overarching goal of the governance
programme is the creation of an enabling environment within which the people of Pakistan
can influence the direction and conduct of their governing institutions. The UNDP
programme will seek to strengthen Pakistan's capacity in areas such as democratic
processes, policy development, development management, strengthening of civil society, and
public-private linkages. In all areas, special emphasis will be placed on provincial and local
processes and on community empowerment.
28. The strategy for implementation is that UNDP will assist in the development of such a
programme for the revitalization of the principal institutions of governance. At the federal
level, the programme will include strengthening of the Institutional Reforms Group, which
was established in 1995 and further strengthened during the interim government. At the
provincial level, it is anticipated that each government will establish its own Institutional
Reforms Group, following the lead of the North West Frontier Government, which has
already done so.
Page 13 of 43
29. As part of the gender goal, the objective was to advance the cause of women and therefore
adopt the Convention on the Elimination of All Forms of Discrimination Against Women
(CEDAW). UNDP will assist the process of preparing a national programme for the
implementation of CEDAW while developing specific interventions intended to make an
identifiable difference to the lives of women - particularly poor women - in Pakistan. One of
the expected outcomes is increased number of NGO working on the political participation of
women and increased participation of women in politics and government, at the local and
federal levels.
30. The Strategic Results Framework (SRF) for Pakistan 2000-2003 comprises five categories,
namely, governance, poverty, environment, gender and UNDP Support toUN. It has been
designed to capture the strategic results derived from all the projects/programs of the current
Country Cooperation Framework (CCF 1998-2003) for Pakistan (see above). Governance
has been identified as a critical element in enabling Pakistan to achieve its sustainable
development and poverty alleviation objectives. The UNDP governance programme included
strategic support for the design of governance reforms; capacity building of key governing
institutions including civil society organizations; and enabling implementation of governance
reforms at the national and sub-national levels.
31. The main outcome under the Governance component is effective legal and policy framework
for decentralized authority and management.
UNDP Country Programme 2004-2008
32. Under the United National Development Assistance Framework 2004-2008, the United
Nations system will encourage civil society partnerships and participation in efforts to
broaden choices and increase opportunities, particularly for the poor, women and
marginalized groups. Four broad themes have been identified: participatory governance,
poverty alleviation, health and education. Based on the UNDAF and other consultative
processes, the UNDP country programme will focus on cooperation in (a) institutional
capacity-building and (b) community development with asset building for the poor [insert
hyperlink to CP].
33. Within the component focusing on institutional capacity-building, the UNDP programme
2004-2008 covers the following major areas: (i) participatory poverty monitoring and
research, (ii) promoting gender equality, (iii) strengthening and consolidation of the
devolution process, (iv) strengthening oversight and regulatory mechanisms at national and
sub-national levels, (v) access to justice and human rights, (vi) environmentally sustainable
development. Within the component focusing on community development with asset
building for the poor, the UNDP country programme will focus on the following major areas:
(i) community empowerment to support local participation in decision-making, (ii) land and
water resource management, (iii) urban poverty reduction and slum uplift, (iv) support to the
national initiative for philanthropy and volunteerism through the National Commission for
Human Development and (v) youth. The core elements of the country programme related to
Page 14 of 43
devolution are intended to contribute to the following major outcome as specified with the
Country Programme document:
‘local authorities and communities in rural and urban areas enabled and involved in
planning and management of development activities, including the provision of public
services’
34. In the context of the UNDP CCF (1998-2003)/Strategic Results Framework (2000-2003) and
Country Programme (2004-20008), UNDP’s present support to devolution and good
governance in Pakistan has been primarily, but not solely through four projects:
The Support to Good Governance (Phase –II) PAK/98/005 July 2003 – December 2005
Support to Devolution Trust for Community Empowerment (DTCE) PAK/02/009 July
2003 – December 2007
Essential Institutional Reforms Operationalization Programme (EIROP) – Phase II
December 2004 – November 2007
Support to Devolution Reforms in Balochistan (SDRP) PAK/96/021 June 2002 - June
2004
35. Support to Good Governance has facilitated the work of NRB for the completion of the
reconstruction agenda based upon strategic alliances with partner organizations in the public
and private sectors, civil society and donor community. Phase-I of the project (October 1999
to June 2003) was designed to support the NRB is conceiving, designing and facilitating the
implementation of a strategic National Reconstruction agenda for establishment of genuine
democracy with sustainable and durable Good Governance. Three immediate objectives of
Phase-I were (i) support to a consultative process involving key stakeholders to build
consensus on national reconstruction agenda, (ii) support to a restructuring agenda of NRB
approved by the NSC and (iii) support to the implementation of the selective strategic
reconstruction initiatives agreed between UNDP and NRB.
36. Phase-II has continued the policy of Phase-I, to work in accordance with the priorities
determined by the NRB with the strategic focus to analyze, consolidate and improve the
work completed during Phase-I. Securing a value-added partnership with donors, facilitating
learning and exchange of views that was a core part of Phase-I, the programme has continued
to be so in Phase-II, but with a view to extending the opportunities for debates and
understanding on key implementation issues pertaining to state restructuring. This is seen to
be important for strengthening project ownership and to ensure a participatory and
consultative planning process. A central operational modality for Phase-II are partnerships
with organizations in the public and private sector, civil society and donor community and
with national and international research institutions.
37. The success of the project’s phase I and phase II is reflected in the success of the reform
progress to date. The UNDP support has provided the consultants who have carried the core
of NRB’s work forward. The focus however has been on the demands of carrying the
reconstruction downward to the sub-provincial local governments. Partnerships and
ownership have been built at this level, but at the provincial and national levels there have
not been the same partnership successes. The Planning Commission and the Ministry of
Page 15 of 43
Local Government have not been significant players in the decentralization process, perhaps
reflecting the political and administrative context in the early period of reform; donors have
not been active in coordination groups both within the donor community and with the
government; the tradition of vertical programmes on the part of other ministries, often
supported by donor interventions, has continued to prevail; and a broad ownership and
commitment to the reforms has not been developed at national or provincial levels of
government as yet.
38. Another issue is seen to lie with the lack of a strong programme to secure citizen
participation across all aspects of local government practice. The focus on CCBs is
participatory in its objectives, but 75% of funds to local government lie outside the CCB
modality and citizen participation in planning, monitoring, implementation for utilization of
these is not present. Overall, whereas NRB has been able to move an impressive agenda for
the reconstruction of local governance forward with the technical assistance support that
UNDP has provided, only limited progress has been made in achieving the principles of the
LGO 2001/2005 intended to ensure transparency and participation and, hence the
development of truly accountable local governance.
39. Support to DTCE is designed to strengthen community empowerment and local
development through social mobilization and local development projects based upon the
Citizens’ Community Boards (CCBs). The continuing need for this project is documented in
reports such as that of the Social Audit of Governance and Delivery of Public Services
published in 2005 by CIET and DTCE and DTCE’s 2004 Annual Report. It is clear that
CCBs have a very important role to play in creating a bottom-up demand on local
government bodies with the consequences for local development and for local good
governance that this brings. It is also clear that simply making the funds available is
insufficient to set the process in motion and that it requires an intervention at the local level
that can mobilize communities to form CCBs, can ensure that all sections within the local
communities are engaged in the formation and development work of the CCBs and can
facilitate a local context favourable to their effective functioning. DTCE and its local partners
can be seen to have a central role as catalyst agencies necessary for CCBs to have the desired
impact according to the LGO 2001/5. Such a role is clearly necessary to jump-start
community participation in local governance utilizing a funding window solely for projects
requested by, and implemented in cooperation with, community organizations (CCBs).
40. Three issues that need to be addressed are (i) the coverage of the project across Pakistan (ii)
the inclusiveness of the project within communities and (iii) the capacity of the project to
bring citizens into a strong engagement in local governance beyond the modality of CCBs
and their engagement with local government and local development. While the design of the
project does not ignore these issues, the implementation has tended to focus on communities
rather than citizens with the formation of functioning CCBs in specific localities being the
main activity to date.
41. EIROP was designed as a response to the LGP 2000 and LGO 2001 and implemented by
UNDP through a cost-sharing agreement with SDC and NEX execution by the Planning,
Environment and Development Department of the Provincial Government of the NWFP. A
Page 16 of 43
project Review Board chaired by the Additional Chief Secretary was established to
coordinate the project with other departments and donors supporting decentralization
activities in the province. The implementation of the decentralization reforms is guided by a
Provincial Decentralisation Task Force, which is therefore a key actor for the project.
42. EIROP has three immediate objectives: (i) to facilitate the design and implementation of the
decentralization framework at the provincial and district level, (ii) to strengthen the new roles
and responsibilities to be performed in the province and districts as a result of
decentralization through human and institutional capacity building, and (iii) to enhance
quality and transparency of decision-making through improved information collection and
sharing at provincial and district level under the new decentralized set-ups.
43. In its design there is little doubt that the project addresses core areas requiring support for
implementing the new decentralization policy in the NWFP. The tripartite partnership of the
Provincial Government, UNDP and SDC is an important advantage for its implementation.
Support for the Provincial Decentralisation Task Force has been pivotal for work for the first
immediate objective in designing the provincial framework for implementing LGO 2001.
Trainings and studies undertaken under the second immediate objective have increased
awareness at the upper levels of district administrations and the indirectly elected
representatives and generated useful overviews in a number of areas relevant to the reform
agenda. Information gathering has also provided new data to provincial and district
stakeholders designed to facilitate activities in pursuance of the third immediate objective.
44. Reviews and evaluations have also pointed to a number of important weaknesses in the
project’s design and implementation. These include an over-emphasis upon the provincial
and district levels of government and an under-emphasis on sub-district levels, a failure to
link the experiences of implementing the reconstruction agenda within a province to the work
of the NRB and other national stakeholders, a tendency for the project to remain a financing
mechanism for provincial and national governments’ implementation of the reforms and not
to play an advisory role, to deliver trainings that are not adequately focused and too much
based upon a traditional class-room based pedagogy in delivery, a failure to link research
studies with policy and practice, and a failure to promote accountability, transparency and
more general participatory decision-making by citizens in local government.
45. Support to Devolution Reforms in Balochistan (SDRP) is based on the premise that
information and participation would lead to an improved service delivery in the province and
thereby a positive impact on the beneficiaries. In this, the project has focused on a key area
for facilitating the devolution reform process and its broader objectives for local governance.
The project is the successor to the Balochistan Trial District Management Project, which was
implemented between 1998 and 2002. SDRP involved a realigning of the earlier project in an
effort to make it compatible with the new local government structures in the province. The
main focus has been upon mobilizing communities at the grassroots level and forming
community organizations. A second focus has been on human resource development through
training programmes, seminars, workshops and study tours. Thereafter there has been support
to the Provincial Local Government Commission and to the formulation of PLGC Rules of
Business, the establishment of a web portal and four District Management Information
Page 17 of 43
Centers as the first steps towards an open access information system, and support for the
design of a monitoring and evaluation system.
46. The project has made important contributions to the devolution process in Balochistan, but it
has also provided important lessons: for example the need for a more holistic and integrated
approach in providing support to devolution and the need to have a strong commitment from
provincial and local government to the project. The availability of resources to be utilized
with the newly established capacities at community level and in the administration is also a
critical factor.
47. Other UNDP interventions in Poverty Alleviation, Sustainable Livelihood, Gender,
Environment and Crisis Prevention are designed and implemented with due consideration of
the devolution context as it evolves under the programme of national reconstruction.
Other Donor support to devolution
A number of other donors are actively engaged in providing support to the devolution process
either directly as in the case of ADB’s major Devolution Support Programme (DSP) or CIDA’s
Devolution Support Programme (C-DSP) that focuses on the province of Punjab or indirectly in
a number of sector specific programmes and projects. A full list of donor interventions with
relevance for the devolution reforms is provided in Annex 2.
Concluding comments
48. It is clear that the quite remarkable progress has been achieved in creating the system and
structures of devolved governance in Pakistan. As noted above the process is not complete
and has been accurately described as representing a glass that is half full rather than half
empty with the implications that good progress is being made, but that much still remains to
be done. The policy framework for district local government is largely present, the
framework for federal to provincial devolution is not. The modalities for securing for
community participation are gradually being implemented, but progress remains uneven
within and between the provinces, the districts and the sub-district levels. The framework for
achieving the participation of citizens in collective decision-making in local development
through local government institutions has yet to be adequately developed and implemented.
At the provincial and federal levels of government the ownership and commitment to the new
system and structures of local governance is not yet strong enough to be capable of
sustaining the new system of local governance beyond the critical deadline of 2009 and key
groups central to its long term future remain to be convinced of its merits and to accept it as
irreversible.
49. At the same time the progress achieved, the continuing ability of the NRB to set and drive the
reconstruction agenda forward and the growing expectations arising amongst politicians,
administrative officials and most importantly substantial sections of the population at the
district level and below present a window of opportunity for carrying the reform process
Page 18 of 43
forward and to build a broader constituency of support for the new system of local
government across Pakistan.
Page 19 of 43
Part 2 Recommended Strategy for UNDP Policy and Programme Support
50. The strategy takes its point of departure in the Government of Pakistan’s strategy for
devolved local governance, the UNDP’s country programme/strategy and specifically its
ongoing programme of support to governance and particularly the Support to Good
Governance project, and the support provided by other donors in the field of good
governance. The strategy is developed in the light of the above situational analysis, drawing
upon the broad body of documentation available and consultations held with a range of
stakeholders at all levels. The proposals are to provide the basis for a project to support good
governance, but certain components and specific activities might well be best placed with
other UNDP projects supporting the reconstruction agenda led by NRB, but through other
implementing agencies and modalities.
51. As indicated above, the Government of Pakistan has evolved a broad-based policy for
national reconstruction comprising of four basic elements: economic revival, good
governance, political restructuring and poverty reduction. In pursuit of the national strategy,
the strategic plan designed by NRB comprises four phases: (i) devolution of power; (ii)
reconstruction proposal related to political structures and systems, economic and governance
structures and systems, police ordinance 2002, and consolidations of local government
structures and systems; (iii) conduct of elections; and (iv) revival of constitutional
democracy. As such, devolution has been the cornerstone of the reforms and has aimed at
contributing to achieving the objectives within all of the elements included in the reform. The
Local Government Proposed Plan (May 2000) outlines the basic principles, operational
mechanisms and empowerment targets as a ‘vision’ for Devolution of Power and
Responsibilities: Establishing the Foundation of Genuine Democracy TP
8PT. Subsequently, these
principles were further refined and outlined in the Local Government Plan (2000), and the
main legal framework provided with the Local Government Ordinance (LGO 2001) and
revisions (LGO 2005).
Following the major progress in implementation (see previous chapter), the internal policy
review conducted by NRB in 2004/5 aimed at taking stock of the achievements and present a
strategy for the next step of the devolution reform, lessons learned and areas to address in the
next phase. An external strategy for communication to external parties has not been prepared by
the Federal Government – primarily since it is seen to be the responsibility of Provincial
Governments to develop the strategy of implementation within the national framework provided
with the LGP (2000) and LGO (2001/5). As such, the presentation of the NRB Chairman to the
Pakistan Development Forum 2005 TP
9PT represents at present the most coherent outline of the NRB
strategy and refers to the following Second Order Reforms: donor coordination and devolution
framework, including a reform of ‘vertical programmes’; capacity building at provincial and
TP
8PT Check if available on the web and provide hyperlink. Otherwise not that it is not.
TP
9PT Impact of Devolution on Service Delivery, Presentation by Mr. Daniyal Aziz, Chairman NRB, Pakistan
Development Forum 2005, Islamabad, the 26 P
thP April, 2005.
Page 20 of 43
local level; extension of DTCE operations to the rest of Pakistan over 5 years; development of a
District Service; and federal to provincial devolution. TP
10
52. As highlighted by NRB, the decentralization process initiated in August, 2001 requires
concerted effort and intelligent use of available resources to reap the benefits of new
governance paradigm in Pakistan. The Federal and Provincial Governments are pursuing
medium and long-term strategies to consolidate devolution and governance reforms.
Investments since 2001 by development partners i.e. UNDP, Asian Development Bank,
JICA, CIDA, SDC, World Bank and many others have supported the decentralization
process. As before, future investments by development partners should be in line with the
strategies adopted by the Federal and Provincial Governments. The National Reconstruction
Bureau (NRB) proposes to undertake a series of actions in the next two to three years (see
table 1 for a summary).
TP
10PT Recent documentation from NRB detailing future strategy was not available to the mission. As indicated, this is
based upon the 2005 Amendments to the LGO 2001, a presentation made to the Pakistan Development Forum by the
NRB Chairperson on 26 P
thP April, 2005, and consultations held with the Chairperson and members of the NRB.
Page 21 of 43
Table 2 – The Way Forward: Summary of NRB Strategic Plan DISTRICT SERVICE The Provincial Local Government Ordinances, 2001 were amended in June, 2005 to provide for the creation of the district service and to give disciplinary powers to Nazims. The creation of district service (comprising District and Tehsil cadres) will ensure that the local governments have full command over the officers and officials working in the establishments of decentralized offices. NRB will provide technical support to the provincial governments to implement section 140-A and 30-A of the Local Government Ordinance, 2001. Already the district service model has been shared with the provincial governments and consultative meetings are taking place on the issues contained in the draft model. CIVIL SERVICE REFORMS A direct impact of the creation of the District Service in each district is on the civil service structures at the Federal and Provincial levels. NRB is responsible to prepare proposals/new framework for civil services in consultation with the Federal Ministries/Divisions and Provincial Governments. The new framework will ensure that the employees of the district service and those in the Provincial Services find adequate opportunities to move from one cadre to the other. PROVINCIAL RESTRUCTURING Devolution has changed the government structures at the District and Provincial level. The success of the new governance paradigm depends upon the ability of the Provincial Governments to shift their focus from executive functions to regulatory functions. This is a requirement and not an option. Decentralization of District/Tehsil level offices to local governments has shifted the executive functions from the Province to the District and Teshil. With this change, Provincial Departments have to redefine their role to perform regulatory functions. This will strengthen the entire process of devolution and making the policy functions more effective. Provincial Governments recognize the importance of Provincial restructuring and have, therefore, amended their Provincial Local Government Ordinances, 2001 to provide for administrative re-alignment of provincial departments in compatibility with the features of the devolution plan and ensure the principles of good governance. NRB will continue to provide, a research based, provincial restructuring model to ensure that the Provincial Governments complete the provincial restructuring work on priority basis. NRB will also monitor the transition process and report progress to the National Implementation Body chaired by the President of Pakistan periodically. FEDERAL TO PROVINCIAL DEVOLUTION The Federal Government recognizes the significance of the principle of the subsidiarity in a federation. The Federal Government plans to transfer those subjects and functions which can best be performed by the Provincial Governments. The constitutional, legal and administrative issues relating to the transfer of subjects from the Federal to the Provincial Governments have been analyzed in the NRB. The proposals of the National Reconstruction Bureau will be considered by the competent fora and a final decision will be taken soon. Subsequently NRB will play a lead role in the implementation of the approved proposals. COMPUTERIZATION OF RECORD-OF-RIGHTS RECORD Conferment of proprietary rights on the non-proprietors in Abadi Deh in ICT and computerization of record-of-rights is a recent initiative of the Federal Government. This will enable the citizens, in general, and non-proprietors in particular, to have clear title of land and thus use the record-of- rights as a collateral. This initiative will change the centuries old system of record management in the Revenue Department of the ICTA. NRB in collaboration with the ICTA, NADRA and a private accountancy firm has been charged with the responsibility of steering the project. The focus of the project is both on computerization of records-of-rights as well as on modernizing the processes of the Revenue Department to achieve the objectives of transparency, efficiency and improved service delivery. The National Reconstruction Bureau will deploy experts to analyze the intricate systems and procedures of the land revenue system. The lessons learned in the ICT will be used by the Provinces to revamp the Provincial Boards of Revenue and Revenue offices. MEDIA AND GOVERNANCE Pakistan moved in the 21st century with a new governance system which replaced a hundred and fifty years old system of administration. The old system of administration was best suited to the requirement of the colony. The new system at the District level focuses on integrating the common man into the process of development. The bureaucratic relationships have been changed and new democratic institutions are responsible to ensure improved service delivery by the district administration and tehsil municipal administration. Like LGO 2001, Police Order, 2002 provides for establishment of new institutions for oversight of the police operations. All these developments must be known to the people so that they can judge the performance of their elected representative and at the same time benefit from the new administrative set up. National Reconstruction Bureau has been pursuing a strategy of reducing the knowledge gap about devolution. The system is only 4 years old and it is desirable that a long-term strategy is devised to make people aware of the new system, the roles and responsibilities of the people, the roles and responsibilities of the elected people at the local level and the responsibilities of the local government offices to provide better services to the people. Media offers best opportunity to fill the knowledge gap. NRB has established a Media and Governance Cell to exclusively focus on the requirements of Media, develop documentaries and disseminate knowledge in a systematic manner. This area of focus of NRB requires massive investments in the next three to five years. CITIZEN COMMUNITY BOARDS The hallmark of devolution is participation of people in the development process. The Local Government Ordinance, 2001 provides legal framework through which people can participate in the development activities at the local level. The Citizen Community Boards (CCBs) can be formed by a group of 25 or more non-elected citizens in a locality for a number of purposes as described in the law. The main function of the CCBs is to prepare development projects as required by the community, raise 20% cost of the project and take up to 80% of cost from a local government. Each local government is responsible to earmark 25% of its development budget for schemes/projects to be undertaken by the CCBs. To promote establishment of CCBs, it is necessary that the citizens, CBOs and local government functionaries are trained in the development of the project proposals, submission of the project proposal to the local governments and implementation of the projects. NRB will continue its work in this direction in collaboration with the Devolution Trust for Community Empowerment (DTCE) and other stakeholders. FISCAL DECENTRALIZATION AND INTER-GOVERNMENTAL TRANSFERS A new system of local government finance was installed in July, 2002 as an integral part of devolution. The Provincial Finance Commissions have been established in the provinces and are responsible for determining the share of the provincial government and the local governments in the Provincial Consolidated Fund. The local governments are responsible for budgeting, local councils approve budgets and through Accounts Committees monitor the use of resources. Auditor General is responsible to Audit the expenditures of local
government. The new system must be understood by all the functionaries and the elected representatives. Budget Rules, Fiscal Transfer Rules and Accounts code have been notified. Other Rules are being prepared. A gigantic task of capacity building of functionaries and elected representatives is to be completed. NRB will continue its support to various decentralization support programmes initiated by development partners to strengthen fiscal decentralization process. It is estimated that the entire effort will take three to four years to fully implement the local government finance system. NARIMS The Local Government Ordinance, 2001 recognizes the right of the citizens to obtain information about the working and performance of the local governments. This objective can best be achieved through use of information technology. The Local Government Ordinance also requires the Provincial Governments to establish information technology offices. NRB has developed NARIMS Software which will enable IT Offices to become functional very quickly and meet all requirements of all District Government officers, elected representatives and citizens. NRB is supporting all Provincial Governments in installation of the software in the selected districts like Abbottabad, Larkana, Lasbella, Karachi, Chakwal and is supporting all the Districts Governments for the installation of this copyright software. This will be extended to the Tehsil Municipal Administration as well. The successful use of NARIMS requires training of both the locally elected representatives as well as local government functionaries. NRB with the assistance of the development partners will continue its support to Provincial and Local Governments. The instructions relating to installation of NARIMS in the District Governments are being disseminated to all the concerned. This dissemination process in itself requires huge investments. TAXATION As part of the new local government finance system installed in July, 2002, the Local Governments have been empowered to levy and collect local taxes. The most important tax entrusted to the Tehsil Municipal Administration is the property tax. The local governments require technical support in the form of manuals as well as improved procedures to effectively utilize their taxation powers and increase their own source revenues. NRB will provide support to the Provincial Governments in the development of taxation manuals and also enhancing the ability of the local governments, particularly TMAs to collect their revenues. STRENGTHENING OF INSTITUTIONS The efficient working of Provincial Finance Commission, Local Government Commission, Office of the Zila Mohtasib, Zila Mushawarat Committee, Accounts Committee, Monitoring Committees is an important pre-requisite for strengthening the decentralization process. In order to make the working of these institutions/committee effective, rules/regulations and bye-laws are required. Some of these have already been developed. Model rules are being developed by the NRB which will be promulgated/notified by the Provincial Governments. The National Reconstruction Bureau will continue its work for development of the model rules, particularly for the institutions like PFC, LGC and Zila Mohtasib. NRB had issued in the past guidelines for the monitoring committees. These guidelines will be converted into model rules. The effective performance of the monitoring committees shall ensure improvement in service delivery at the local level. ENFORCEMENT OF LOCAL AND SPECIAL LAWS Based on the 3 years experience of the enforcement of local and special laws by the local governments and the recommendations of the Provincial Governments, the NRB developed a new enforcement mechanism to ensure that local governments enforce the provisions of the LGO and Local & Special Laws effectively. The Provincial Local Government Ordinances have been amended appropriately to entrench the consensus amendments in the law. In order to educate and train the officers of the local governments, the provisions relating to enforcement mechanism of the LGO 2001 and local and special laws, the NRB is focusing on the development of the training manuals. The training programmes on this subject shall be run by the Provincial Governments with the technical support of the NRB. MUNICIPAL MANAGEMENT To make the TMAs fully functional and appropriately perform assigned functions, new manuals relating to licencing, water supply, sewerage and waste disposal, spatial planning etc., are being developed by NRB in collaboration with development partners particularly the World Bank through the Water and Sanitation Programme (WSP). It is estimated that within 2 years, capacity of TMAs will be enhanced through new manuals and training of relevant Tehsil/Town Officers and employees. CAPACITY BUILDING In the first term of local governments through Training Material, Training of Trainers and input of its officers/consultants in training programmes for Zila/Tehsil Nazims/Naib Nazim, NRB provided technical support to Provincial governments. NRB will continue providing technical support to the provincial governments for organizing capacity building programmes for the elected representatives of the 2nd term and local government officers. The Federal Cabinet had approved the establishment of School of Local Governance in November, 2002. In collaboration with the Establishment Division, Civil Service Reforms Unit and the National School of Public Policy, School of Local Governance is being established. Under this project, the capacities of the existing local government training institutions in the provinces as well as under the Federal Government will be enhanced. NRB will invest resources for the development of the new training manuals as well as steering the project of School of Local Governance. POLICE RULES Police Order, 2002 replaced the Police Act, 1861. A number of institutions have been/are being established under the Police Order, 2002. The effective implementation of the Police Order, 2002 requires development of the rules and regulations. The National Reconstruction Bureau is preparing Model Rules for the Public Safety Commissions at the National, Provincial, District level as well as for the police establishments in consultation with the Provincial Governments. The Police Rules made in 1934 shall be replaced by the new Rules. Rules of the Public Safety Commission and other institutions under the Police Order will facilitate the working of these institutions. Police Officers, Members of the Public Safety Commissions, Zila Nazims and DCOs will be trained. NRB will support the provinces in the capacity building programmes as well. FINANCIAL INTERMEDIATION FOR POVERTY REDUCTION The objectives of good governance can best be achieved by introducing pro-poor policies. In this context, it is desirable to focus on the process through which the poor in the society have access to the economy’s savings and to use credit to initiate new small scale economic ventures. The National Reconstruction Bureau has developed the model to improve the relationship between financial institutions and the poor. It is estimated that the implementation of the new model will enable, at least, 18 million people to have access to the credit from the financial institutions in rural areas of the country. The NRB is the focal organization for this initiative and will refine the Model in collaboration with all the stakeholders including the State Bank of Pakistan, NADRA and administrative Ministries / Divisions for final approval of the Prime Minister.
*Based on summary prepared by the NRB
Page 22 of 43
53. The concluding comments in the situational analysis indicate the challenges to be faced in the
next five years. They require the consolidation of the achievements to date, the strengthening
of successful areas of the reform process and new activities designed to address the
weaknesses that have emerged.
54. An important consideration for developing the strategy is the fact that NRB was created to
develop and carry through the reconstruction of governance in Pakistan and as such, it does
not have a role once local government reconstruction is completed. In the present context it is
expected to be terminated in 2009 or 2010, that is shortly after the local government bodies’
current protected status under the sixth schedule of the 1973 Constitution is removed or after
the third round of local government elections are completed.
55. The recommended strategic focus of the next phase of UNDP support for devolution policy
following the completion of the Support to Good Governance project is firstly on the
consolidation and further implementation of the reconstruction initiatives designed and
initiated under Phase I and Phase II of the Support to Good Governance Project; secondly the
development of new initiatives to strengthen the policies for reconstruction at national and
provincial levels of government, and thirdly the development of initiatives to strengthen the
implementation of reconstruction reforms at provincial, district, town, tehsil and union levels
of government.
56. As with the Support to Good Governance, the principles underwriting the strategic focus are
that the project should be people-centered, service oriented and right and responsibility based
comprising the right to information, the right to participation and representation and the right
to development. The methodology involves consensus building at all levels from citizen to
national government, the promotion of ownership in the devolution of government and local
empowerment. Furthermore the promotion of partnerships between vertical tiers of
government and horizontally between elected and administrative institutions of government,
civil society organizations and associations, the private sector and donor organizations is a
basic principle in the programme.
57. Within this framework, the programme proposes to contribute towards three major
institutional changes helping NRB to consolidate the reforms as further outlined below. First,
support for major reform areas identified by NRB in the internal strategy review process
2004/5 and presented to the Pakistan Development Forum (2005). This includes areas such
as the establishment of a local civil service, Federal to Provincial devolution, fiscal
devolution, and Provincial administrative restructuring. It is proposed that technical advice is
provided for the proposed reform of the system of local governance training institutes,
including in particular their capacity to reach out to the local governments (see further
below), but will not include support for implementing the reforms. Within the context of
fiscal devolution, the programme will support NRB in focusing on the creation of a broad-
based dialogue (see further below) and in ensuring that women and vulnerable groups are
consulted and that the impact of reforms on these groups is monitored and assessed. The
project will identify measures to enhance the resource base for sub-provincial development
activities including those in the area of tax collection and local resource mobilization.
Page 23 of 43
58. Second, responding to the major need identified above, a significant part of UNDP’s support
will concentrate on developing a local governance system with stronger citizen
accountability. Focus areas will be: (i) participation through representation in local
governance institutions, including e.g. the representational arrangements and electoral
processes and the functioning of political parties at the local level, which together with direct
participation aims at strengthening citizen power in the local governance system; (ii) direct
participation in planning, budgeting, management, audits etc. which will help develop the
downwards accountability; (iii) strengthening the development of mechanisms providing
citizens with access to recourse; (iv) assessing the merits of potentially applying a
performance-based grant system developing basic ‘safeguards’ (minimum conditions) and
incentive in the funding arrangement and focusing on the implementation of legal
requirements with respect to participation, transparency and accountability; and (v)
developing a national plan for capacity development to support the implementation of the
above.
59. Third, the aim of the programme is to help reaffirm the vision of decentralized and devolved
government and communicate this vision to all stakeholders from the level of the individual
citizen through to national government. It will work to build further the consensus of
stakeholders at national and sub-national levels of government and civil society for the
reconstruction agenda. Research and monitoring initiatives will gather detailed information
on the experiences and progress achieved to date; these will be fed back into the work of
refining policy and implementation activities in order to consolidate and strengthen the
reform process. Within this framework, the programme will support the development of the
NRB as a secretariat supporting the functioning of the National Implementation Body as a
forum for a national dialogue on devolution which includes MoF, MoPD, MoLG, and various
line ministries.
60. Gender mainstreaming is an integral part of the implementation strategy with gender equality
concerns being a central concern at all levels of policy and in all areas of implementation in
the devolution reforms. To this end all project activities will be subjected to gender analysis
and review through linkages established between the project and the Gender Support
Program of UNDP, and all elements of the programme, in particular related to output 2, will
have specific focus on the representation and participation of women.
61. Poverty reduction is also an integral element in the implementation strategy and UNDP
should ensure that the objective of poverty reduction is secured in its support to the
reconstruction agenda.
62. Prioritizing the above areas for UNDP support implies that the programme will not provide
support in a number of areas which are nevertheless very important for the devolution
reforms in Pakistan. These include: (i) The management of local elections. UNDP provides
support to the election commission, but additional support will not be provided specifically
for the management of local elections. However, it should be noted that the first dimension of
the first component suggested above implies significant focus on electoral systems. (ii) The
provincial and district training institutes. It is important that the training undertaking is
Page 24 of 43
anchored within the government’s own training institutions, albeit supported and facilitated
by other non-government training organisations possessing the capacity to improve and
strengthen the content and delivery of trainings. Experiences can be drawn from UNDP’s
support for DTCE and for the SDRB project. In particular the delivery of training to lower
levels of local government and to communities requires qualitative changes in the nature
trainings and the form and manner in which they are delivered (iii) The transparency of
government functioning will be an important area for strengthening other accountability
mechanisms, not least those based upon citizens. Information on the work of provincial
government, of the District Council, of the District Local Government Commission, of the
Provincial Local Finance Commission are examples of areas in which the provision of
information should be increased. Similarly the capacity of the local Urdu media to draw upon
and disseminate such information will also be important. At present this is not adequate and
should be improved.
63. As outlined above, UNDP will continue to provide support for policy formulation and, in
particular, policy implementation through NRB. As such, the main focus will continue to be
the capacity of this institution to function within the mandate provided while aiming to help
bring about broader ownership on the part of other agencies. However, as is noted above,
NRB should be considered a time- and context-specific institution. Therefore, depending on
GoP policy decisions, it might well be necessary in the longer term to support the
development of capacity within the MoLG to support the reconstruction agenda and the work
of the new system of local government as the country moves towards the end of 2009 and
beyond.
64. The relationship of the support to devolution to the Gender Support Project will be important
for securing gender mainstreaming in the project and also for the experience in working with
training and training institutions that the GSP has already accumulated.
65. The support to devolution should build upon the current phase of EIROP and seek to
incorporate the successes achieved within that project to date. The possibility for building
upon the work of the EIROP project should also be a consideration in the activities under the
new Support to Devolution and Good Governance project.
Capacity Development Strategies to Support Local Governance in Pakistan
66. The remainder of this chapter seeks to provide some suggestions for capacity development
strategies for the next phase of support for the implementation of devolution policy at
Provincial and local level. The section is divided in two components:
Capacity development for local governance (provincial and local level)
Knowledge management and practice development in support of devolution policy
(national level)
Provincial and Local Level
Page 25 of 43
67. As the analysis of current and past programmes above (see section on ‘UNDP support for
Institutional Reforms’) suggests, despite the previous projects being well designed in terms
of following the policies of the Local Government Plan and Ordinance, there still exist some
weaknesses that need to be addressed. As the evaluation of the EIROP pointed out,
classroom training is not sufficient in improving capacities of local governments to respond
to the needs of their constituents. In addition to individual capacity building of staff, it is
necessary to build up institutional and societal capacityTP
11PT. Also, inadequate attention was
given to disadvantaged groups as there was a limited focus on pro-poor services, nor was
there sufficient facilitation of participatory planning and stakeholder involvement during
project design. Below are some strategies drawn from experiences from different countries
that may provide some lessons for the next stage.
68. The EIROP evaluation points out that though a lot of emphasis is put on classroom training
and building up individual capacity of elected official and staff at the local government level,
unless specific strategies are undertaken to implement institutional capacity building
individuals are unable to implement what they have learned. Training may have improved
individuals’ awareness of their rights and duties, but they are unable to make any significant
impact once they return to their posts. There is often little follow up and despite building
individual capacity, the institutional set up prevents them from being able to exert influence
in local administration. More than just a one-off training session, it is beneficial to provide
continuous support as well as build up a process to promote citizen interaction and
participation. As the evaluation points out, the trainings should be more focused, for a longer
duration and more participatory. These experience can be compared to e.g. Bangladesh
where the Strengthening Local Governance Project builds on lessons learned from the
UNDP/UNCDF Sirajganj Local Governance Development Fund Project on developing capacity
for local governments:
o Training alone is not an answer to the need for capacity building and other
interventions were necessary
o Assumption that a single and unsustainable delivery of training over the course of
one term of elected office would impact significantly on the capacity of locally
elected bodies
o Inadequate understanding of how to address the wider gol of capacity building
and limited understanding of how to strengthen training delivery
o Failure to build on existing structures which might ensure continuity
o Excessive dependency on large number of external consultants
o No demonstrated ownership, financial or policy commitment
o Assumption that central government agencies would be willing and able to deliver
the training program
o No synergies established with NGOs or other training agencies
TP
11PT “Capacity is the ability of individuals, organizations and societies to perform functions, solve problems, and set and achieve
goals. Capacity development entails the sustainable creation, utilization and retention of that capacity, in order to reduce poverty, enhance self-reliance, and improve people's lives.” (HTUwww.undp.org/capacityUTH)
Page 26 of 43
o Lack of distinction between National Executing Agency and National
Implementing Agency – compromising project monitoring
o Absence of earlier intervention by UNDP – inadequate monitoring
69. Hence, cutting across the above, the programme will help redefine the national and
provincial level framework to develop the individual, organization and societal capacity. It
will particularly aim at assisting in developing approaches to reach out to the local
governments with longer-term support aimed at developing the organizational capacity and
functioning of the tiers of local government in their local contexts, and as such, offer an
alternative to capacity development through short trainings at district and provincial training
institutions. Also, it will assist in ensuring national and provincial leadership of the capacity
development activities with respect to their coverage, scope, methodologies, role and use of
training institutions etc. A central objective in the design and implementation of capacity
development activities should be to develop strong partnerships to continue the
implementation of the reconstruction agenda. Key institutions capable of strengthening local
government management and citizen participation in local government will be identified and
their activities in these areas strengthened. Whereas most of the support for capacity
development will be a provincial government responsibility, NRB can have a very important
function in devising a national framework for capacity development. However it would be
crucial that the flexibility to adapt based on the provincial and local contexts is maintained.
70. It is recommended that a Capacity Development Strategy is formulated for the provincial
level programmes which will have the following major components TP
12PT: The proposed CDS is
most easily described in terms of its:
i. a clear institutional framework (who does what);
ii. a demand-driven component build on the premise that it is the responsibility of the local
government to assess their ‘capacity gaps’, identify corresponding CD needs, and then
seek to meet those needs. This would require the following steps: (a) LGs will undertake
self-assessment of their CD needs; (b) following a self-assessment, each LG will then
design its own, simple, two-year CD plan specifying what and whose capacities are to be
strengthened. In order to stimulate LG “demand” for CD services, the programmes will
include the formulation of a local CD plan as a prerequisite for Lg inclusion in its
programme. Seen from an overall perspective, LG capacity development plans will
represent the sum total of “demand” for CD services;
iii. a supply-driven component. The CDS will not be entirely demand-driven. It should
include a core, mandatory component that will be delivered to LGs irrespective of
whether they have or have not identified such CD activities. This is to ensure that key LG
TP
12PT This proposal draws upon the design of the Capacity Development Strategy in Nepal developed with support from
UNDP and UNCDF. See e.g. Jakob Haugaard (2005) Capacity Development of Local Bodies in Nepal, working
paper, LENPA Forum on Capacity Development, April 25-28 2005 and Capacity Development Strategy – Proposals
(2nd Edited Draft).
Page 27 of 43
functions receive due attention – which may not be perceived as issues at the level of
individual LGs TP
13PT;
iv. a coordination system for matching demand for and supply of CD services;
v. quality control system for ensuring appropriate “systems and procedures” and training
curricula;
vi. financing modalities.
71. As emphasized above, to respond to the needs for capacity development, it would be crucial
that a delivery mechanism is established which allow the programme to reach out to the
village, union, tehsil and district levels to support capacity develop on a continuous basis.
Countries have addresses these challenges in various ways (see insert for examples)
Delivery Strategies for Capacity Development Support – Country Examples
In Nepal, the UNDP programme set-up has since many years consisted of an advisor and
project funded officers (covering e.g. planning and monitoring etc.) working as LG staff at
district level. At village level, 1000 units have had a social mobilizer who has been
responsible for both community empowerment/development as well as capacity development
of local bodies. It was agreed that a full-time advisor at district level was required in the
beginning but that it created dependency in the long run. Hence, advisors are increasing
placed in sub-regional hubs traveling to the districts as needed – a solution which also
enables the programme to have more specialized advisors covering e.g. LG finance,
infrastructure design etc. responding to demands of LGs with increasing levels of in-house
capacity. Danida’s programme (prior to the conflict) Capacity Building Support to Doti and
Surkhet Districts focuses on training at the Ward and Village level and had 10-20 locally
recruiting trainers for each district which could assist village in all aspects/stages of planning,
financing and implementation of local services, and help ensure participation of women and
disadvantaged groups. These trainings focused on facilitating the understanding of rules and
regulations as well as their responsibilities. Particular emphasis was placed on reaching out
to women and including women trainers. The programme also addressed the need for
community awareness campaigns, working with NGOs as well as promoting public audits.
In the Maldives – as a part of the Atoll Development Program, Maldives has sought to
improve capacity development at the individual, organizational and societal level. The
program focuses on incorporating community level perspectives in planning efforts at the
island level so that they can make decisions on overall community planning and not just
infrastructure development. While workshops and training programs are included in the
program, emphasis is also placed on the programs being locally owned and planned with
community participation.
National Level
TP
13PT the inclusion of a supply-driven CDS component is based on lessons learned internationally – see UNCDF (2003)
and UNCDF (2004) for discussions of local government capacity-building in Africa and Asia.
Page 28 of 43
72. “UNDP is the UN’s global development network, an organization advocating for change and
connecting countries to knowledge, experience and resources to help people build a better
life. We are on the ground in 166 countries, working with them on their own solutions to
global and national development challenges. As they develop HUlocal capacityUH, they draw on
the people of UNDP and our wide range of partners.” In accordance with the mission of
UNDP, it is important that the programme is able to contribute not only (financial) resources,
but also to connect NRB and other government and non-government counterparts to relevant
knowledge and experience from elsewhere and to provide technical expertise where needed
to facilitate this. It is acknowledged that the high level policy-makers in NRB have a strong
established knowledge network that enables them to draw on international experiences and
expertise when needed. It is also recognized that the devolution reforms Pakistan are very
much rooted in the specific political and development context present in Pakistan and as such
possess a strong ‘home-grown’ quality. At the same time they belong to a more general set of
development strategies found in different countries that stress the role of citizens in
governance, the importance of devolved local government, and the need for building
partnerships between government, civil society and the private sector. It is important that the
entire UNDP team with its accumulated knowledge and expertise in these fields contributes
toward these objectives in Pakistan. From the UNDP Pakistan perspective, this includes the
following major revisions in the way the programme works: (i) UNDP Pakistan needs to
ensure that the frontier of the ‘Community of Practice’ (CoP) goes beyond the UNDP
Country Office to incorporate staff deputed to NRB with entry points for the government
counterparts identified; and (ii) the current research position is expanded to a 3-4 member
knowledge management/research team in NRB.
73. In addition, a strong Community of Practice (CoP) should be established anchored in NRB
which will support the interaction between centre, provincial and local level in order to
analyse the experiences to date and identify the lessons these bring. UNDP will work in close
partnership with CIDA and the established network on devolution. Drawing on global
experience of UNDP in knowledge management, the support for establishing a national
Community of Practice (CoP) around key areas of national development/reform, including
decentralization (e.g. India) and support for national efforts to improve knowledge
management (e.g. Mongolia), UNDP will assist partners in developing the knowledge
management framework embedded in NRB which enable a national dialogue and analysis of
experiences.
Part 3 Management Arrangements
The mission is intended to provide a framework for discussion among UNDP and the national
counterparts in Pakistan of the future devolution process and UNDP assistance. As such, the
development of a project document is premature and the purpose of the mission was not to
develop a detailed programme design. As such, the following bullet-points are not intended to
constitute an outline of all aspect of programme management but merely highlight issues which
might merit consideration when the successor to the Support for Good Governance programme is
formulated.
Page 29 of 43
NRB has been the designated lead agency at federal for devolution reforms and has been
the implementing agency for the programme to date. Given the expected continued lead
role of the NRB until the end of 2009, it is recommended that NRB continues being the
implementing agency.
It is recommended that the National Implementation Body (NIB), be given a clear formal
role with respect to the programme. For example it could be appropriate to have the
Annual Work Plan (AWP) and annual budget placed before the NIB to receive its
agreement.
In order to allow sufficient flexibility in the implementation of the programme, it should be
considered to develop the AWP with a full budget allocation for the first 6 months of the
year and a 70% allocation for the second 6 months. This would allow for revision and
development of the AWP to meet needs arising during the first period. The six monthly
revision of plan should be staggered to meet the budgetary process at the national level.
The specific work plan for aligning the AWP process with the budgetary process should be
developed by the NRB.
There is a need for UNDP to take a lead in developing a donor group around devolution
with stronger ability to coordinate and achieve synergies across the different interventions.
Such a group should also seek to promote and secure the national ownership of the
devolution reform process. Government representation should be considered in order to
promote greater donor-government coordination towards these ends.
A joint Government-UNDP mid-term review of the programme might be a useful means of
ensuring that lessons learned from the first phase are adequately reflected in the second,
and to guarantee that the partners have a common understanding of achievement and future
direction.
The possibility of securing a greater degree of involvement form the main donors in the
continuing development and implementation of the programme also needs to be explored.
An institutional mechanism through which the AWP and budget would be presented to the
donor group for comment and advice might be one such means.
Page 30 of 43
Annex 1 - Draft Project Results and Resources Framework – Policy Support to Devolution and Good
Governance
UNDP Goal and Service Line Fostering democratic governance/decentralization, local governance and urban/rural development (Service Line 2.6)
Intended Outcome as stated in the Country Results Framework
Local authorities and communities in rural and urban areas enabled and involved in planning and management of development activities, including the provision public services (UNDP CP 2004-8)
Note: this CP Outcome does not fully capture the support for the policy/legal/regulatory framework for devolution which is mentioned in the narrative of the CP and the focus on national ownership, consensus and dialogue on devolution policy recommended by the mission (should the mission make recommendations for a revision or a second CP outcome related to policy/legal/regulatory framework for devolution?)
Outcome Indicators as stated in the Country Programme Results and Resources Framework, including baseline and target CP Outcome Indicators do not fully capture the support recommended provided (should the mission recommend revised outcome ind icators?)
Partnership strategy: NRB as the principal counterpart for the Support to Devolution and Good Governance
DTCE provides support for implementing and the UNDP programme for support to DTCE will be a partner in developing the national policy/legal framework for CCBs. Also, senior technical staff from DTCE will be involved in support for devolution policy;
The partnership between the Gender Support Programme and the programmes supporting devolution will be continued (e.g. for training of women political leaders and participation of women in local
governance). Gender specialists from GSP will be involved in the design and implementation of all major activities of the programme and complement/back-stop gender and other specialists working under the programme;
A partnership with UNDP poverty reduction and sectoral programmes will be established to ensure that all UNDP support is supportive of devolution;
Partnerships will be developed with the UNDP crisis prevention programmes, in particular to integrate support with respect to local Disaster Risk Reduction. DSP is potentially an important partner particularly with its work on fiscal decentralization. Building a functioning partnership with the different levels of DSP’s project implementation structure will promote
important synergies in support of the reform process.;
CIDA will be an important partner through its work in support of devolution (C-DSP) and in particular its experience of developing training capacities with government training institutes. SDC?;
LG training institutes at provincial level will be important partners in a strategy for sustainable capacity development – both in terms of their capacities and of those they train ;
NGOs will continue to be important partners , in particular for output 2 with their innovative approaches to the delivery of trainings and the development of the required materials and resources. Provincial governments will be important partners as those with primary responsibility for local government
Project name and number: Policy Support to Devolution and Good Governance
Project Outputs Output Indicators and Targets Indicative Activities Input
OUTPUT 1
NRB enabled to formulate and implement
devolution reforms identified in 2005 policy
review and strategy in an effective,
1.1 Policy recommendations provided and implementation of effective forms supporting
in the areas of: (i) establishment of sub-provincial civil service; (ii) Federal to Provincial devolution; (iii) fiscal devolution; and (iv) provincial administrative
xx
Page 31 of 43
Project Outputs Output Indicators and Targets Indicative Activities Input participatory, pro-poor and gender
sensitive manner
Need to build on EIROP experience and
work at the provincial level
restructuring
1.2 Policy recommendations provided for reform of Federal, Provincial and local
government training institutes, including coordination, curriculum and delivery modalities [support for implementation to be supported through other programmes]
1.3 Local Government Commissions and Provincial Finance Commissions supported to
effectively function as intended with the LGO (2001/5) 1.4 Additional areas of reforms identified by the Government of Pakistan supported as
agreed with subsequent programme plans
OUTPUT 2
NRB enabled to support implementation of
local governance provisions intended to
strengthen citizen accountability through
representation in local governance
institutions, direct participation of citizens,
CBOs and CSOs in local governance and
access to mechanisms for recourse
2.1 Analysis conducted, broad-based policy discussions facilitated and relevant
recommendations for policy changes made focusing especially on (i) the
consequences for accountability of formally non party-based local governments in a context of de facto strong political parties influence and of indirect elections of
District and Tehsil Nazims; (ii) representation of, and accountability towards,
women (including as an outcome of the 2005 reduction of women members in the councils); (iii) representation of, and accountability of local governments towards,
minorities and workers/peasants (including as an outcome of the 2005 shift to a
single electoral roll); and (iv) the formation of Village/Neighbourhood Councils as intended with chapter IX of the LGO (2001/5)
2.2 Support PGs in effectively supporting and monitoring the implementation of all
provisions of the LGO (2001/5) intended to strengthen direct participation in local governance with special focus on participation on women, minorities, and
workers/peasants and the most disadvantaged, including in particular participation
in planning and budgeting beyond the allocation for CCBs; development of the CCB
modality in districts not covered by DTCE; local management committees (school,
health, public safety etc.); and monitoring/auditing of service delivery performance
and audit of expenditure accounts Not NRBs responsibility - PGs 2.3 NRB effectively supporting and monitoring the implementation of all provisions of
the LGO (2001/5) in order to strengthen mechanisms providing citizens access to
recourse and ensure that formal and informal justice systems (including traditional and indigenous institutions such as the shuras and Musalihat Anjuman) function in
accordance with basic human rights principles.
2.4 Feasibility of introducing a system of ‘safe guards’ (minimum conditions) and performance incentives for institutional functioning in local government financing
to link funding with compliance with legal requirements, in particular with respect
to provisions to ensure participation, transparency and accountability (particularly) in areas of planning, budgeting, expenditures and achievements
2.5 National plan formulated for capacity development to strengthen citizen
accountability in local governance enabling local training institutions and NGOs ?
partners to deliver support in an effective and coordinated manner Needs specific
ideas
xx
OUTPUT 3
Support provided for NRB to facilitate a
consultative process involving key
stakeholders including government, civil
society and donor representatives in
3.1 NRB Secretariat effectively functioning to support the National Implementation
Body (NIB) for devolution and an agenda for coordinating policies across
education, health, local government, planning, public employment and welfare structures and systems developed and approved
xx
Page 32 of 43
Project Outputs Output Indicators and Targets Indicative Activities Input order to reaffirm and strengthen the
commitment to the agenda of national
reconstruction and draw upon lessons
learned from the devolution reforms to
date
3.2 Stakeholders at Federal, Provincial and District levels involved in consultative
process to assess previous and ongoing reconstruction initiatives with strong
knowledge management system to support sensitively – redesign maybe – stock taking
3.3 NRB enabled to access and analyse international knowledge and experience in order
to improve design of devolution reforms 3.4 Revision on-going reconstruction initiatives undertaken where found necessary in
consultations with stakeholders and Federal, Provincial and District levels, and new
initiatives finalized and approved where necessary 3.5 Public campaign developed to ddisseminate the vision of the reconstruction agenda
and the achievements to date to all levels and sections of society
Page 34 of 43
ANNEX 2 - INTERNATIONAL COOPERATION SUPPORT TO
DEVOLUTION AND LOCAL GOVERNANCE IN PAKISTAN (2005)
Below is a detailed description of bi-lateral and multi-lateral projects supported by donors in the
fields of devolution and local governance listed by the following sub-sectors:
(1) Policy Support, (2) Fiscal Decentralization & Financial Management, (3) Judicial/Legal
reform, (4) Civil Service Reform, (5) Local Government Training & Capacity building, (6)
Community Participation & Citizen Representation, (7) Other related programs.
SECTORS
DONORS
AMOUNT / STATUS
SCOPE / FOCUS
POLICY SUPPORT
Support to Good
Governance Group -G3
-UNDP
-Friedrich Nauman
Foundation (Germany)
-Asia Foundation
US$ 1.8 m. / ?
Federal - NRB
Policy Formulation
Social communication
Consultation
Support to Local
Ordinance Drafting
DFID L. 50,000
Support to Media and
Governance Cell - NRB
CIDA
C $ 100,000 / June 2005
Involvement of media in
creating awareness about
Devolution plan. Supporting Democratic
Electoral Process project
UNDP
NORAD
DFID
CIDA
Consortium of NGOs
DFID
DFID/SDC/EU
US $ 3.32 m.
US $ 1.33 m.
US $ 1.71 m.
US $ 32,000
L. 120,000
/ Status: CLOSED
$ 0.58m
Electoral Commission of
Pakistan
- Modernization of
operations
-Electoral management
-Voter Education
Campaign for women
thru NGO
-Training of ECP and
election staff
Research for Local
elections (Pattan): pre and
post LG election 2001
Analysis of LGE 2005
Parliament support
UNDP
US $ 500,000
Parliamentarians:
-policy analysis
-constituent relations
-Parliament secretariat Strengthening Geo
information and Digital
Mapping Capacity of
Survey of Pakistan
UNDP
US $ 415,476
Survey Training Institute
-Geo Information managt
-Spatialized socio-eco
data
Page 35 of 43
Supporting Government
Restructuring and
Reform
ADB US $ 150,000 NRB – 2001-02
Reinventing Govt.,
Intergovt. restructuring
Support to
Constitutional Reform
Options
DFID US $ 400,000 Support to NRB on
constitutional reforms
options FISCAL
DECENTRALIZAT.
& FINANCIAL
MANGT.
TA. Fiscal
decentralization
(2001-02)
ADB
DFID
US $ 1.8 M.
(Co-financed with DFID
for US $ 500,000)
-Manuals (5): Budget,
revenue mobilization,
auditing, accounting,
Fiscal transfers.
-Design of systems,
regulations, procedures
-Training to core district
staff (Nazims & N.
Nazims) 97 districts
Support to 2002 Financial
year’s budget Devolution and Fiscal
Federalism in Pakistan
CIDA (consultancy)
F. Vaillancourt
US $ 32,000 / Closed
Federal- NRB
-Fed-Prov. Fiscal
relations
-Local gvt finance
Punjab Public Sector
Resource Management
Program
ADB US $ 100 M.
Punjab 2002-03 (3yrs)
Public sector
restructuring, civil service
reform, tax/revenue
administration,
budget/expenditure
planning and mngt,
private sector deregulat.
Sindh Public investment
Management program
ADB US $ 50 M.
Sindh 2003 (3 yrs)
Restructuring of public
assets, province liabilities
re: project investments,
province-local govt
relations
Devolution Support
Program
ADB US $ 300 M.
Loan + TA Loan/Grant
(2002, 3 years)
4 Provinces (FY 2002)
- Decentralized planning
& finance
- LG Public access and
accountability (revenue,
expenditure, audit)
- Prov./LG support to
civil soc. & private sector
- C.B. to LG councils
&administrations
- Province support and
supervision of LG
- budget support for
poverty/gender in service
delivery
Page 36 of 43
Financial Management World Bank Technical mission
(Jan. 2002)
?
Budget & Accountability
Frameworks LEGAL & JUDICIAL
REFORM
UNDP
?
Information Technology
for governance Legal and Judicial
Reform (T.A.)
2001-02
ADB
US $ 2.7 (MOL)
Federal
-Support to the legal and
judicial Reform
-Access to justice under
the Local gvt. Plan
- Delay reduction, legal
education, IT solutions,
judicial sector
incentive/sanction/perfor
mance systems.
Legal aspects of
Devolution
2001-02
ADB US $ 150,000 (MoL) Review of Legal, Admin.
And Budgetary
implications of
devolution (including
change in executive
magistracy) for
subordinate courts and
public access to justice. Access to Justice
Program
2001-04
ADB
US $ 350 m. (MoL)
Access to Justice
-Judicial Training and
publications
-Police and administrative
Training and publications
- Legal empowerment,
citizen engagement, in
planning/monitoring of
services, Public
Knowledge and Legal
Literacy. Access to Justice of
Women in Karachi
(CIET)
CIDA (CIET)
US $ 32 000
Research study into
problems faced by
women. Institutional
strengthening of the
judicial system
ASIA FOUNDATION
US $ 1 m. ?
Design of ADB Access to
Justice Project
Ministry of Parallel: Law
& Justice
Gender Reform
(T.A.)
2002
ADB US $ 400,000 (MoWD) Policy and Legal reform,
Institution restructuring
(fed, prov, local govt),
mainstreaming gender in
plan/budget/expenditure
process, empowerment of
women elected
Page 37 of 43
representatives CIVIL SERVICE
REFORM
WORLD BANK
US$ 500,000
Loan
-Administrative
restructuring at fed, prov
and dist. levels
-Transition costs
-Bridging mechanisms
Public Sector Capacity
Building Project.
sStarted in July 2004
US$55m over five years
Objectives are to support
GoP's capacity to
implement its ongoing
economic reform program
and with three distinct
capacity building
objectives; broad-based
professional development
of public sector officers;
capacity enhancement in
key ministries and
agencies that are at the
forefront of the design,
implementation and
monitoring of policy
reforms, and;
strengthening of
regulatory agencies. LOCAL
GOVERNMENT
TRAINING &
CAPACITY BUILD.
Community
Infrastructure project
WORLD BANK, SDC
(Phase I only)
US $ 3.3. M.
NWFP - Ministry of
Local Government Water and Sanitation
Program - South Asia
WORLD BANK, SDC
(Technical Assistance)
-Design and testing of
Conceptual Framework of
Tehsil Municipal
Administration (TMA)
-Development of Outline
Operational Frameworks
for Spatial Planning,
Infrastructure and
Services, and Finance
-Development of
Infrastructure and
Services manual and
systems
-Training on preparation
of Tehsil Transition
Reports
-Development of concept
for Capacity Building of
local governments with
built in fiscal incentives
Page 38 of 43
Essential Institutional
Reform program
(EIROP)
UNDP
SDC
US $ 1.6 m.
US $ 2.9 m.
NWFP -
-Policy Planning
Techniques
- Project management
-Governance workshops
-Statistics/econometrics
-District Citizen Info
Centers Devolution Support
Program (C-DSP)
CIDA
CAN $ 6 M.
Punjab province
- Support to local
government (institutions,
administration, policies)
- Institutionalization of
Participatory planning
and management
- Delivery of effective
municipal services
Punjab Initiatives Fund CIDA C$ 2m Responsive fund for
innovations. Support to Punjab
Department of Finance
and District
Governments
DFID
US $L. 86,000
Training for Performance
Budgeting
Punjab
Trial District
Management Project
UNDP
US $ 1.3 m.
Balochistan (2 districts)
-Provincial policy reform
-Participatory techniques
-Community Participation
(social services)
-Effective linkages betw.
local gvt., line agencies
and communities
District profile Multi-Donor Support Unit ? (Pipeline) Brief District Profiles
(97) on Education, Health
and Population for
preparing District Dev.
Plans.
District-based social
indicators survey
UNICEF
Federal + Provincial
Bureau of Statistics
US $ 250,000 NWFP – 24 districts
(District Profiles)
CIVIL SOCIETY /
COMMUNITY
PARTICIPATION /
CITIZEN
REPRESENTATION
Communication for
Effective Social Service
Delivery ( CESSD)
CIDA
CAN $ 5 m.
2000-2006
NWFP
Social services delivery
in the devolution process
Institution Strengthening
for Government-NGO
ADB
US $ 400,000 Institution/Capacity
Building of fed., prov.
Page 39 of 43
Cooperation Agencies, selected NGOs,
legal and regulatory
reforms, facilitation of
NGO advocacy, social
audit and service delivery
role in devolution
process. Gender Equality
Umbrella project: - Women Councillors
Convention
- Consultation on
women’s Political
Participation
- Women’s political
Participation and
poverty Alleviation
(W3P)
- Women’s
Representation in Local
Government
- Mobilizing Women for
the Local Bodies
election
UNDP
DFID
NORAD
NORAD
CIDA (Aurat Foundation)
CIDA (Sarsabz
Foundation)
US $ 92,768
US $ 952,105
US $ 143,237
US $ U 3 mU
CAN $ 94,360
CAN $ 58,614
Education and
Mobilization of women
candidates and voters
All districts
- Focus: Women’s
District Councillors
Awareness raising at
community level all over
Pakistan
Faisalabad (union
councils): Training to
Women councillors
Democratic Rights and
Citizen Education
Programme
Legislative Watch
ASIA FOUNDATION
NORAD (Aurat)
US $ ?
USD 571,514
106 Districts
Newsletter for all over
Pakistan Effective Representation
of Women Councillors
CIDA (Aurat Foundation)
CAN $ 2 m.
2002 to 2005
-Provincial and District
resource Centers
Women’s
Representation in Local
Government Elections
Aurat Foundation
Duration:2005-2006
CIDA Contribution:
$2.4 million
This project addresses a
critical gender equality
need related to the 2005
local government
elections by incorporating
multiple approaches to
mobilize and support
women candidates for the
elections
Support to Gender and Duration:2005-2007 This project supports
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Governance Reform
Implementation
CIDA/ADB CIDA Contribution:
$4.5 million
broad gender
mainstreaming reforms in
the federal and four
provincial governments
of Pakistan.
Gender Responsive
Budgeting Initiative
(GRBI)
UNDP, SDC, Norway The overall goal is to
make government
accountable for their
gender budgetary and
policy commitments CIET: Phase 1: Community
Monitoring of Public
services
Phase 2: Citizen
Community Boards:
Local Tools for
Governance and
Community Monitoring
in Pakistan
Phase 3:
UNESCO-UNDP (CIET)
CIDA (CIET)
SDC/UNDP, CIDA
Closed
CAN $ 1.2 m.
-10 districts
-NRB
- Baseline indicators of
performance of key
public services: water,
education, water, police
courts, devolution.
-Remaining 87 districts
-NRB
Second round of National
Social Audit.
Devolution Trust for
Community
Empowerment (DTCE)
UNDP
NRB
CIDA
NORAD
US $ 2 m.
CAN $ 800,000
(3 years)
97 Districts -
Financing of Union /
Village councils and
CCBs originated projects
(cost-sharing with LGs,
training & C.B. activities
with NGOs)
Supporting Democratic
Development in
Pakistan - Asia
Foundation
USAID State Department US $ 1.4 M Coalition building within
civil society
Public consensus
Grassroots Democracy
Strengthening Pilot
programme
SDC $ .16m Increasing female
representation, building
three model UCs and
establishing Peoples’
Assemblies in Haripur
District NWFP
OTHER RELATED
PROGRAMS
Support to the Health
Sector Reform and
Research Unit
DFID L. 50,000 Implementation of
Devolution
NWFP
Support to NWFP
Department of Health
DFID L. 50,000 Health Planning and
Budgeting
Page 41 of 43
Decentralized School
Management
ADB $ US 100 M.
2002 (3 years)
Provision of district funds
to support local govt &
school initiatives for
infrastructure and
improved services
Decentralized Social
Services Program
ADB US $ 150 M.
2003 (3 years)
Support for district
improvements in social
sector governance,
institution building,
performance & service
delivery
incentives/sanction
systems
Systems Oriented Health
Institution Project
CIDA Duration: 2004-2010
CIDA Contribution:
$12.0 million
To improve quality and
delivery of primary health
care, especially for
women and the poor.
Through implementation
of decentralized health
services by federal,
provincial and district
level governments in
collaboration with civil
society, and in
accordance with the new
National Health Policy.
Page 42 of 43
SUPPORT TO Local Government Elections 2005 THRU CSO & GOP INSTITUTIONS
Donor Impl.
Partner Objective(s) Duration Amount Status US State Dept NDI Candidate Training 9 months $390,000 geographic area start & end date IFES Voter Education 12 months $400,000 geographic area start & end date
DFID NDI building local political parties Nov 04 - May 06 £350,000 pilot in Punjab
SDEPP II ECP capacity building & voter Jul 04 - Dec 07 $ 3.645 M on going:
education with UNDP
PATTAN Pre- during and post election 9 months negotiation under negotiation
research study - with SDC
expected feb-Nov 05
Norway No direct intervention to specifically support on LGE 2005 but our on going projects with Aurat foundation I.e Legislative Watch, UNDP -
Women Political School & Shirkat gah women legal status will be touching it in their respective projects
EC Centre for Civic
Media for democracy and 12 months 93,812 about to start
Micro Education governance. One of the euros geographic area
projects in activities will be the monitoring
Page 43 of 43
human rights
of local elections by the media
and democracy
Khwendo Kor
Support to democratisation and
12 months 89,438 about to start
the electoral process, focusing euros geographic area
on training of women councillors
BEFARe Female councillors political 12 months 99,355 about to start
training and integrated life skills euros geographic area
project. Also focusing on
training of women councillors