Berkeley Journal of Social Science

Vol.2, Issue 6-7, June-July 2012

Political and Administrative Structure of Local Bodies in Pakistan

A Case Study of City District Government Faisalabad
Saadia Saleem
Mughees Ahmed
Abstract
Pakistan has a poor data of democracy as for more than half
of its years of existence after independence. It has been governed by
the military. While the Military governments always created faults
with the politicians. It was the basic reason; the Military
Government always shaped the Local Government systems as per
their own desires to prolong their regimes. Pakistan had experienced
with two systems of Local Government before the present
Devolution Plan. Historical, analytical and comparative approach is
adopted in this discourse. Here an attempt is made to present a
general view of such elements which resist change in local bodies
system.

Key Words: Nazim, Naib Nazim, Tehsil, Zila

Contextual Analysis:
Local institutions means sub units at the public level to which the government gives some
authorities so that, they may be able to solve the local problems with the local resources.1

Local Bodies are a system of Government which provides the facilities to the people in specific
areas but in Pakistan it is still in experimental stage.2Laski says, we cannot realize the full
benefit of democratic government unless we begin by the admission that all problems are not
central problems and that the results of problems not central; in their incidence require decision
at the place and by the persons where and by whom the incidence is most deeply felt.3

Historical Notes:

The history of Local Government elections inside Pakistan was started from the regime
of General Ayub Khan (1959-1969). In 1959, he issued an Ordinance through which non-party
Local Government Basic Democracy elections were held. Basic Democracies introduced

M.Phil. Scholar, Department of Pakistan Studies Government College University, Faisalabad.

Chairman, Department of Political Science & International Relations.

1
Ahmed,Mughees Local-Bodies or Local -Biradari System: An Analysis of Role of Biradari in Local Bodies System in Punjab.,
Vol. XXX, No. 1, ISSAN 10127682, (Jan-June 2009), NIHCR. Islamabad, P. 81
2
Azam, Muhammad Chauhdary, (2005). Local Governments: Abdullah Brothers, Lahore; p.70.
3
Muhammad Asif Malik, Local Self Government in Pakistan, Lahore; Publishers, Emporium, 2006, p .16.

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the Local Government system in Pakistan but Basic Democracy system was destined to become
less a means of local representation and more an arm of the bureaucracy.4
At the lower level the Local Government is a drill of democracy, and is the source of political
education. In developing countries like Pakistan these institutions represent the powers of Local
groups. Zia-ul-Haq, after coming into power, reviewed the system of Local Government and
established this system on strong footings, which progressed step by step. 5 Local Government
Ordinance (2001), Devolution Plan set up the National Reconstruction Bureau as a think tank. Its
mission was to establish the real democracy in the country with the help of reconstructing the
institutions of state.

District Government, Town Councils, Union Councils, Village Councils and Citizen
Community Boards wereplanned by the National Reconstruction Bureau. The District Assembly,
the Nazim, the District Administration, the District Police, District Public Safety and Justice
Committee formed the District. Chairmen of all Union councils in a District formed the District
Assemble.6

City District Government, Faisalabad

Structural Analysis
Devolution Power Plan was presented by Pervez MusharrafIn 2000. This was the policy for the
reconstruction of Local Government. It was a plan to transfer the Devolution of Power and

4
Mahmood, Safdar,( 2000). Pakistan: Political Roots and Development 1947-1999. Oxford University Press; p. 79.

5
Jalal, Ayesha, (1995). Democracy & Authoritarianism in Pakistan: A comparative and historical perspective. Lahore: Sang-e-
Meel; p. 99.
Callard,K.(1975).Pakistan: A Political Study. London: George Allen and Unwin; p.70.
Talbot, I. (1998). Pakistan, A Modern History. New York: St. Martins Press; p.10.

6
Rizvi S A (1976). Changing Patterns of Local Govt. in Pakistan, A study in clashof ideas. IST Ed. Ideal Packages,
Karachi; pp. 28,38, .andSiddiqui, K. (1992). Local Government in South Asia, Dhaka: University Press Limited; p.
67.

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Berkeley Journal of Social Science
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Responsibility to the grass root level. The basic principle of the Devolution Plan was that Local
Government would function clearly within the provincial framework.7
For the strong Local Government system, the Provincial Local Government
Ordinance, 2001 was included for the period of six month in the Sixth schedule of the
Constitution. This ordinance can be amended by the president after discussion with the Prime
Minister. Though the Devolution of Power & Responsibility and decentralization of authority
was permanent development and convincing improvement in the delivery of services at the
District level, would increase the image and efficiency of governments at the grassroots level
.Because it was a important element of a good governance to provide a justice at the doorstep.
The Local Government was based on five ground rules:
Devolution of political power

Decentralization of administrative authority

Deconcentration of management functions,

Diffusion of the power authority nexus and

Distribution of sources.

This plan gave the guarantee of the rights of the people and their participation in the community
welfare.
Provincial Local Government Ordinance, 2001 provided the framework for the Local
Government in Faisalabad. This Local Government system introduced democracy at the grass-
root level to serve as the foundation on which we could build the genuine democracy. Due to
which power was given to the peoples representatives at all levels. The administrative setup was
connected with responsibilities. These clear responsibilities provided protection against political
interference. The administration worked under the elected head of the District because the
effective check and balances was an integral part of the Local Government plan. Till the

7
Rafi Khan S (2004). Pakistan under Musharraf (1999-2002)Economic reformand Political Change, Vanguard
Islamabad; p. 19.

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Berkeley Journal of Social Science
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beginning of existing legal changes, the Constitution of Pakistan did not distinguish Local
Government as separate tier of Government with their own powers and functions.8
This Local Government was shaped particularly to fulfill the requirements of the Districts. Local
Governments was formed at three levels: District, Town and the Union. District government was
consists of District (Zila) Nazim and District Naib Nazim, an elected body and its administrative
structures. For the more active participation of the people in community development a grass
roots organizations were established such as Village Councils / Neighborhood Councils and
Citizen Community Boards.
The overview of the distribution of basic structure of the set up of District
Government is given in the below diagram.

1st tier District

2nd tier Tehsil Tehsil

3rd tier Union Union Union Union

Council Council Council Council

Village Village Village Village

Source: National Reconstruction Bureau, 2001 Figure: I

The present Local Government system was introduced in 2001, for developing the
democracy for strong supremacy and another objective was to transfer of power to the
representative of people. For this purpose National Reconstruction Bureau (NRB) was

8
Local Government Plan, 200, National Reconstruction Bureau, Government of Pakistan.

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established on 18 November, 1999. This Bureau was working on restoration of institutions that
were shaped under the Local Government system. 9
The Devolution Programmed in Pakistan was established in five phases. During these
phases elections were started from the smaller Districts towards the larger Cities and Districts. It
was believed that each phase would improve the implementation of every coming phase.
In the first phase the elections were held on 31st December, 2000 in the eight District of
Punjab, Three District of Sindh and four District of K.P.K.and three District of Baluchistan. In
the second phase the Local Bodies elections were held on 21st March, 2001 in the nine District
of Punjab, five District of Sindh, five District of K.P.K. and one District of Baluchistan. In the
third phase the Local Bodies elections were held on 31st May, 2001 in District of Punjab
included Faisalabad District, two District of Sindh , one District of K.P.K. and five District of
Baluchistan. In the fourth phase the Local Bodies elections were held in July 2001in the District
of four Provinces and in fifth phase this elections were held in December 2001 in all provinces.10
The election in Faisalabad Division was held in third phase of the Local Body
elections. Elections for the Union Councils were held on 31st May 2001, and for the District
Government were held on 2nd and 8th August 2001. This election was conducted by the Chief
Election Commissioner in pursuance of the Local Government Elections Order, 2000. President
appointed him under Article 213 of the constitution of Pakistan. The blue print of Local
Government was announced by the Chief Executive of Pakistan on 23 rd March, 2000, and final
plan was announced on 14th August, 2001.
In Faisalabad the elections of District Council was held on 8th August 2001. Local Government
structure was to be put in place by 14th August 2001.This period post 14th August is called
Transition Phase. This phase was for the proper transfer of power in the newly established
District Government in Faisalabad.11
The transition process was important in ensuring the success of Devolution from the
existing system to the New Local Government system. This phase needed the careful planning

9
National Reconstruction Bureau, 2001.
10
Khan S R (2004). Pakistan under Musharraf (1999 2002). Economic reform and political Change. IST Ed. Vanguard Book:
Islamabad; p. 12.
11
Sindh/ Balochistan/North West Frontier/Punjab Local Government Ordinance 2001.

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and better approach to implementation. The Provincial Governments established transition teams
at the Faisalabad City at District level to ensure a smooth and trouble free operation.
The National Reconstruction Bureau (NRB) provided an initial set of transitional guidelines to
Faisalabad Governments on February 22nd, 2001. But dueto changes in the law and a number
ofdevelopment processestaking place, another transitional guideline was releasedon 14th June,
2001.12
The transition phase preparations completed on 11th March, 2001 when the NRB gave
presentations to the Faisalabad Transition Teams. This included guidelines for collecting data
through the National Reconstruction Information Management System (NARIM) data collection
forms. These guidelines for the District Transition Reports were given on 15 June, 2001. For
Faisalabad District Rs.47.5 million were approved for the transition process. This amount was
broken up and Rs.45, 000 was given to each Union Council and Rs. 10.5 million was given to the
District.
The key objectives of the transition process were:
Ensured continuity of services during the transition phase

Ensured that staff, facilities and logistics were identified

Access funds for the transition period which was provided by the Federal Devolution Fund

Ensured that the transition should be take place at a minimum cost.

Ensured the improvement of services during the transition phase.

According to this plan the distribution of functions of the District Government is

given in the table:
Responsibilities of District Government

Responsibilities District Government

Education Primary &Secondary Education, Literacy

12
Niazi, M. A. ( 1994) . Local Bodies; the history, The Daily News on Friday, 30th September.

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Berkeley Journal of Social Science
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Health Dispensaries & Local Hospitals

Roads District Roads
Water Water Supply System
Sewers & Sanitation Yes
Fire Services Yes
Parks & Playgrounds Yes
Animals Slaughterhouses, Fairs
Cultural & Sports Services Fairs, Cultural Events

Street Services Street Lighting, Signals

Source: National Reconstruction Bureau,2001Table: 1

Key: Yes = responsibility of City Districts

3.1. Political structure & system

Since August 2001 it had been a period of transition as well consolidation. The Local
Government representative and elected Nazims relationship with MNAs/MPAs was very
difficult one. Much heartburn was created due to this new political structure. The Local
Government ordinance, 2001 had developed political power and decentralized administrative and
financial authority for good governance and effective delivery of services through
institutionalized participation of the people at grassroots level.13

13
Cheema A, Khaja I A and Qadir A (2004). Decentralization in Pakistan: Context, Content and Causes. Kennedy School
Working Paper Number: RWP05-034.

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Political Decentralization Indicators:

Indicators Sector Macro( Local)

Political Importance of elected Multi-part Local Government
Decentralization bodies in sector policy elections
formulation
Elected Local Governments
Importance of elected
Secret ballot in Local elections
bodies in sector service
delivery Impartiality of the Judiciary

Importance of elected Elections held at regular intervals

bodies in decisions
Election free and fair
about levels of sector
funding

Source: Charlton, Jackie et al., 2002 Table: 2

The dominating ideology in a society played an important role to understand the structure of the
political system at national as well as Local level. Local Body system had linked with Local
biradaries. This relation played an important role during general elections and influenced the
result at Local level.
Andrew Wilders opinion on Local Bodies and its role:
The 1985 National and Provincial Assemblies elections demonstrated that
Local Body politics had become the entry point into Provincial and National
politics. According to one press account 124 of the 240 members elected to the
Punjab Provincial Assembly were sitting members of Local Body. It meant that
Provincial and National politics began to resemble Local Body politics.
Patronage politics became the order of the day, and representing personal and
constituent interests became much more important for legislators than

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representing national interests and this put the PPP, which had not actively
participated in Local Body politics, at a severe disadvantage.14
The social system of Faisalabad was dominant by caste system. Local identities and local issues
were the part of the politics of Faisalabad. Their political loyalties were attached with their
family and biradari. In Faisalabad political parties except Muslim League (N&Q)had not been
taking interest in Local Bodies election but they take part in the election of of 2002 in forms of
group with different names. Millat Party ( Sher Dad Group), Jamat Islami ( Ihtsaab group),
PML-N ( Quaid-i-Azam group), Pakistan Awami Tehreek( Awami group) , PML- HK
(Istehkam-e- Pakistan group) , Tehreek Insaf ( Insaf group) and more than 80% male and
female candidates were directly attached with political parties their loyalties was related with
their political parties. In Faisalabad these Local Groups became active and participated as a
representative of political parties during general elections of 2001.
Results of the Elected Representatives for Faisalabad District
Place Nazim Naib Nazim Votes
Faisalabad District Ch. Zahid Nazir Muhammad Afzal Sahi 2596

Faisalabad City Mumtaz Ahmad Cheema Muhammad Ilyas Ansari 797

Town Samundari Rana Farooq Saeed Abdul Hameed 255
Town Tandlian Wala Ali Gohar Shamsher Haider Watoo 223
Town Jhumra Fawad Ahmad Cheema Tariq Mehmood 152
Town Jaranwala Major(R)Abdul Rehman Rana Rai Nasir Hussain 350
Tehsil Sadar Misbah-ud-Din Zagham Dr. Yasin 466
Source: Dawn, August 2, 2005 Table: 3

In August 2002, the District Government of Faisalabad was consists of District Nazim, District
Naib Nazim, and the District Administration. The Naib District Nazim was the speaker of the
District Council and the District Nazim was notthe member of the Council. The Provincial
Government interfered in the elections of District Nazims because the seats of Nazim were
distributed between the major biradaries and these biradaries were in the majority in the District .
So this biradari system had a major say in the political arena of Faisalabad.

14
Wilder, A. R.(1999). The Pakistani Voter: Electoral Politics and Voting Behavior in the Punjab. Karachi: Oxford
University Press; p.133.

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The basic part of the Local Government political system and structure formed
by the election at Union level. At that level the election were held directly. The
direct elections in a Union not only shaped the Union Council but also directly
elected District Nazims and Naib Union Nazims.15

Total number of town wise elected seats in city District Government Faisalabad

S# Name of the Town No. of Union Total No. of Total No. Of Councilors of
Councils in the Elected Councilors in all Union Councils in the
Town each Union Council Town
1 Chak Jumera Town 15 13 195

2 Jarranwala Town 57 13 741

3 Tandianwala Town 28 13 364

4 Sumundri Town 28 13 364

5 Madina Town 41 13 533
6 Iqbal Town 43 13 559

7 Jinnah Town 39 13 507

8 Lyallpur Town 38 13 494

Total 289 13 3757
Source: National Reconstruction BureauTable: 4

The District Nazim and Naib Nazim elected as joint candidates through the vote of Nazim and
Naib Nazim of all Union Councils of a District. There was seats reserved for 5% for Peasants/
labourers, 33% for women and 5% for minority candidates.
In fact the Decentralization process was based on the concept of contributory. The
goal of the system was that the actual problems of the people would be solved at their doorstep
and this thing would improve the quality of governance. Although the Local government brought
the significant change in the performance of elected representative because the local councils

15
Ahmad Sultan, ( 1997), Public Administration: With Special Reference to Pakistan. Lahore: Famous Books; p.339.

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monitor their performance and holding of the second term elections on time was a clear
indication of the acceptance of the system and support of the Government by the people.16
Total No. of Women Seats in the 8- Towns in the District = 96
Total No. Of Women Seats in the Union Council = 96
Total No. Of Women Seats of Councils in the City District =1156
Total No. Of Women Seats in the City District=1348

The election at the Union level formed the backbone of the political system and
structure of Local Government of Faisalabad. AT that level election was direct .This direct
election formed the Union Council. Each Union Council was consiss of 26 elected members. Out
of these 26 were general seats, 8 seats for males and 8 seats for females. Nazim was the head of
the Union Council. Union Council were extended to Urban areas in the District for the equal
participation of Local representative of political parties. This thing equalized the level of Local
representation presented to Urban and Rural areas. AT the District level Nazim and Naib Nazim
of all the Union Council elected the District Nazim and District Naib Nazim. Similarly this
electoral college elected peasant (5%) , women (33%) and minority candidates.
The New set up of Local Bodies working under Punjab Local Govt. Ordinance 2001amended
2005 which came into force w.e.f.14-08-2001. Previous Local Bodies were working under
Punjab Local Govt. Ordinance 1979 which is repealed now.In the New Local Council System 5-
City Districts in the Punjab had been declared.

DETAIL OF COUNCILS IN THE CITY DISTRICT GOVT. FAISALABAD

Local Govt. Election Held on 25-08-2005
Union Council Faisalabad
Election of City District Nazim 06-10-2005.
Oath Taking of City District Nazim 17-10-2005
Election of Naib Nazim City District 28- 12-2005.

16
Siddiqui, A (2000). Local Self Government. IST ed. Ever- new Book Palace, Lahore; p. 150.

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Run of election of Naib Nazim City District 19-01-2006

Oath Taking of Naib Nazim City District 23-01-2006

Composition of Union Council City District Govt. Faisalabad

Total No. of 33% Special Seat Lady Members of Union Council 96
Total No. Of 5% Special Seat Peasant / Labour Members of Union Council 14
Total No. Of 5% Special Seat Minority Members of Union Council 14
Total No. Of Union Council Members 413
Town wise detail of members of Union Council Faisalabad

S# Name of the No. Of No. of No. of Peasant No. Of Total No. Of

Town Union Lady /labour Minority Members of
Councils members of Members of Members of Union Council
Union Union Council Union Council in the Town
Council in in the Town in the Town
the Town

1 Chak Jumera 15 05 01 01 22
Town

2 Jarranwala 57 19 03 03 82
Town
3 Tandianwala 28 09 01 01 39
Town
4 Sumundri 28 09 01 01 39
Town
5 Madina 41 14 02 02 59
Town
6 Iqbal 43 14 02 02 61
Town
7 Jinnah 39 13 02 02 56
Town
8 Lyallpur 38 13 02 02 55

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Town
Category Wise 289 96 14 14 413
Total Nazims Lady Peasant/ Minority
Labour Members

Source: National Reconstruction Bureau Table: 5

Although political decentralization was fairly completed by various principles and election were
held in a free and fair manner but the following issues have been identified in the set up and its
implementation in District Faisalabad.17

Conclusion
The system of Local Self -Government had its strengths and weaknesses. This system offered
many opportunities and it faced a number of pressures. Through this system, for the first time
many significant elements had been made separately from linking checks and balance. Various
levels of Local institutions had elected thousands of men and women for organization the smooth
function of Local Self -Government.
The Local Government Ordinance gave them powers to make important decisions
which dealt not only with Local Government functions but also the Annual Development
Programs. This plan set the agenda for Decentralization and the Devolution of power while the
real test was with its implementation. The purpose of any democratization process was to bring
people closer to Government. Due to that they got knowledge about their fundamental rights.
After that they could be able to manage their own cultural, economic and political affairs in a
society.
Faisalabad District had the exceptional position of having almost all its Union
Councils with their particular Citizen Community Boards. These would be important to ensuring
community participation and development. It would be up to District, Tehsil and Union
Administrations to make ensure that an enabling working environment was created for the
development of Local Development. It was necessary to give the space and time to this system
to become mature. This thing required great patience, understanding and a change in behavior at

17
Paracha, Saad Abdullah, (2003). Devolution in Pakistan: Context,implementation and issues. Available at:
www.policy. Hu/paracha.

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all level. It was not possible to de-construct the building blocks of a system that was 150 years
old and start a-new. At once the Improvements in Local service delivery, decision making and
governance were not impossible. A start had been made and it must be fulfilled its potential in
Faisalabad District and Pakistan.
The necessary processes that had been put in place would ensure that Local
Government was transparent and accountable to people. There was confusion about exactly how
many of the processes and systems would operate. But at least it was a start. Small steps had
been made in the process in the improvement of this system. Due to continued support and
vision Local good governance may be achieved. Although it were very early days, it was
important to realize that unless closely monitored and controlled, the difference of likelihood
between the District Nazim and Tehsil Nazims could be on surface, which could destroy the
system. These differences had their roots in party political loyalties. In the election of Local self
Government, Pakistan Muslim League supported the District Nazim. The PPP and Jamaat-I-
Islami supported three Tehsil Nazims. Training and capacity played an important role in
successfulness implementation of this program.
The implementation of change and performance management, financial management
and fiscal decentralization would be impossible if proper qualified staff were not provided to
deal with these many complicated issues.
At the community level there would be a need for continuous training and strengthening of
Citizen Community Boards. The system would fall or succeed by performance of community.
There was anxiety and disappointment at the community level. For this purpose federal and
provincial governments released funds for District governments.
Faisalabad District had Union Councils in their respective Citizen Community
Boards. These would be crucial to make possible the community participation and development.
It would be up to District, Tehsil and Union Administrations to ensure that an enabling working
environment was created for the smooth running of Local development. Institutional reform is a
time strong and difficult process. All stakeholders should accept this fact. Because stability is the
key to success, it must be giving them a appropriate process which would make possible
continues monitoring and troubleshooting of the process. Political reform process should
continue. Political Uncertainty position should be ended.

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Special focal point should be on women councilors so that they played significant role
during the political development. Mechanisms should be established for creating connection
between different political tiers of Local Government. Special training should be for elected
councilors .Better understandingshould be about working of councils. Individual capacity
building should be developed. Public project should be under District Government instead of
Union Council. Focus on rights & duties of council. Effective media campaigns shouldbe
forvoters political education. Election Commission should have a proper system for voting in
polling stations. Systematized database should be updated for electoral roll. Affective
arrangements of ID cards Systematized arrangements for holding Local Government election.
Nazim should be elected through direct election to finish the political and related pressures.
Clarification of roles & responsibilities and reporting channels should be clear for the
administrative process.Transfers and postings should be stopped.
Focused on mechanisms for training of the government officials at alltiers of Local
Government level for better understand Local Government system. Scheduled meeting should be
at least once a month for better coordinating between elected representative and officials.
Establishment and strengthening National and Provincial Public Safety Commission and police
should be under District Government at regional level.

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