PUBLIC POLICY

Policy has been defined as a set of decision taken by a political leader or group
(commanding authority of implementation) concerning the selection of goals and the methods of
attaining them within a specified situation. Frequently-cited definition of “policy” is given by
political scientist Carl J. Fredrick who regards policy as a proposed course of action of a persons,
group, or government within a given environment providing obstacles and opportunities which the
policy was proposed to overcome and utilize in an effort to reach a goal or realize an objective or
a purpose.1 On the other hand, the simplest definition of “public policy” is whatever government
chooses to do or not to do.2 Public Policies are policies developed by governmental bodies and
officials. Non-governmental actors and factors may influence policy development but they cannot
formulate public policies. Policy is interpreted and implemented by public and private actors.

Public policy, like a complex decision may be compared to a great river, drawing from its
many tributaries, the innumerable component parts of which it is constituted3. The success of a
policy may often hinge upon the administrative implications involved, and the capability of the
administrative machinery and personnel. Public policy involves a large number of persons and
institutions- ministers, public servants, parliamentarians, politicians, interest and pressure groups,
professionals and experts, foreign countries and their interests etc.The formulation and
implementation of public policy is the prime task of the executive branch of the state
(government).4 The electoral system provides the citizens with representatives and they create an
executive to rule and make policy.5 Notwithstanding the primary of the executive branch in policy
making, the significance of the legislative branch cannot be ignored in public policy.

PRINCIPLES OF PUBLIC POLICY IN PAKISTAN

The “Principles of Policy” contained in Chapter 2 of the Constitution of Pakistan 1973

might be regarded as the charter of the aspirations of the people and the State. These principles lay
great emphasis on promotion of social justice and eradication of social evil, on the promotion of

1
Carl J. Fredrick, Man and His Government (New York: McGraw-Hill, 1963)
2
Thomas R. Dye, Understanding Public Policy, 7 th Ed. (Englewood Cliffs, New Jersey: Prentice-Hall, 1992)
3
Hassan Habib, Public Policy- Formulation and Review ( Lahore WAJIDALIS, 1976),v, 3.
4
Mark turner and David Hulme, Governance, Administration and Development: Making the State Work (London:
Palgrave, 1997)
5
Mark Considine. Making Public Policy: Institutions, Actors and Strategies (Malden: Policy Press, 2005)
the social and economic well-being of the people; on promoting international peace; on the
protection of family; on the full participation of women in national life; on the protection of
minorities. The Constitution requires an annual report on observance and implementation of the
‘Principles of Policy’ before the National and Provincial Assemblies. This provides opportunity to
elected representatives to contribute on public policy issues. It also can serve as accountability
mechanism for policy defects and poor implementation. These provisions have never been
followed for policy corrections and accountability. Despite various amendments in the
Constitution, it is primarily the prime minister and his/ her cabinet which is the helm of public
policy decision-making in Pakistan and not the president.Statutory framework for public policy
decision-making in Pakistan, as governed by the Rules of Business, 1973, provides that prime
minister is the ultimate authority to approve or amend any policy framework.

FACTORS INFLUENCING POLICY FORMULATION IN PAKISTAN

CONSTITUTION 1973 AND POLICY MAKING
The specific provisions have been made regarding the Principles of Policy in the
Constitution of Pakistan. Article 29 of Chapter-2 describes these Principles. It is the responsibility
of each organ and authority of the State, and of each person performing functions on behalf of an
organ or authority of the State, to act in accordance with those Principles in so far as they relate to
the functions of the organ or authority. In so far as the observance of any particular Principle of
Policy may be dependent upon resources being available for the purpose, the Principles shall be
regarded as being subject to the availability of resources. In respect of each year, the President in
relation to the affairs of the Federation, and the Governor of each Province prepare and laid before
the National Assembly or the Provincial Assembly, a report on the observance and implementation
of the Principles of Policy. A study conducted in 2004 reveals that only nine reports have so far
been submitted to the National Assembly.6 These reports provide a significant opportunity to
elected representatives to highlight debate and firm up recommendations on a wide range of public
policy issues in the country.
PARLIAMENT (MAJLIS-E-SHURA)
Article 50 of Constitution, 1973 provides for formation of a Parliament, legislative
procedure (Art. 70), procedure for money bills (Art. 73), the financial procedure (Art. 78). It is

6
Nazeer Ahmad, Constitution and Peoples Rights in Pakistan. (Islamabad: The Network Publications, 2004)
observed that due institutional framework has been provided to scrutinize and control expenditure
of the government through the Assembly but experience over the years shows that the budget as
presented by the Finance Minister before the Assembly is by and large approved as there is hardly
any contribution from the treasury or even the opposition benches to modify it. Similarly, on the
legislative issues, there is hardly any debate that is witnessed. If the proposal suits majority of
members, it is approved even if it is not in the national interest.
CABINET
Article 39 of the Constitution 1973, provides that there will be a Cabinet of Ministers,
headed by the Prime Ministers. It is a body at the highest level to take and approve decisions. The
bureaucracy formulates the proposals in the form of summaries reports etc. to be approved by it.
The budget is approved by the Cabinet before being placed before the Assembly. However, quite
a few policies, like the Trade Policy, Investment Policy, Industrial Policy and Agricultural Policy
are approved and the ratification of International Agreements/ Conventions are done by it. As such
important policy decision which may not have been debated in the Assembly or any broad forum,
and may even be, in deviation from the consensus in the Assembly and even the general public
demand, are approved or modified by the Cabinet and its various committees through issuance of
SROs and as such the spirit in which the Parliament had taken the decision is seriously
compromised.
POLITICAL PARTIES
“Man is a political animal”, so said Aristotle. Therefore in a society where man lives there
has got to be politics and political parties even if it is just one in a country, according to the political
system of that country. Political environment has also pointed out the existence of not only the
formal but also that of the informal political groups as well. The political environment in our
country resembles more with this model. Political parties in our country are not organized, with
the exception of few and in that sense not very formal institution. They are created on the basis of
following of some individuals, instead of being formed for some well-defined objectives, cause or
agenda. Notwithstanding all this, the fact remains that political parties and political groups do exist
in our society. They get into the government or become the voice of the opposition, they have their
views on the issues, and hence exert influence on the policy making process in either capacity,
when in power they (with the bureaucracy) are the formulators of policies and in the opposition
their critics.
BUREAUCRACY
If political leadership is the edifice, bureaucracy is the whole structure of the government,
from pillar to its roof. It is the institutional framework for conducting all the work of the
government. It is there to plan, organize, manage, execute, implement, and to advise the political
leadership in power, be it the civil or the military bureaucracy. In the international and national
context, the country’s bureaucracy is the premier institutional framework for its policy framing. It
has set rules, laid down principles and is well established institution for this purpose. The
Constitution provides for conducting business of the government according to the Rules of
Business, which allocates various functions of the government to the several Ministries, Divisions,
Departments etc, and requires that on an issue, any proposal should have to be duly examined and
concurrence/ views of the Ministry/ Department/ Authority having jurisdiction be sought over it.
JUDICIARY: THE BENCH AND THE BAR
The judiciary can play a pivotal role by exerting its influence on the policy making and
especially its implementation, if it is made independently, and is neutral. Policy makers and its
implementers would always have the fear of having to face the court, should anything be found to
have been done by them in contravention of law. As such, role of the judiciary as watchdog would
be very effective. In Pakistan, the judiciary has been independent, as much as it has wanted itself
to be independent. Pendulum of its neutrality has swung on matters related to military takeover to
other issues. If need be, the judiciary brought into existence the doctrine of necessity for the
necessity of their existence. In contrast, the role of bar as the watchdog has been more prominent,
on national policy issues, although at times their activism is predominantly politicized. Yet they
have never hesitated to lodge protests to express their point of view through resolution of their
bodies, meetings, processions, and even agitating them in the court of law by filing suites.
MEDIA
Media plays the most important role in communication between the different segments of
the society and the state, and for formation of the public opinion. Media can affect politics and
culture, support institutional change and market development. Open information flows can
promote institutional reform by affecting people’s incentives and by sharing ideas and knowledge.
Greater access to all media, including the foreign and the vernacular, can provide a voice for social
groups to press for changes in institutions and norms of behavior.
 In Pakistan, media is spread over both the print and the electronic modes. Pakistan is a
smaller market, where a small portion of population reads newspapers. On the other hand,
production costs of press & publications are very high and the expenses can hardly be met out of
circulation. Print media, therefore, has to heavily depend upon advertisements which do not come
without due influence. In this situation, the question arises, as to what extent the print media
propagates the interests of the vested interests and to what extent that of the public, the national
interest. Nevertheless, there are newspapers, and especially the news magazines, which have
reflected public opinion objectively, have criticized government policies, when they are not in
national interest, exposed corruption, mal-practices, misuse of power, atrocities, conspiracies, and
mismanagements at the costs of suffering of various natures both from the government as well as
the effected persons/ groups etc. In these circumstances, the press has been able to influence the
policy framing and implementation, though not ideally, in its own little way effectively, especially
on crisis occasions and on core issues.
PUBLIC OPINION
Public, the major mass of the society for whom most of the policies are framed, are living
entities. It is, therefore, necessary that the policies are made for their benefit, and not to be
detriment of their large opinion, nor at their cost, to appease a section of elite. Their opinion,
therefore, is of prime importance in the policy formulation process, which should have their
acceptance for its acceptance. Their opinion is formed mostly from the information gathered from
the media i.e. print and electronic or in the case of media not being able to furnish such information
due to censor or some other reason, from other sources in the society. Mostly, it is effective enough
to get the policies modified according to its wish. The constant example of its expression is the
elections which in other word is the acceptance or rejection of the policies of the contestants.
VESTED INTEREST GROUPS
Groups are after all formed with common interests. It is, therefore, natural that they strive
to protect and pursue that common interest. This interest could vary from self interest with ulterior
motives, on one hand, to the collective interest for the larger benefit of the society on the other
hand. These groups are as follow:-
i) THE TRADE BODIES
In Pakistan trade bodies are fairly well organized. Almost all manufacturing sectors have
their own Associations/ Unions. In every large industrial and commercial city, there is a chamber
of commerce and industry which in turn have formed the Federation of Pakistan Chambers of
Commerce and Industry. These trade bodies play an important participatory role in the policy
formulation process in the policies relating to their areas of interest. Government very often
involves them in the consultative process for formulation of trade policy and import and export
policies.
ii) THE NGOS
The NGOs are the voluntary organizations in the society rendering services in one or more
areas of society’s welfare or common interests. In Pakistan, there are a large number of such
organizations in different walks of life and fields. They not only exert influence on policy
formulation but also render a very valuable support to the government in policy implementation
process, especially in the fields of health education, poverty alleviation, gender issues etc.
iii) SECTARIAN ORGANIZATIONS
On the other extreme are the sectarian organizations due to whose recent activities,
government has to devise, and modify its policies on law and order, and functioning of “madaris”.
This naturally would have affected the government’s financial policy, subjecting it to re-
adjustment to absorb expenditure on such measures.
GEOGRAPHIC/ DEMOGRAPHY AND NATURAL RESOURCES
Status of the infrastructure in a country to a large extent influences the policy formulation
process of the country, through the availability and adequacy of these facilities, like road, rail, sea
and air transport services, port facilities, telecommunications, water, electricity and gas, and their
costs, as they play a very important role in the development process. These facilities have great
impact on the investment, industrial, and the agricultural policies. Geography has a very basic
impact on the policy framing as well as on its implementation. Geography provides constants to a
country and some variables. Having Port (s) provides opportunity of facilitating trade, exploitation
of exclusive economic zone, sea foods, off shore drilling etc. rivers, water resources and land help
to produce agricultural products- climate also depends largely on geography and so do the rains
weather etc. Demographic factors also play an important role in policy framing and
implementation. Programs like poverty alleviation, Health, education, utilities, infrastructure
development depend upon size of the population. Rate of growth of population has direct bearing
on commerce development/ GDP.
ETHNICAL ISSUES
 Not only that the integrity as such sets in the reputation of the product produced in and
exported from a country, but also the trust and confidence in agreements reached and their
fulfillment, largely affects the dealing with other states/ multinational organizations. Government
accordingly has to make more rigid policies to ensure compliances of standard, honoring
agreements, maintenance and improvement of quality etc. Within the society in itself the ethical
values of the society have a strong bearing. This affects policies like production, export, and trade
of liquor, film literature, entertainment business, tourism policies etc.
LAW & ORDER
Law and order situation has a direct bearing on our investment, tourism, industrial and
trading activity. These policies, therefore, are directly affected by the law and order situation, but
not entirely dependent on it. Besides law and order, there are other factors such as the economic
factors, which predominantly effect the investment in the country. Law and order if deteriorating
has an adverse effect on investment but no proportion can be drawn in quantum of its effects on
investment.
EXTERNAL THREAT
In the shape of India, Pakistan has a neighborhood extremely hostile to it. Its borders being
insecure, Pakistan has to maintain an army proportionate to its threat. The situation affects more
than one aspect of Pakistan’s policies. On the fiscal front, Pakistan has to spend a huge portion of
its resources for defense purposes. Huge expenditure on defense affects the entire economic
system, its tariff requirements, and development programs etc. On the other front of foreign policy,
Pakistan has to make an extra effort to minimize the threat and resolve the issue through diplomatic
means. The conditions at the borders intensively affects our defense, fiscal, foreign and trade
policies.
INTERNATIONAL RELATIONS
Relations of a state with the rest of the world community play an extremely important role
in policy formulation. Pakistan is an active actor of the international community. It is a member
of the United Nations, Common Wealth, SAARC and the ECO. It has signed many International
Conventions, and Agreements etc. Its policies have, therefore, got to be framed in light of these
obligations.
THE GLOBAL ENVIRONMENT- THE IFIs
 The continuous dependence on loans and funding from IMF, World Bank and other lending
agencies for development programmes under different government has badly affected the policy
formulation and implementation in Pakistan. These loans have never been coming unattached but
with the tags of the series of their conditional ties to seek and get formulated our economic fiscal,
trade, tariff and various other policies according to the donors’ desires. Even to the extent that
structural reforms ranging from tariff structures to service reforms, downsizing, privatization and
project designing, has been done to suit donors instructions. The core budget proposals seek their
concurrence. Pakistan’s dependence on foreign capital inflows to finance investments, balance of
payments deficit and budget deficits has made it vulnerable to the wishes of the donors. Therefore,
due to the interaction of the IFIs with the Pakistan’s policy formation process, the public
administration and the bureaucracy in Pakistan have also acquired a global dimension whereby
decision making is not an isolated action and compromises on the economic sovereignty are to be
made proportionate to the conditionalities of the donor agencies.

SECTION-2
ROLE OF STATE INSTITUTIONS IN PAKISTAN
In today’s modern democratic State the important institutions are:
1. Legislature
2. Judiciary
3. Bureaucracy
4. Army
a) State Institutions in Pakistan
In a modern democratic state the cabinet form of government is practiced and it is the
cabinet that exercises the right to choose out of available policy proposals/ options prepared by the
bureaucracy.
In case of Pakistan, over the past 63 years the role of various state institutions can be
summarized as under:
1947-51 Periods of turmoil and turbulence, but major decisions regarding foreign policy,
economic development, fiscal arrangements, internal security, etc. were being
made by the bureaucrats.
 1951-58 Democratic governments in name but the shots were called by the bureaucrats while
the military was supporting them as a junior partner.
1958-69 Bureaucratic rule
1969-71 Bureaucratic rule
Military - senior partner
Bureaucracy - junior partner
Feudal politicians supporting the system from the outside.
1971-77 Populist autocracy, military and bureaucracy playing second fiddle because of the
debacle in East Pakistan, but biding their time.
1977-85 Bureaucratic rule once again
Military - senior partner
Bureaucracy - junior partner
A motley crowd of religious leaders, discredited feudal politicians and
opportunistic professional groups supporting the system from the periphery.
1985-88 Repetition of 1951-58
1988-99 Feudal democracy with marked autocratic bias supported by a strong army and a
weak bureaucracy.
1999-08 Military rule, democratic government in name only, shots were called by the
military, weak bureaucracy.
2008-10 Democracy (weak), shots are called by the military, bureaucracy at its weakest
(politicized).
Judicial activism / constitutionalism coming to the fore.

b. STRENGTHS AND WEAKNESSES OF INSTITUTIONS

Institutions Strength Weaknesses
Legislature  Custodian of the constitution  Coalition governments
 Representative body  Outcome of person- centric
 Elected house political parties
 Parliamentary oversight  Feudal/ autocratic rule
 Law giving body  Rubberstamp usage
 Capacity issue
Bureaucracy  Properly organized  Red-tapism
 Structured in form  Corruption
 Merit based  Inefficiency
 Neutral  Politicization
Military  Organized  Power hungry
 Command driven  Corporatized
 Loyal  Politicized
 Disciplined  Arrogant
Judiciary  Independent  Subservient to Executive
 Judicial oversight  Corruption
 Constitutional Interpreter  Politicized
 Introvert

c. ROLE OF MILITARY AND BUREAUCRACY IN PAKISTAN

The roles of military and bureaucracy have been highlighted by Mr. Tasneem Ahmad
Siddiqui in his book “Towards Good Governance” as already discussed above. In modern
democracies, the government’s role is minimal and a lean government is considered to be a good
government. The private sector, community groups and local councils take care of most of the day
to day problems of the people. But in Pakistan, governance is excessive and for very small
problems, the citizen has to go to the government offices. In the early days, the role of policy
making and its implementation was played by the bureaucrats while in 50s there were so called
democratic governments and the policy making and its implementation remained with the
bureaucracy. Military supported the setup as a junior partner. The same arrangement continued in
60s & 70s with military increasing its role gradually at the cost of bureaucracy which was
consequently reduced to a junior partner.
In 70s populist autocracy led by Mr. Zulfiqar Ali Bhutto played the leading role and both
military and bureaucracy played the role of second fiddle. However, during Zia-ul-Haq days, the
old pattern of bureaucratic rule once again re-emerged where military played the role of senior
partner and bureaucracy became the junior partner. In 80s & 90s, the feudal democracy prevailed
which had the support of the strong army and a weak bureaucracy. In Musharraf days, the army
virtually controlled the country in all domains. Some kinds of sham democracies were brought in
for showcasing purposes but the real power remained with the army while bureaucracy was further
weakened.
d. POLITICIZATION OF BUREAUCRACY
Since its birth, Pakistan has been governed by its elites, mainly bureaucratic, military, and
political. The bureaucratic elite who had formed an important element in the power structure since
the very creation of Pakistan gradually became more assertive, frequently gaining their steadily
increasing power at the expense of the political elite. An important contributory factor in this
development was the fact that at an early stage in Pakistan’s history some erstwhile bureaucrats
were able to occupy the political positions of Governor General and Prime Minister. They brought
with them the traditions, outlook, and attitudes typical of the bureaucrats and their sympathies were
slanted more towards the bureaucracy than towards the political institutions. The military coups of
1958, 1969, and 1977 further strengthened the power and prestige of civil bureaucracy. It can be
maintained that during the greater part of Pakistan’s history, higher bureaucracy has ruled the
country; in fact Pakistan can be described as a bureaucratic polity.7
With the murder of Prime Minister Liaquat Ali Khan, a close associate of Quaid-e-Azam,
Ghulam Muhammad, assumed the position of Governor-General in 1951 and abrogated the
Constituent Assembly in 1954. Bureaucratic supremacy over political institutions was thus
publicly demonstrated. The military’s complete support and involvement was also symbolized by
General Ayub’s presence in the so-called “cabinet of talents” under a non-elected prime minister,
Muhammad Ali Bogra from 1951 to 1955. Therefore, four persons- Chaudhry Muhammad Ali,
Ghulam Muhammad, Iskandar Mirza, and General Ayub Khan- were freely operating on the
chessboard of Pakistani politics.8
At independence, Pakistan inherited an administrative system designed for maintenance of
law & order and collection of revenue at the provincial level. There was no federal government
and at the local government level, the district boards headed by elected chairman under the control
of Deputy Commissioner/ Commissioner existed at the gross root level. The system was not
accountable to the people. In the post independence era, the bureaucracy was required to be

7
Forward written by Hashmi, S.H., Dean, Faculty of Social Sciences, Quaid-e-Azam University, Bureaucracy in Pakistan, by
Charles H. Kennedy, Oxford University Press
8
Sheikh, Riaz Ahmad, A State of Transition: Authoritarianism and Democratization in Pakistan, Asian Journal of
Global Studies Vol 3, No.1 (2009), 04-21
accountable to the people by making them responsive to the political control of elected
representatives and to focus their priorities towards development. Owing to weak political
governments, the powers of bureaucracy were not clipped during the first 20 years and it kept on
ruling the country in collusion with the military. However, in 1969 during second martial law, 303
senior civil officers were dismissed and bureaucracy was reduced to the status of junior partner to
the military. Again in PPP government at the end of 1971 about 1400 civil officers were dismissed
which was a major shock for the bureaucracy. The worst to follow was 1973 administrative
reforms, whereby, constitutional guarantees were removed and the cadre i.e. Civil Service of
Pakistan was abolished and replaced by various administrative groups coupled with large scale
lateral entries at all levels not through Public Service Commission. Thus, the bureaucracy became
very much responsive to the control of the Prime Minister and the PPP government.
During Zia-ul-Haq regime lateral entries were gradually stopped but induction of
substantial number of armed forces officers at top and middle levels of bureaucracy started. After
1985 and up to October 1999 the politicians replaced the military high command as senior policy
making partner in relationship with the bureaucracy while after October 1999, it was again the
military high command which had been the senior partner in this setup. About 600 senior level
posts at the federal and provincial governments level were held by retired and serving military
officers. At the local government level, devolution plan brought a fundamental change. With
commissioners gone, DCs gone, DIGs gone SPs not gone but back again as DPOs. DCO now
subordinate to District Nazim, (who is supposed to initiate his ACR) and thus bureaucracy has
been thoroughly politicized.
Removal of constitutional guarantees and abolition of separate services contributed to
politicization because in the post 1973 period under Bhutto and Zia-ul-Haq and later under Benazir
Bhutto and Nawaz Sharif bureaucrats realized that they needed high political or military
connections to obtain choice postings or promotions. Politicians and senior military officers were
in their own interest only too happy and this “I scratch you back you scratch mine” relationship
continues to this day.
JUDICIAL ACTIVISM / CONSTITUTIONALISM IN PAKISTAN
A modern democratic state is built on the principle of tri-chotomy of powers, i.e. the
judiciary, executive and legislature have to perform their own designed functions. However, it has
been observed that even in developed polities, the functioning of the legislature and executive
leave a lot to be desired. Instead of being vigilant and acting as a check on executive persecution,
the legislature becomes its hand-maiden. In addition, it is slack in enacting laws. To fill the vacuum
resulting from this legislative-executive mal-functioning, the judiciary has to assert itself by
providing relief to the sufferers of tyranny and by interpreting laws, which are either deficient or
vague.
The advent of parliamentary democracy in 1985 marks a water-shed in Pakistan’s political
development. The renewal and strengthening of the political process has also brought to the fore
the concomitant advantages associated with such a process. The most significant blessing of the
strengthening of the democratic process has been the assertive stance being exhibited by Pakistan’s
superior judiciary. Judicial activism has never been a feature of Pakistan’s polity. Instead, our
judicial history is replete with landmark decisions which legitimized executive arbitrariness and
extra-constitutional adventures. Our higher judiciary has condoned, at various times, the
dissolution of the first Constituent Assembly and the proclamation of martial laws in 1958, 1969,
1977 and 1999. It would be short-sighted to put all the blame for the above on the judiciary alone.
A free and assertive judiciary does not grow in a vacuum. It needs a free and democratic
dispensation to nurture it. Thus, the much talked about judicial activism is a result of Pakistan’s
return to constitutional government.
Right now the country is embroiled in a rather destabilizing controversial tussle between
increasingly hyperactive judiciary and Government. Judiciary is actively pursuing a policy of
activism as compared to judicial restraint. The Judiciary is increasingly confrontational with
the Government. If this worsens, it would harden the judiciary’s stance on several issues.
Furthermore, increase in confrontation with the Government will also ultimately result in
government not honoring the Judiciary’s decision and thus weakening the later. All the three major
stakeholders: Legislature; Judiciary; and Government need to show maturity. The mediation
between Government and Judiciary is extremely essential.
POLITICAL INSTITUTIONS & POLITICAL PARTIES
Before the creation of Pakistan, the main aim of the All India Muslim League’s political
program had been the achievement of Pakistan without spelling out very clearly what that meant
and what it should be like. After coming into existence of Pakistan the Pakistan Muslim League
was in dire need of a new program and direction which it found difficult to develop (until today!).
Quaid-e-Azam, the intellectual and factual leader of the Muslim League was busy in tackling the
daily emergencies of the first months of Pakistan’s existence. Besides, his failing health might
have been another reason for his inadequate attention to the re-organization and re-adjustment of
the Muslim League to the demands of Pakistani reality. No other leader came to the rescue of the
founder political party i.e., Muslim League. It was torn between the ongoing power struggles
between different Punjabi feudal families after the demise of Jinnah in 1948 and Liaqat Ali Khan’s
assassination in 1951. Regional parties with nationalist ideologies were perceived as enemies
rather than a new feature in a growing independent party system of Pakistan.
This vividly shows that the reorganization and development of political institutions in
Pakistan met with many obstacles which kept them extremely weak from the very beginning. This
created a power vacuum in the political set-up which was filled with ongoing quarrels of individual
contenders for power. The only institution which was functional at that time and was re-organized
at a quick pace was the Pakistan army. The Kashmir war and the (real or perceived) Indian military
threat for Pakistan were two powerful factors which made the civilian governments concede
overall priority to the army and its needs. Because the army was a well established and functioning
body and had the aura of being straightforward and void of corruption. With the coming down of
the military to day-to-day political, administrative and economic involvement this became
something like a self-fulfilling prophecy: theories about the capacity to modernize society were
introduced and gained plausibility among the army itself and also among a part of the public. This
entrance of the military into politics proved to be a development which by now has made it a full-
fledged player in Pakistan’s politics and economy.
The weakness of the political institutions and political parties in Pakistan is one of the
major reasons for the weakness of democracy. This weakness gave the possibility and may be the
compulsion to the army to step in at certain points in the history of the Pakistan state when in a
crisis situation the political government turned out to be not strong enough to deal with a situation
or when a government tried to encroach upon the power of the army.
PUBLIC CONSULTATION / PARTICIPATION IN POLICY MAKING
Generally public participation seeks and facilitates the involvement of those potentially
affected by or interested in a decision. The principle of public participation holds that those who
are affected by a decision have a right to be involved in the decision-making process. It implies
that the public's contribution will influence the decision. Public participation may be regarded as
a way of empowerment and as vital part of democratic governance. In the context of knowledge
management, the establishment of ongoing participatory processes is seen in the facilitator of
collective intelligence and inclusiveness, shaped by the desire for the participation of the whole
community or society.
Effective public participation depends on the public having access to accurate and
comprehensive information. Hence laws regarding public participation often deal with the issue of
the right to know, access of information and information. The underlying assumption by political
theorists, social commentators, and even politicians is that public participation increase public trust
in authorities, improving citizen political efficacy, enhancing democratic ideals and even
improving the quality of policy decisions. However, the assumed benefits of public participation
are yet to be confirmed.
In developing countries, the level of popular participation in policy making has generally
been much less than in developed nations. The official channels for participation are restricted.
This is not uniform across developing countries. Zambia, known for its backward and
underdeveloped political institutions has a history of parliamentary debate on public policy. 9
Bureaucracy generally leads policymaking process in developing countries. Their involvement
varies from country to country. In Bangladesh with absence of an effective power structure,
bureaucratic power is extensive and pervades the entire social fabric. Bureaucrats have taken upon
themselves the responsibility of public decision- making and there is no efficacious means of
making them accountable for their actions.10
In case of Pakistan, it has been argued that over the decades all public policy decisions
have been taken by unrepresentative institutions without a real political debate.11 Best, the political
process has been used to legitimize the extra-parliamentary public policy decision making
process.12 As a result, there is a divorce between public policy and public opinion in Pakistan.
Much of the unhappiness among citizens emanates from this policy “drift” away from what the
people at large would like to see happening.13
Ensuring Public Participation in the Decision Making Process

9
Mark Turner and David Hulme. Governance, Administration and Development: Making the State Work (London:
Palgrave, 1997)
10
M M Khan and H M Zafarullah, Politics of Bureaucracy in Bangladesh (New York: Marcel Dekker 2001)
11
Javed Hasan Aly. Public Policy and Political Process (Daily Dawn, Islamabad, April 28, 2008)
12
Ibid
13
“Public Policy versus Public Good”, (Editorial, Daily Times, Lahore. March 16, 2005).
 “Bureaucrats are public servants and bureaucracies are meant to serve the public. But as
soon as a bureaucracy is established it tends to become independent and comes to regard the public
as its enemy. Unfortunately most third world governments are plagued with this menace. The more
the independence that it gains the less answerable is it to the public and the more corrupt does it
become.”14
Public participation aims at bridging of the gap between the government, civil society,
private sector and the general public, building a common understanding about the local situation,
priorities and programmes. Public participation encourages openness, accountability and
transparency, and is thus at the heart of inclusive decision-making. The level and the nature of
public participation in local governance issues are often used as indicators of a healthy civil
culture.15
Public participation is important for our democracy and to our ability as a society to make
sound decisions related to the pressing challenges of our time. Participatory democracy creates
opportunities to involve stakeholders potentially affected by a decision. Public participation is
important for all sectors of society interested in creating accountability and transparency in the
decision making process. Public involvement is critical to developing more effective public service
programs and successful solutions to tough societal problems.16 Citizens are the potential victims
and benefactors of proposed planning measures, they are the best judge to evaluate the different
options available. It has also been argued that those most affected by a decision should have the
most say while those least affected should have the least say.17
In Pakistan while preparing any policy proposal, the department concerned is required to
hold brainstorming sessions with all the stakeholders. The proposal including the options so
developed is placed before the cabinet which is the representative body of the Parliament.
However, history shows that very good and sound policies in the past failed on account of poor
implementation or lack of will on the part of both political and bureaucratic elite.

14
Ensuring Transparency and Public Participation in Public Procurement in Pakistan, Transparency International - Pakistan
15
www.unhabitat.org/cdrom/transparency/html/2b_8.html
16
www.scerp.org/bi/bi_x/papers
17
www.springerlink.com
 SECTION-3
PRIORITIZED LIST OF NATIONAL AIMS & OBJECTIVES
National Aims & Problem areas Reasons for Policy Failure in the
Objectives Past

1. Internal a) Terrorism i) Absence of national security policy

Security
b) Delays in prosecution and disposal by courts ii) Lack of coordination among law
enforcement agencies, defense
c) Over expensive litigations apparatus, stakeholders and general
public
d) Overall police performance and capacity
iii) Promotion of concept of “Jihadism”
in occupied Kashmir and
Afghanistan

iv) Failure of state institutions

specially judiciary and police in
administration of criminal justice
system

v) Rising unemployment and poverty

attracted youth towards anti-state
activities

vi) Reforms introduced in the shape of

Devolution of Power Plan 2001
failed to change the thana and tehsil
cultures

vii) Politicization of administrative

machinery

2. Economic a) Resources Constraints i.e. Tax debate i) Absence of tax- paying culture
Stabilization resulting low tax to GDP ratio
b) Energy crisis
ii) Lack of planning and continuity of
c) Water scarcity for agriculture purpose economic policies

d) Expensive inputs for industry iii) Lack of political will to implement

big projects and plans i.e.
e) Trust deficit – failure to maximize donor Kalabagh Dam & Thar Coal
assistance in flood affected areas Project
f) Inflation iv) Corruption and mal-administration
 v) Over dependence on foreign
assistance/ donors in economic
planning and policy making

3. Equity / Social i) Education i) Concentration of wealth in the

Justice hands of “haves” and exclusion of
ii) Non-creation of decent employment “have-nots”
opportunity
ii) Failure of state machinery to
iii) Absence of basic health services provide goods and services to poor
masses equitably
iv) Ineffective/ inefficient skills dissemination
program iii) Low investment/ allocation in
health and education sectors
v) Absence of self-reliant incentive for informal
sector iv) In different attitude towards
private sector’s involvement and
participation in social sectors

v) Government’s negligence and low

priority towards technical/
vocational education

4. Good a. Non-responsive and inaccessible state i) Continuation of colonial mindset

Governance institutions to common man in government institutions

b. No public participation in decision making ii) Existence of credibility gap

c. Existence of master / subject relationship in
service delivery
d. Lack of merit and transparency in decision
making
e. Red-tapism and corruption
between people and the state
iii) Lack of effective monitoring
mechanism
iv) Inefficient and ineffective
accountability system

f. Lack of speedy justice system

PROPOSED POLICY OPTION

Aims & Objectives Proposed Policies
1. Internal Security a. Police and administrative reforms at Thana, Tehsil and District level
b. Legislation to introduce judicial reforms for ensuring conciliation / arbitration and
time –bound justice/ accountability system
 c. De-politicization of law enforcement agencies

2. Economic a. Resource Generation through Fiscal Reforms

Stabilization
b. Development of export- oriented industrial base and exploration of new markets in
Africa and Central Asia
c. Generation of energy by Development of Thar Coal Project and Construction of big
dams

3. Equity and Social a. Free education for all up till matriculation level with uniform curriculum of
Justice international standards with emphasis on skill development and technical
education

b. Provision of basic health services and family planning

c. Empowerment of women , minorities and marginalized segment of the society

4. Good Governance a. Development of effective, impartial, transparent and accountable

administrative system

b. Stable political system by giving general public a sense of participation in

decision making

c. De-politicization of state institutions

 WAY FORWARD
NATIONAL POLICY DIRECTIVE FOR THE CABINET
1. INTERNAL SECURITY
Police and Administrative Reforms at Thana, Tehsil and District level
Cost / Resources & Time -
Directive to be Issued Agencies Responsible
Frame
i) Restoration of Executive 1. Ministry of Law and No additional cost is involved.
Magistracy by amending CrPC/ Parliamentary Affairs This is a Short-Term Plan for 1-2
Police Order / Local and Special years
Laws and PPC in offenses up to 2. Ministry of Interior
three years RI along with summary
trial powers
ii) Enforcement of Alternative Dispute 1. Provincial Government Financial cost of establishing
Resolution System at state expenses CPLC will be borne by respective
by institutionalizing CPLC in the a) Home Departments of the CC&IT
big cities, restoring the courts of provinces
honorary magistrate for local and b) Inspectors Generals of
special laws and punchayst system Police
in the villages for petty crimes
2. Local Chamber of
Commerce, Trade &
Industry

iii) Number of judges / judicial
magistrate be increased by posting
one judicial officer on the
population of two lacs or @ 500
cases per judge
1. Supreme Court of Pakistan It is Medium- Term Plan ranges
from 3-5 years. It will cost Rs. ___
2. High Courts of the per year
Provinces
3. Provincial Governments

iv) Enforcement of national judicial 1. Supreme Court of Pakistan No additional expenditure is

policy for ensuring disposal of involved as the existing judges/
criminal cases within time limits 2. High Courts of the magistrates will be assigned the
with proper monitoring and Provinces task
evolution mechanism for
accountability
v) Establishment of special courts for 1. Provincial Governments It’s a Short- Term Plan for 1-2
women and children and years. It will cost approximately
prosecution on the basis of 2. High Courts of the Rs. 200 million per annum
complaints of the aggrieved Provinces

vi) Recruitment of the law enforcement 1. Provincial Governments This policy decision requires the
agency personnel on the basis of WILL of political leadership.
merit, performance based posting 2. Inspectors Generals of
transfer and regular monitoring Police
and evaluation mechanism

2. ECONOMIC STABILIZATION
RESOURCE GENERATION THROUGH FISCAL REFORMS
Cost / Resources & Time -
Directive to be Issued Agencies Responsible
Frame
i) Increasing the number of items to 1. Ministry of Finance Generation of Rs. 100 billion is
be included in the sales tax net expected. It is a Short-Term Plan
2. Federal Board of Revenue for 1-2 years.
ii) Imposition of agriculture tax across
the board without any exceptions 3. Provincial Board of
on the basis of crops Revenues
iii) Creation of special industrial zones Provincial governments It is the Medium- Term plan
through public-private partnership through: between 3-5 years .
and provision of industrial inputs
i.e. electricity, gas. raw material at a) Planning and Development These zones will be developed
subsidized rates to boost industrial Board with public- private partnership.
growth Investments will be sought from
b) Industries Department local and foreign investors.
iv) Granting tax and duty reliefs to Federal Board of Revenue No expenditure is involved
highly advanced capital goods and
machinery imports for creating
competitiveness and quality
products
v) Creation of crops based 1. Ministry of Food, No expenditure is involved. It is a
agricultural zone in the fertile Agriculture and Live Stock Medium-Term Plan for 3-5 years
areas according to the suitability of
the crops by promoting cooperative 2. Provincial Board of
farming on the state land through Revenues
its distribution among the small
land holders 3. Agricultural Departments
of the Provinces
vi) vi. Provision of subsidized
agriculture input i.e. fertilizer
seeds pesticides etc and un-
interrupted electricity supply to
agriculture zones
3. EQUITY AND SOCIAL JUSTICE
FREE EDUCATION FOR ALL
Directive to be Issued
i) Emphasis on skills development
and technical education at higher
secondary level by imparting
market need- oriented skills
ii) Removal of mismatch between
demand and supply through
development of labor market
information system in Pakistan
iii) Development of human resource
standards matching with
international standards and
development of accreditation
system for technical education
iv) Conversion of at least half higher 1. Ministry of Education
secondary schools into technical
and vocational colleges
1. Zarai Taraqiati Bank of Government of Pakistan will bear
Pakistan the subsidy @ 10% on these
agriculture inputs which may be
2. All Commercial Banks Rs. 1.000 billion per annum. It is a
Short-Term Plan for 1-2 years.
3. Provincial Cooperative
Banks
Cost / Resources & Time-
Agencies Responsible
Frame
1. Ministry of Education Rs. 100 Billion Approximately.
2. Ministry of Industries It is a Medium- Term Plan
ranging from 3-5 years
3. NAVTEC
4. Provincial Education
Departments
5. Provincial TEVTAs
1. Ministry of Labour and An expenditure of Rs. 100 million
Manpower as initial cost is involved. It is a
Short-Term Plan for 1-2 years
2. Provincial Labour
Departments
3. Provincial TEVTAs
4. PVTC
1. Ministry of Labour and No additional cost is required.
Manpower
2. Provincial Labour
Departments
3. NAVTEC
4. Provincial TEVTAs
The conversion will involve an
expenditure of Rs. 500 million
with Rs. 100 million recurring
v) Privatization and outsourcing of 2. Provincial Education cost. It is Short-Term Plan for 1-2
monitoring and evolution system in Departments years.
education and health
3. Provincial TEVTAs The outsourcing will involve Rs.
100 million. It is a Short-Term
4. Ministries of Health and Plan for 1-2 years.
Education.
5. Provincial Departments of
Health & Education

vi) Provision of microfinance by 1. Khushali Bank Government will bear the interest/
st
transferring money directly to the markup involved for 1 year of
families for income generation 2. NRSP/ PRSP
lending. An allocation of Rs. 500
million be made. It is a Medium-
vii) Government should bear the half 3. Akhuwat
Term Plan for 3-5 years.
cost of lending microfinance to the
poor families to reduce financial
burden

viii) Financing should be preferred

to the families for the development
of entrepreneurship and service -
oriented jobs

4. GOOD GOVERNANCE
DEVELOPMENT OF EFFECTIVE, IMPARTIAL, TRANSPARENT AND
ACCOUNTABLE ADMINISTRATIVE SYSTEM

Cost / Resources & Time -

Directive to be Issued
i) Granting of new mandate to state
functionaries through provision of
constitutional guarantees by
making them servants of the state
rather than of government
Agencies Responsible
Frame
1. Ministry of Law and No financial expenditure is
Parliamentary Affairs involved. It is a Short- Term Plan
from 1-2 years.
2. Establishment Division
3. Organization and
Management Wing

ii) Restructuring of government 1. S&GAD Departments of

functions through development of All Provincial Governments
Key Performance Indicators and
work breakdown structures

iii) Development of effective
monitoring and evaluation system
at each tier of the government
institutions
iv) Enforcement of efficiency and
accountability laws
indiscriminately
v) Introduction of effective client-
based feedback mechanism
2. All Public Sector
Autonomous Bodies and
Institutions
1. Govt. of Pakistan No additional expenditure is
involved. It is a Short-Term Plan
a) Establishment Division,
for 1-2 years.
b) Organization &
Management Wing
c) Finance Division
2. Provincial Governments
S&GAD and Regulation
Departments
3. All Autonomous & Public
Sector Organizations
1. Govt. of Pakistan No additional expenditure is
involved. It is a Short-Term Plan
a) Establishment Division,
for 1-2 years.
b) Organization &
Management Wing
c) Finance Division
2. Provincial Governments
S&GAD and Regulation
Departments
3. All Autonomous & Public
Sector Organizations
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