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Political System of Pakistan Analysis of Political Structure of Local Bodies in

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Berkeley Journal of Social Science
Vol.2, Issue 10-11, Oct-Nov 2012

Political System of Pakistan

Analysis of Political Structure of Local Bodies in Pakistan
Mughees Ahmed
Saadia Saleem
Iqra Iftikhar
Abstract
Pakistan has been exercised different forms of Political system like Presidential, Parliamentary,
Federation and One Unit etc. Local Bodies system has also been influenced by these experiences.
It has been facing Political, non-political, dictators and bureaucratic influence on it. Pakistan has
poor facts of democracy. It has been ruled by the military. While the Military governments
always generated mistakes with the politicians. Military Governments always formed the Local
Government systems as per their own requirements to protract and prolong their governments.
This paper is an attempt to examine political influence on its original structure. Historical, Social
and political aspects are also discussed in this piece of work
Key Words: Decentralization, Nazim, Naib Nazim, Tehsil, Zila, Biradari
Contextual Analysis:
Laski 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.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.2Local 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.3


Chairman/Associate Professor, Department of Political Science, Government College University, Faisalabad

M.Phil Scholar, Department of Pakistan Studies, Government College University, Faisalabad.

Teaching Assistant, Department of Pakistan Studies, Government College University, Faisalabad.
1
Muhammed Asif Malik, Local Self Government in Pakistan, Lahore; Publishers, Emporium, 2006, p .16.
2
Azam, Muhammed Chauhdary, (2005). Local Governments: Abdullah Brothers, Lahore; p.70.
3
MugheesAhmed “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

1
Berkeley Journal of Social Science
Vol.2, Issue 10-11, Oct-Nov 2012

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.
Political structure and Local Bodies system
Since August 2001 it had been a period of transition as well consolidation. The Local
Government representative and elected Nazim’s 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.4
Political Decentralization Indicators:
Indicators Sector Macro( Local)
 Importance of elected
bodies in sector policy  Multi-part Local Government
formulation elections

 Importance of elected  Elected Local Governments

bodies in sector service
 Secret ballot in Local elections
Political delivery
Decentralization  Impartiality of the Judiciary
 Importance of elected
bodies in decisions  Elections held at regular intervals
about levels of sector
 Election free and fair
funding

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

4
Cheema A, Khaja I A and Qadir A (2004).Decentralization in Pakistan: Context, Content and Causes. Kennedy School
Working Paper Number: RWP05-034.

2
Berkeley Journal of Social Science
Vol.2, Issue 10-11, Oct-Nov 2012

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(caste Politics). This relation played an important role during general elections and
influenced the result at Local level.
Andrew Wilder’s 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. This had two important
consequences. First, 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 representing national interests. The second important consequence
was that this put the PPP, which had not actively participated in Local Body politics, at a severe
disadvantage”.5

The Local democracy and Local Government played an important role in the political arena. The
relationship between the MNAs /MPAs especially with the Local Government and elected
Nazims were very critical. The Local Government was established to reorganize the political
culture by creating apolitical ownership of the institutions and their outputs.
Dimension of Decentralization
Dimension Definition Dimension ofDecentralization
ofDecentralization In the Context of Faisalabad

5
Wilder, A. R.(1999). The Pakistani Voter: Electoral Politics and Voting Behavior in the Punjab.Karachi: Oxford University Press;
p.133.

3
Berkeley Journal of Social Science
Vol.2, Issue 10-11, Oct-Nov 2012

Political Legislative and  WereCouncils constitutionally

Decentralization transfer policy recognized as level of Government?
power from central
 Had District, and Union Councils been
to Local councils
elected under a democratic constituency
that had been
based, free and fair electoral process.
democratically
elected by their  Could Councils set policy within
respective theirjurisdictions – do their resolutions have
constituencies legal weight?

 Did they have a clearly assigned roles

and functions vis a vis other levels?

Source: World Bank, 2002 Table: 6

It is fact that political decentralization was fairly completed by various steps. Through phased
elections Local Government was formed. After that result the mandates were also shifted to
Local Council. Mr. Rao Asif felt the greatest advantage of the new system. He was happy that
Devolution plan gave the awareness amongst young people; He thought that we should
encourage the young people to stand as candidates in Faisalabad society particularly those in
rural areas.
During Devolution Plan citizens elected their representative in the conditions of political
freedom. It was necessary for this representative to reflect the needs of the community they serve
but we can identify the following issues in the set-up of Local Government System in
Faisalabad.6
Role & Responsibilities
There was no clear plan about the roles and responsibilities of Union and District Level elected
representatives. For example all elected representatives, Union Council Nazim and NaibNazim
were not clear about their powers in relation to the police authorities and generally about law and

6
Paracha, Saad Abdullah, (2003). Devolution in Pakistan: Context,implementation and issues. Available at: www.policy.
Hu/paracha.

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Berkeley Journal of Social Science
Vol.2, Issue 10-11, Oct-Nov 2012

order. The fact was that 79% of the councilor contested the election for the first time and 64% of
them did not have any family member who participated in the election before this process.7
Amongst the 21% of illiterate councilors the women were 69%. Poor communication and poor
coordination between Union and District Government tiers was also a big hurdle in the flow of
information. The District Nazims and the councilors were feeling pressure from public after
election. District Nazim provided the political leadership for the development of the District and
made the policies that could improve the quality of life of people both present and future. He
could plan a development program and sent a budget to the District Council for progress of the
District but the non – availability of ‘Rules of Business’ was a big problem.8
Capacity

In the Local Government election majority of councilor belonged to those families that were
entered for the first in the Local Government politics. Under this Local Government system, the
elected councilors had lack of knowledge, experience and skill to understand this system.
Majority of the voters as well as the councilors did not know the basic features of the
DevolutionPlan. Capacity had emerged as one of the very important part on the functioning of
the new Local Government system.9

Social Setup

Social set up of communities based on caste, and families. It was the basic constitute. It becomes
apparent that voting behavior was most likely to be considered by social instead of political
factors. “Traditional” group loyalties of family, factions or biradari were a major influence in
the voting decisions of the people of Faisalabad. Modern political factors such as party loyalty,
patronage were not that important.

The biradari (literally brotherhood) was the most important kinship system operating in
Faisalabad. It had been defined as a patronage whereby all men who could trace their
relationship to a common ancestor, no matter how remote, belong to a biradari. As a term, which

7
Lunberg P (2002). A comparison of decentralization in Pakistan and Nepal [Paper].
8
Kibria, Ghulam, (1999). A Shattered Dream: Understanding Pakistan'sUnderdevelopment, Oxford University Press.
9
Lunthans F (2002). Organizational Behaviour. 9thed. McGraw–Hill, Kogakusha LTD: p. 537

5
Berkeley Journal of Social Science
Vol.2, Issue 10-11, Oct-Nov 2012

was not very precise it could also be used to describe other relationships. In Malkhanwala,
people felt that voting for the biradari in rural areas would be more common than in urban areas.
This was because rural set up was more traditional and provided security to vote within family
clans.10
“A public body is staffed by appointees rather than politicians or civil servants”. 11
“In United States, Mayor is most frequently separately elected as the political leaders of a
council. In smaller US citied the Mayer is a figurehead and the city is run by an unelected
‘city manager’. In Britain, councilors are commonly members of the party group of the city
and he majority party’s leader became the chair of the council”.12
However it is difficult to understand whether people voted according to their biradari or
voted because they wanted to elect the right candidate. It his system which has a strong
holds on society, there was evidence that people were beginning to give importance to
voting.13
Continuity
The question of stability of system looms large in the minds of the elected representatives.
History of Local Governments in Faisalabad showed that environment of National and Provincial
legislature was not suitable for proper running of the Local Governments.14
Relationship between Three Tiers of Local Governments
Strong democracy demands respect, cooperation and strengthened coordination between the
different tiers of government. This thing will promote the greater association of national,
regional and local priorities. The problem with this Local Government was the difference in
separation of roles between the three tiers of Local Government. The Constitution of Pakistan

10
MugheesAhmed (2006). Caste system in the Sub –Continent , in Al- Siyasa- A Journal of Politics, Society and Culture –
Issue No, IX, Lahore, p. 30.
11
Andrew Heywood, (1997). Politics, London : Macmillan Press Ltd., p. 130.
12
Ian Mclean, (1996). Oxford Concise Dictionary of Politics (New York: Oxford University Press, p.291.
13
Ahmed Mughees (2006). Caste system in the Sub –Continent , in Al- Siyasa- A Journal of Politics, Society and Culture –
Issue No, IX, Lahore, p.35.
14
Khan S (2004). Local govt. & participatory rural development (PhD Thesis). Gomal University, D I Khan, NWFP,
Pakistan; p. 52.

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Berkeley Journal of Social Science
Vol.2, Issue 10-11, Oct-Nov 2012

encouraged the Local Government institutions because it was composed of elected

representatives of areas.
With devolution, the function of Provincial government was significantly changed. This
separation was particularly in the distribution of development funds. This thing was creating
uncertainty between the councilors. At that time administration directly reports to the Councilors
about the different projects of the particular area. Most of them did the complain of
defenselessness in commerce with the bureaucracy particularly relationship between Local,
National & Provincial Governments.15
Constraintsto Work
Most of the elected councilors belonged to blue-collar class. They faced the problems in getting
stipend and traveling allowance this thing was creating the anxiety among the members of Union
Council. The councilors had high expectations from the system. But the fact was that no chance
had been given to them to complete their hope. Dr. Qureshi, a former lecturer at the Agriculture
University thought that the idea of Devolution and involving the Local communities in the
decisions and projects was a very good and important step. He felt that Union Council 185 had a
very good team but was concerned whether they would receive the necessary funds to implement
all their area improvement projects. Would the team have the human and financial resources to
stimulate Local economic development which was very important for the area.16
Relationship between Local, National & Provincial Governments
The civilian government announced the development funds for the particular members after the
arrival of elected national & provincial government. Even the civil government did not discuss to
the District government about these funds. This interference in the Local Government system
created resentment for the Local government.
To solve this problem Local Government Commission (LGC) was established at Provincial level
as an oversight committee for the LGO. Local Government Commission (LGC) was established
to solve the problems between Districts, Provincial Government and District Government or

15
Bird, Richard M., Francois Vaillan court, Maree Tait (Editors), (1999). Fiscal Decentralization in Developing Countries,
Cambridge University Press.
16
Abid, S Q (2004). Development of Local Government in the Punjab: A Critical Assessment. IST ed. Beacon books, Lahore;
p.128.

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Berkeley Journal of Social Science
Vol.2, Issue 10-11, Oct-Nov 2012

between District Ombudsman and District Nazim. But this Commission was established very late
in 2003 and it did not perform the nominated aspect as yet.17
Relationship between Councilors& Member Provincial Assemblies
MPA’s were creating the pressure at the Union level. They thought that MPA’s have competent
authority on every information, related to the District. Province was involved in budget process
and could issue the notification. But the Councilor priorities were different than MPA’s. That
was a big thing in defeating the purpose of grass roots approach.18
Political Affiliations
Local Government Elections in Faisalabad were heldonnon-party basis but theelected Councilors
had political attachment and opposition among the parties. That was the big problem in the
progress of Local Self-Government. People of rural area did not know how to cast their vote and
a large number of 18 years olds gave them a permission to cast their vote. Majority of the people
did not know the actual feature of the plan. The social system of Faisalabad impacts the political
system. Local identity and local issues were the part of Faisalabad politics. People cast their vote
according to their political affiliation. So this political affiliation and the opposition among the
parties were the big hurdle in the progress of the process of Local Government.19
Qualification Disjoint
Qualification distinction between the literate and illiterate members was a big obstacle in flat
implementation of Local Government system. It was more and more basic that reservation of
seats for Women alone was having little effect on this system .68% voters in rural areas and 54%
voters in urban areas did not know how to cast their vote. In urban areas, the maximum
awareness about the number of seats in the Union Council, the category of seats or about any
other aspect which was related with the Union and District election did not exceed 60%. Mrs.
Humera Naz is the wife of Ch. Zahid Nazir . She contested the election of Union Council as a
Nazim and keen to promote women's issues at the Local Community level. She had been heavily
criticized by her neighbors for standing in the elections because she was a woman. Although she
felt that 33% of seats reserved for women was a good start. She felt that more needed to be
17
Lunberg P (2002). A comparison of decentralization in Pakistan and Nepal [Paper].
18
Kukreja, Veena, (2003). Contemporary Pakistan: Political Processes, Conflicts and Crises, Sage Publications.
19
MugheesAhmed (2006). Caste system in the Sub –Continent , in Al- Siyasa- A Journal of Politics, Society and Culture –
Issue No, IX, Lahore, p. 82.

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Berkeley Journal of Social Science
Vol.2, Issue 10-11, Oct-Nov 2012

done.She said that it was important for women to be given the opportunity to participate in the
elections and to stand as candidates. She said that only women could understand women's issues
and better represent them at a political level. As a Nazim she tried to draw attention of the high
authority to women's issues and those that affect our lives. The most common problems facing
women are related to our neighborhoods, with poor sanitation, sewerage, and roads and of course
girl's schools. These problems require immediate solution. She said it is not easy for women to
work as Nazim since there are many cultural and social barriers.20
Woman was given 33% of seats in the Local Body election. Now it was expected that this thing
would put a significant impact in the implementation of social policies and it would bring a
tremendous opportunity for the woman to play an important role but Women Councilors
complained about non supportive behaviors of Nazims and NaibNazims in different part,
particularly in releasing of funds, traveling allowances and honorarium at different time. Woman
feels uncomfortable participating in meetings.21
The women were not paid any remuneration. This was great disadvantage for the women because
they did not have any source of income. An issue about the training of women councilors was
also very important. The women were elected as a counselor for the Local Body had lack skills to
be effective in their role. This training was very much necessary to understand the roles of Local
Self- Government. Some programs were started for that reason but they did not appear to be
effective among the women councilors of the District.22

A survey has compiled the problems faced by elected women.

Ranking Problems
1 Discouraging attitude of male councilors

20
Hye, Hasnat Abdul (Editor), (2002). Governance:South AsianPerspectives, Oxford University Press; 107- 113.

21
Goetz A M, Gaventa J (2001). Bringing Citizen Voice and Client Focus into Service Governance in Six Countries. World
Development, 28 (1): 21-29.
22
Khan, Hamid, (2001). Constitutional and political history of Pakistan, Oxford University Press; p.109.

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Berkeley Journal of Social Science
Vol.2, Issue 10-11, Oct-Nov 2012

2 Lack of funds for development work

3 Discouraging attitude of community
4 Lack of power
5 Lack of information
6 Discouraging attitude of Nazim and NaibNazim
7 Lack of experience and skills
8 Family Pressure
9 Lack of money to attend council session another meeting
10 Lack of proper roads etc.
11 Lack of transport facilities in my area
12 Domestic work
13 Children
14 Lack of confidence
15 Economic activities
Source: World Bank, 2002 Table: 6

Conclusion
There is room for reviewing the system of local government for resolving people’s
problems on the local level. Their elections should be held on party basis. District mayor should
be nominated from political parties and it should be announced prior to the local body elections,
so that the municipal candidates run their campaigns in the form of an ideological group. In this
way, different Biradaries would be allowed to come forward, and Biradarism would be
discouraged in a way, and this would benefit the common people, rather than some specific
Biradari. People think that their problems like odd jobs, access to key local posts, transfers etc.
can be resolved by the district mayor. And if the mayor would be from their Biradari, then it
would be easier to get the work done, in fact it would be a hindrance for the opposition Biradari.
There is need to eliminate such concerns and expectations.

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.

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 Berkeley Journal of Social Science
Vol.2, Issue 10-11, Oct-Nov 2012

Various levels of Local institutions had elected thousands of men and women for organization
the smooth function of Local Self -Government.
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.
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.

11

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