The Role of Civil and Military Bureaucracy in Ayub Period

Political Situation
At the initial stage, the zeal of the public, politicians and every institution to stabilize the
country was appreciable. But after a few months, clashes among the political leaders
appeared that were suppressed by Quaid-e-Azam. After the death of Pakistan’s founding
father clashes mounted again. The founding Party, Muslim League had lost its prestige due
to confrontations among its leaders. The lust of power was at the peak which gave a rise to
the regional differences, a fight for gaining the rights on the issues of language, mode of
elections, representation in the national assembly and distribution of sources among the
regions was started. Described situation halted the way of constitution making in Pakistan.
Four governor generals, seven Prime Ministers and a president came in the short span of
11 years in Pakistan which revealed the political instability in this period.

Military Takeover
The military had the tradition to remain at distance from politics during the British period.
It did not take part in the movement of independence. After the independence it remained
loyal to the civil governments and played a role in helping the civil government in
maintaining the law and order, to secure the country and also in disaster management.
Later it succeeded to influence the civil authority and played a role in decision making,
Ayub Khan became a defence minister, and he was observing the political situation from a
long time. He toured both wings of the country and reached at decision to take control of
the country. Military came into power due to the failure of the political situation. The
military takeover declared on the night of 7 th October 1958 and completed on the 27th
October 1958 with the resignation of Sikandar Mirza.

Military Regime and Its Role

The major function of the military is to save the country from external and internal
aggression. After coming into power, the military wanted to bring a change, eradicate the
evils of the political system, solve the problems of Pakistan, and was ambitious to repair the
derailed political system, institutions and public life. On the other side, general public was
disappointed due to the worse condition of the country and hoped for a stable government
through the military. So, at first the administrative structure was revived, appointed a
committee to investigate the problems and various commissions were appointed to report
on the different problems. Brief analysis of the role of the military or steps taken by the
military government is given below.

Military in Civil Administration

One can pay tribute, without any reservation to Ayub Khan as a good administrator.
Immediately after taking the charge, military successfully established the central
government despite facing the little bit opposition and separatist tendencies from the
princely states. On 7th October, 1958 the constitution of 1956 was abrogated, national
assembly and provincial assemblies were dissolved, judiciary remained in practice,
fundamental rights were suspended. A new administrative structure was introduced by the
military government.

The whole country divided into three zones, A, B and C. Zone A stand for Karachi
and Malir, Zone B for West Pakistan and Zone C for East Pakistan. All zones were under the
Martial Law Administrator. Zone B and C were further divided into sub zones under the sub
martial law administers. First, advisory council was formed which was consisted of
secretory general and secretaries of different Ministries. Chief martial administrator and
President was Ayub Khan, his first cabinet was consisted of three Armed Forces C-in-C’s.

Role to Eradicate existed social evils

Steps were taken to Eradicate: Corruption, smuggling, black marketing and nepotism in
bureaucracy. (Please read page 98-101 and explain the measures taken by
government to eradicate evils)

Eradication of Economic Malpractices

The economic condition of the Pakistan was deteriorated due to illegal possession of
foreign exchange, the submission of falls tax returns, evasion of taxes and sale and
purchase of import permits. Military government announced strict measures to check and
eradicate these illegal practices. (Please read paragraph second, page99).

Family Law Ordinance

The military government gave great care to the imposition of the Family Law Ordinance,
1961 which protected the women and regulate the numbers of wives, patrons of divorce,
maintain the allowance for divorced women their children. It also regulated the marriage
age limit for male and female. It also introduced the law of inheritance. Please Read page
102-103.

Labour Reforms

At first military government imposed the ban on agitation and strikes in the public utility
works to restrict the disturbance of any kind. In case of violation of the order punishment
of 10 years’ rigorous imprisonment was announced. However, military government was
ambitious to increase the production for which policies were introduced for the betterment
of workers and equitable distribution of wealth.

Education Reforms

Page no. 108

Role in Constitution Making

One of the most pressing tasks before the government at the time of independence was to
make a constitution that was not came into fact until 1956. Delay in conducting the
elections took a new turn and military government came into power. Military government
also had a role in giving us a constitution, 1962. A Law Reforms constitution Commission
was formed in December, 1959, purpose to improve the legal system inherited from the
British and to make speedy and less expensive justice. (Please add from page 104
paragraph -2-3).

Role in Economic development

The Military government was ambitious to improve the living standard of the people. For
this, the government did its best to ensure economic development and industrialization.
please consult page no 110 for policy measures, industrial and agrarian reforms .

Role in political development

To turn now to his political role of the military government, the most important task was to
eradicate the political evils prevailed in the country from 1947. Political leaders were
indulged in lust of offices and intriguing to maintain powers. General elections were not
conducted during this period. In the short span of 11 years seven prime ministers were
failed to maintain their position. By the 1958, the political situation was unmanageable, and
then Iskandar Mirza asked military to takeover.

It should be noted that parliamentary democracy was existed in Pakistan during the
period from1947 to 1958, but, in fact the political framework had become superstructure
to which the public was never admitted. Ayub attributed for this situation to the politicians
and illiteracy and immaturity of the peoples. He banned the political parties and stick
measures were adopted to remove the corrupt politicians.

He introduced the Basic Democratic System, the concept of Basic Democracy is

political education, under which the president, national and provincial assemblies were
elected by BD members. Direct elections were conducted at the lower level and were held
two times during the first military period. The role of Basic democrats was advisory. They
have some powers in local governments in the union council. They perform certain
executive task in local development and theoretically at least. They have some powers of
decision in settling local disputes. Ayub’s political framework was sound good despite
having the drawback that a great deal of powers vested in the hands of Ayub’s persons.

The Role of Civil Bureaucracy in Military Régime

Historical Background

At its birth, the administrative positions of the country were vacated by former Hindu
bureaucrats who were more competent and trained due to the preferences of their colonial
masters. The vacancies were filled in by the ill-trained bureaucrats of CSP (Civil Services of
Pakistan renamed from ICS) who were given quick promotions. Muslim league lacked
professional ability to run administration therefore it greatly relied on these officers for
guidance. After death of Liaquat Ali Khan, Ghulam Muhammad became governor general of
Pakistan and that was the time when the bureaucratic manipulation of the state structure
was at its peak. He not only dismissed Mohammad Ali Bogra’s cabinet but also integrated
four provinces of West Pakistan in one unit. K. B Sayeed in 1958 in his book The Political
Side of Pakistan’s Civil Services, noted: “Today is the government of Pakistan the civil
servants often play an even more powerful role than that of their imperial predecessors
(British). This ascent of power has been both steady and dramatic.”

Ayub Era and role of Bureaucracy

During the Ayub era , bureaucracy had a significant role. Executives of this era were
members of either civil or military bureaucracy and they had full control of the Pakistani
political system. In 1959 President Ayub khan appointed a pay and service commission to
examine structure and organization of civil services of Pakistan and recommend any
changes. This was done just to shape the bureaucracy in such a way that it continues to be a
support for Ayub.

Role in administration:

The military largely depend upon the civil administration to run the country. Secretary
General of Government of Pakistan, a civil servant, was appointed as the deputy Chief
Martial Law Administrator. The composition of the President cabinet was reflected a
mixture of civil and military leadership as three members of his cabinet were civil servants.
However, the operation of Martial Law through the civil machinery dose not means the real
powers in the hands of civil bureaucracy. The military bureaucracy was served as the brain
and civil bureaucracy as the hands of the military. But they could not expand it outside the
institutional boundaries. Their control on bureaucracy was also limited because of high
dependence and constitutional guarantees of tenure.

The Role of Bureaucracy in the land reform

Though the civil bureaucracy was go hand in hand with the Military but it had a role in
damaging the policies of government. The land reforms launched by Ayub Khan failed to
break the monopoly of the big landlords because of the feudal system and the real benefit
of the four-tier basic Democracies System could not permeate down to the roots as the real
powers vested in the hands of bureaucrats.

Role in Constitution Making

Ayub’s era also gave us the constitution of 1962 which was a brainchild of his well
nourished bureaucratic advisors or civil bureaucracy.

Role in Policy Making

This era hence gave the bureaucrats wide discretionary powers in spheres of policymaking.
One of the examples is the Planning commission. Prior to 1958 the commission had only a
minor role but later it became a division in President’s secretariat and its key posts were
held by bureaucrats.

Bureaucrats also headed the public corporations like Pakistan Industrial

development corporations, Investment Promotion Bureau etc.

In short they monopolized all strategic posts during the military government. A
Nokarshahi (bureaucratic rule) imposed a caste system in our society. However we did
witness enhanced economic growth in that era, but failure to strengthen institutions based
on popular consensus and the determination of civil-military to dominate decision making
ensuring exclusion of political elites combined with other factors led us to the sad incident
of fall of Dhaka.

Please also read the following page to understand the role civil bureaucracy in basic
democracy.