NAR RN ROI Nt ae 1 272 ADMINISTRATIVE IMPROVEMENT | Administrative Improvement Need Of Administrative Improvement ‘The main objective of public administration is to provide service to the people, to look after the interest of the people and to achieve certain goals. But the service provided, the interest to be looked after and the goals aimed at are not static, but they need change. with the passage of time. Because of the dynamic nature of administration, it needs nprovement in response to the changing conditions in society. For example before independence the administration of Indo-Pak was designed to the service of British masters, but after independence, the administration of Pakistan changed its objective from the service of masters to service of the people. Thus for this purpose the need was felt for improving administrative machinery of Government of Pakistan. Moreover the transformation from police state to welfare state also needed rapid change in administration. Meaning of Administrative Improvement: First of all we should know the meaning of administrative improvement; which is an important issue in the present day public administration. It means the affecting purposive changes in the existing administrative structures, procedures and methods and in the behavior of administrators. Such changes are aimed at improving the efficiency and effectiveness of the administrative machinery, and the capabilities of the administrators, to carry out the ever-increasing responsibilities of welfare state. This shows the close relationship between administrative improvement and administrative reforms. In fact, the aim of administrative reform is administrative improvement. ‘Administrative improvement requires structural and procedural changes in the administrative system and the behavioral changes in the administrators. Structural changes involve reorganization and major shakeup of the machinery of government; which are concerned with division of governmental functions, delegation of government's powers decentralization of central authority, creation of autonomous agencies and coordination of these agencies. Procedural changes involve the introduction of new filing methods and new typ® of forms, change of work procedures and abolishing of red-tapism, and introducing the efficiency rating. Behavioral Changes are to improve interpersonal and intergroup relationships of the individuals and to inculcate the sense of service to the people among the bureaucracy. eee eee eee ee ee eePUBLIC ADMINISTRATION with The democratic mana honest employees, are the see behavioral change, ADMINISTRATIVE REFORMS IN PAKISTAN By introducin, reririetearioatee ae pase structural, procedural and behavioral changes in state. The review and ernie aS itis possible to meet the challenges of modem welfare general precedes the gga sition ofthe working of the exiting administration machinery The purpose of suey nrauetion of changes and innovations into administrative setup. Teme See and evaluation is to points out the defects and to suggest Pakistan Seated fee rae sual this task is entsted to commission or commits in altempts mgd tye t Purpose. Now, we shall summarize the some of the important pts made for administrative reform or improvement, in Pakistan, Pre-independence Peri 4 The organization structure and procedure of the Government of India Secretariat used to be reviewed from time to time during pre-independence days, with a view to their improvement, particularly in response to changing times. Some of the report which may be mentioned in this connection include the follo 1. Aichison Commission Report (1887) The commission had reorganized the civil services into three: Imperial Services appointed by the Crown, the Provincial Services appointed by the Government of India and the subordinate services appointed by the provincial governments. 2. Islington Committee Report (1912):- The report transferred the certain services to the control of the Government of India and provincial services to the provincial government's control. It also classified the to 1, Il, Ill and IV classes in the place of earlier classification into Superior, services in! 3 Subordinate and Inferior Services. 3. Lee Commission Report (1924):- The commission bifurcated the Impe Indian Police Service (IPS) and Indian Medical Service (IMS). Services into the Indian Civil Service (Ics), 4. Tottenham Co It recommended the re-organt umittee Report (1945) tion of the Central Government of India.” Post - Independence Peri On 11 August 1947. jovernment of P: after independence, e ‘¢ was set up under the chairmanship of 19 make the recommendations regar cure of the Secretariat and its rakistan inherited, were the same as left by the the work of reorganization began, and a Re- ‘Sir Victor Turner, the then ding the strength in each the organization str procedures that the ( British, Only a week ization Committe tral Finance SecretaFORA TEENA) it on ACTEM ah. — 274 ADMINISTRATIVE IMPROVEMENT rank of each Ministry to "determine surpluses and deficiencies in each Ministry,” to make || recommendations for their adjustment and their system of noting and to examine if ‘superintendents could be authorized to dispose of minor cases.? Shortly, thereafter, on 11 March 1948 the National Assembly of Pakistan set up a House Committee to review the organization, structure and level of expenditure of Ministries, Departments and offices of the Government of Pakistan, 5. Munir Report (1949): In 1949, the Government of Pakistan appointed a Pay Commission with Mr, Justice M. Munir as its chairman to report on the standard of remuneration including eave and pensions benefits. which should apply in Pakistan keeping in view its financial Fesources with the object of achieving rationalization, simplification and uniformity in regard to the public services. The report submitted by Justice Munir came to be known as “The Munir Report” Following are the its main points: i, Public Servants "should get such remuneration for their work as enables them to lead honest and respectable lives. ii, The socialistic or quasi-socialistic standard of remuneration must be rejected = because it is not practicable in present politico-economic set up of Pakistan. iii, Iv is nota “right policy for the state to offer such salaries to its servants as to attract the best available material. The correct place for over men of genius is in the private enterprise and not in the humdrum career of public service where charter and the desire to serve honestly for a living is more essential than outstanding intellect. iv. Government should pay so much and so much only to its employees as is necessary to obtain recruits of the right stamp and to maintain them in such a degree of comport and dignity as would shield them from temptation and keep them efficient for the term of their services." 6. Jeffries Report (1952 In 1952. Mr. K.S.Jeffries of the U.K. Treasury, prepared a report on the request of Government of Pakistan, on the "Development of Organization and Methods work in Pakistan's Government." On the recommendations of Mr. Jeffries, the Government of Pakistan established © & M Organization, which is now working as full fledged Division of Government of Pakistan under the name of "Management Services Division.” 7. Egger Report (1953):- In 1953, Rowland Eyger a United States public administration expert, WS invited to examine the public sector organization and management in Government of eeeeR PUBLIC ADMINISTRATION with S; inl Reference to PAKISTAN akistan. The report has come to be known as recommendations are as und i, peta functions should be assigned to the departments and departments should be combined into ministries with the aim of producing units capable of discrete and virtually independent operations. ii, Government act ies essentially commercial in nature, should be organized as Government owned corporations. The center should divest its administrative agencies of direct local government operations which should be left to be handled by local government. iv. O&M units should be made responsible for continuing study of government ry. ¥. Heads of functional operating departments and corporations should have direct access to ministries. vi. Decision making authority should be decentralized. .. The Secretariat should be converted into Ministerial General Staff to advise ministers and departmental heads to manage establishment and financial matters on minister's behalf and to monitor and report progress to the ministers. viii, Government should indicate positively their interest in attracting the best minds in Pakistan to public service and to pay enough to retain in public 1g ability with assured career in public service, men of outstan administration. 8 Gladiex Report (1955):- In 1955, another foreign expert in public administration namely Bernard L Gladiex. was invited to Pakistan to report on the reorganization of Government of Pakistan. He agreed with Egger's report and his main observations are as below:- stries and sub-units, but not enough integration of There are too many’ mi functions into more unified structures. A balance should be drawn to avoid excessive or insufficient government control over public corporations om an admixture of functions into tion The assumption that the Provincial administration suffers tv formulation and the attached partments and a lack of svordinal | various de ink af cnt can remai tw pole vecretariat can remain cont , no ath d implementation is out of date, ! i departments and organizations to polieTE ERA RR AN 8 PERN ML ¥ * 276 ADMINISTRATIVE IMPROVEMENT iv. Secretariat system for development work should be substituted by a system of straight line organizations and broad delegation of authority. ¥. The Secretary to Government should not only be an advisor on policy making, but should be vested with full executive authority and responsibility under the minister. Vi. He recommended for the establishment of Public Service Board instead of Public Service Commission, which will undertake a systematic programme of job-analysis, review compensation levels, and assume jurisdiction over disciplinary cases, training, education, research and welfare. Vii. He also recommended to place the central superior services together with all other professional officers such as engineers, doctors or agriculturalists in a single new civil service of Pakistan."* 9. G.Ahmad Report-I (1956):- In 1956, G. Ahmad was appointed to examine and report on the reorganization of Federal Government. Following are the recommendations of G. Ahmad Report- i. While the federation is supreme in all matters affecting the country as a whole, it should abstain from intervening except under necessity in those spheres where authority is conferred on the provinces. ji, Statistical cells should be abolished in all the ministries.” * 10. G. Ahmad Report-II (1961): In 1961, Mr, G. Ahmad submitted another report on the administrative tion of Federal Government of Pakistan. His main recommendations are as i. To review the organizational structure, functions and procedures of the ministries, departments and subordinate offices of the Government of Pakistan and recommend improvements for efficient and expeditious disposal of business in consonance with the requirement of economy. To survey the staff position of Central Government of Pakistan with a view to strengthening, retrenching, or reallocating staff where necessary. To recommend measures for closer liaison between the Central and Provincial Governments of Pakistan. | iv, To recommend ways and means to ensure uniformity of approach to the reorganization of government ottices at center and in the provinces. v. A section officer scheme should be introduced, meaning thereby that all es cases are disposed of at the level of the officers only. Sag essing ane rea47) Nye emer an a al nt PUBLIC ADMINISTRATION with Special Reference to PAKISTAN 27 vir Policy making should be responsiblity of the secretariat and the policy ‘mplementation that of the attached departments, whose heads should be Vested with wider financial and administrative power and whose technical advice should not be subjected to further technical examination by the ministry concerned, a case referred to the ministry over the signature of the hhead of the department should be placed before the secretary or the joint Secretary in the case of major departments and the deputy secretary in case of minor departments." 11. Shoaib Report (1962):- In 1962, Mr. M. Shoaib, the then Finance Minister, was appointed as a head of the Standing Organization Committee on the reorganization of the functions and structures of Central Government in the light of the Constitution of 1962. He recommended as:- The Central Government should maintain appropriate, but small administrative units in provincial subjects, to keep in touch with broad policy and planning on a national scale, secure coordination and deal with international aspects of the matters. The Economic Committee of the cabinet should be abolished and replaced by National Economic Council which should have an executive committee with the Federal Finance Minister as chairman and Provincial Governors and Deputy Chairman Planning Commission as members, iii, A minister should be concemed only with policy and not with day to day administration. A Parliamentary Secretary should deal with the Parliament affairs and should not be concerned with secretariat work The proposal of the head of departments should not be scrutinized in the iv. administrative ministry by an officer lower than a deputy secretary; nor should there be any technical scrutiny of the proposal in the secretariat, in case of disagreement between the head of department and the Secretariat, the head of department should have direct access to the minister. v.» There should be no bar to technician being appointed to a secretariat post." 12, - Cornelius Inquiry-II (1969 In 1969, the President of Pakistan, appointed Chief Justice of Supreme Court, A. R. Comelius to head the "Pay and Service Commission" to examine the organization structure and functioning of administrative system. The Commission recommended to ‘open upon the civil services to all qualified Pakistanis, regardless of their professional and educational background.” Ayub Khan's reaction was unfavorable to the report, however he opened up the C.S.P. to military officers and he developed a coalition between civil and military services. i‘ Se rrr. ADMINISTRATIVE IMPROVEMENT 278 13, Meer Commission (1973): tn 1973, Meer Commission was constituted to exainine the organization structure The commission recommended as under:~ and administrative functioning, ‘The merger of all services into all Pakistan Unified Grades (APUG) by abolishing the C.S.P. cadre. ii, To discontinue the old services labels like C.S.P. P.C.S.ete. To open up of the eivil bureaucracy (atthe highest level) to non-career civil servants through later-entry mechanism. iv. To recruit all civil bureaucracy on the basis of merit. To divide all Pakistan Unified Grade (APUG) into District Management Group (DMG), Office Management Group (OMG), Pakistan Police Group (PPG) Tribal Area Group (TAG) ete.” 14. Anwar-ul-Haq Report (1979):- In 1979, Mr, Justice Anwar-ul-Hag, Chief Justice of Pakistan, was appointed as Chairman of Civil Service Commission to report on the reorganization of civil service of Pakistan, and to recommend measures for making it an effective instrument for national ‘development. The commission submitted its report to the President in November 1979." Although it was not made public, but most of its recommendations have been released,” which are as under:~ i. It called for implementation of 1973's recommendations in areas of position classification, position description, performance, evaluation, training and recruitment, It also called for implementation of equal opportunity procedures for all government employees. ii, It recommended for the inclusion of constitutional safe-guard to ci servants as found in Article 8 and 182 of the constitution of 1956. iii, It also recommended for the establishment of Pakistan Public Service Commission, which would encompass all posts in the Federal Government. iv. It recommended that Deputy Commissioner should retain the regulatory functions, relating to law and order, policy, treasury, jail and certain other matters relating to general administration. Despite these studies and reports from time to time , the secretariat organization structure and procedures have basically remained unchanged. One relatively significant change however was the introduction of Section Officer's scheme, sometime in 195% whereby a section became the lowest working sub-unit in a Ministry/Di ision under @ _ section officer. Noting below the Section Officer was done away with and he waspecial Reference to PAKISTAN. 279 Sata {0 dispose of relatively minor routine cases at his level. Above the Section icer the tiers of Deputy Secretary, Joint Secretary and Additional Secretary have not only remained intact, but in fact have proliferated. In 1973's administrative reforms the C.S.P. and P.C.S, cadres have abolished and were re-classified into all Pakistan Unified Grades (APUG), Federal Unified Grades (FUG) and Provincial Unified Grades (PUG). In 1983, four significant changes in the se which are: First, lateral recruitment of civil servants was abolished. structure were made; Second, the tribal Area Group (TAG) was & merged into District Management Group (DMG). Third, the reservation for military personnel in civil service was expanded, Fourth, the direct recruitment to office Management Group (OMG) was halted as recommend by Anwar Commission. '* In conclusion, although the evolution of administrative system in Pakistan has followed its own unique pattern, This experience is not totally different from developing countries. Viewed from the perspective of its history and within its political, economic and social environment, civil service in Pakistan has changed overtime although the inherited system remains in tact. It would not be inaccurate to say that it is still the same system, left by the British, Its future role will be determined by the decisions, actions and changes, yet to be taken. Recommendation: The following steps may be taken for the administrative improvements in Pakistan. There is need to improve the degree of specialization in the business of public administration. We should increase the role of specialists in the formulation and execution of policies and programmes in the public sector. There is also need to reduce the size of bureaucracy of non-technical and non-professional character and to replace it by the highly skilled fellows. The emphasis should be shifted from empire building to high qualit administration. There is need to overhaul the whole administration, which was inherited from the British, There is need of replacement of authoritative administration by service-- oriented administration. Authority and coercion may be replaced by service: eeSS eee iv, There is also need to change the official procedure of administr Pakistan, which is hurdle-oriented, We should simplify the office procedure, which may allow the redressing of public grievances. v. There is also need to move freely of personnel from one service or cadre to another service or cadre irrespective of federal or provincial service. ORGANIZATION & METHOD (O & M) During W.W.I, Great Britain adopted, on the, recommendation of the Select Committee on National Expenditure, a system of systematic survey of departmental procedure commonly known or "Organization and Methods". The system became very popular in industry which was aimed at the high production, and time saving for workers. Thus the study resulted in considerable increase in industrial output. Public administration was also deeply influenced by the study of the system. It was first adopted in governmental administration in 1942. when the British Government set up O&M Division in the Treasury Department soon after this O & M units were also established in other departments. The movement spread to the dominion and continental countries. A parallel movement was also started in U.S.A; called as "Organization and Management," covering all large-scale industries and governmental departments. The number of workers employed in O & M units in Federal Government of America alone, runs into several thousands. After independence Pakistan's administration faced many problems of heavy load work and unorganized governmental machinery. To solve these problems Government of Pakistan invited Mr. K.S. Jeffries of the U.K. Treasury to prepare a report on the "Development of organization and Methods work in Pakistan's administration”. He recommended for the establishment of O & M organization. Thus Government of Pakistan established © & M Division in 1952, now is known as "Management Services Division.” Meaning:- The term O & M is used in two senses. In the broader sense it means “Organization and Management" including the study of entire process of management viz. planning, organizing, coordinating, motivating, directing and controlling. tis used in the United States. In restricted sense it means "Organization and Methods", dealing with the organization of public bodies and their office procedures in order to affect efficiency and improvement, The efficiency and improvement signify elimination of duplication. waste and delay by reshaping the organization and by simplification of procedure. It's used in U.K, and Pakistan.