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IDS

INNOVATIVE DEVELOPMENT STRATEGIESISALAMABAD

PROJECT REPORT

USER NEEDS PROFILE OF

EXECUTIVE EDUCATION ON GOVERNANCE

IN PAKISTAN

December 4, 2009

GOVERNANCE INSTITUTIONS NETWORK INTERNATIONALHouse 21, Street 56, Sector F-6/4, Islamabad-44000, Tel: +92 51 2876511-12 Fax: +92 51 2876514

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SUPERVISOR REMARKS

The research study "Users Needs Profile of Executive Education on Governance in Pakistan" was outsourced to Messrs Innovative Development. Strategies, (IDS) Islamabad. The final report is herein being published. The study encompasses the governance discourse, The state of governance in Pakistan and the state of executive education in the country. Based on a survey of relevant training and education institutions in the country, in depth interviews of academicians and professionals and relevant stakeholders, users needs profile of executive education of governance has been prepared. Recommendations preferred in the document should help in planning further action for executive education. The study is well conceived and well executed,and has a number of useful appendices.

Dr .S.H. Ansari, NDU, Islamabad

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ACKNOWLEDGEMENT

The study would not have been possible without the participation of the large numbers of stakeholders in the Focus Group Discussions held in Lahore, Islamabad and Karachi and the even larger numbers of participants who gave freely of their time to individual interviews and to completing the survey questionnaires.

The study was completed with financial support from GINI. The active involvement of Brig.(Retd) Saleem Wains of GINI in all aspects of the study is gratefully acknowledged along with the technical inputs of Dr. Sarfraz Hussain Ansari of the National Defense University, who was the GINI appointed study supervisor. Comments received from participants at two steering committee meetings organized by GINI have helped to greatly strengthen the focus of this study.

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TABLE OF CONTENTS

SUPERVISOR REMARKS...............................................................................................................i

ACKNOWLEDGEMENT................................................................................................................ii

EXECUTIVE SUMMARY...............................................................................................................11. Training Needs of Legislatures (Public Representatives)....................................................................42. Training Needs of Government Agencies/Institutes/Government Functionaries..............................63. Training needs for Local Governments.................................................................................................7

(LG Staff/ Elected Representatives).......................................................................................................74. Training Needs of Think Tanks, NGOs, Associations, Clubs, Chambers and Unions......................8

INTRODUCTION.............................................................................................................................111. Scope of work.........................................................................................................................................122. Methodology...........................................................................................................................................12

THE GOVERNANCE DISCOURSE: DEFINITIONS, INTERPRETATIONS AND ISSUES..........................................................................................................................................131. What Constitutes Good Governance?..................................................................................................132. Building Governance Capabilities........................................................................................................153. Integrating Demand and Supply Side Strategies for Good Governance..........................................16

THE STATE OF GOVERNANCE IN PAKISTAN..................................................................191. Major Constraints..................................................................................................................................212. Governance-Poverty Nexus in Pakistan..............................................................................................233. Governance in the Context of Pakistan:..............................................................................................244. Corruption, Accountability and Governance......................................................................................25

THE STATE OF EXECUTIVE EDUCATION IN PAKISTAN (PAST AND PRESENT) .........................................................................................................................................................311. Early Years.............................................................................................................................................312. The Training Policy of 1960..................................................................................................................313. Teaching of Administrative Sciences at Universities..........................................................................334. Consolidation of the System of Training.............................................................................................335. Administrative Reforms of 1973...........................................................................................................346. Shortcomings in the Training System..................................................................................................347. Other Institutions Providing Administrative Training......................................................................358. Foreign Training....................................................................................................................................369. The National School of Public Policy...................................................................................................37

A USER NEEDS PROFILE OF EXECUTIVE EDUCATION ON GOVERNANCE.....471. Importance of User Needs Profile:.......................................................................................................472. Leading Transformation through “Change Management”...............................................................493. User Categories......................................................................................................................................504. Process of Transferring Knowledge, Skills and Attitudes.................................................................50

CONCLUSIONS AND SUMMARY OF RECOMMENDATIONS......................................64

REFERENCES..................................................................................................................................73

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ANNEX-1 PARTICIPANTS IN FOCUS GROUP DISCUSSION........................................76

ANNEX-2 MAIN ISSUES/THEMES DISCUSSED IN FOCUS GROUP DISCUSSIONS............................................................................................................................80

ANNEX-3 QUESTIONNAIRE FOR STAKEHOLDER INTERVIEWS...........................85

ANNEX-4 NEWLY ADMINISTERED QUESTIONNAIRE.................................................92

ANNEX-5 IN-DEPTH INTERVIEWS: SELECTED TABLES AND GRAPHS..............94

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LIST OF TABLES

Table 1: Elements of Good Governance....................................................................................15Table 2: What Constitutes Good Governance?.........................................................................20Table 3: Which Segment of the Society is Largely Responsible for Poor Governance in

Pakistan?......................................................................................................................22Table 4: Which Segment of the Society is Largely Responsible for Poor Governance in

Pakistan?......................................................................................................................22Table 5: Which Traits Can Lead to Good Governance?...........................................................52Table 6: Which Traits Can Lead to Good Governance?...........................................................52Table 7: Training Requirements For Government Functionaries............................................156Table 8: Training Requirements For Elected Representatives................................................156Table 9: Overall Training Requirements at the District Level................................................156

LIST OF FIGURES

Figure 1: Four Core Elements of DFG.......................................................................................17Figure 2: Demand and Supply Side Approaches .......................................................................18Figure 3: Important Constituents of Good Governance..............................................................20

LIST OF BOX

Box 1: The Interface Between Governance and Development...............................................16Box 2: Findings From a Survey of Civil Servants..................................................................23Box 3: The Three Roles of Legislatures.................................................................................54Box 4: Module on Governance...............................................................................................56

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ACRONYMS

ADB Asian Development BankCNSA China’s National School of AdministrationCSP Civil Services PersonnelCSS Central Superior ServicesCTP Common Training ProgrammeDFID Department for International Development, UKDMG District Management GroupEDI Executive Development InstituteEU European UnionFGD Focus Group DiscussionGINI Governance Institutes Network InternationalHEC Higher Education CommissionIBA Institute of Business AdministrationIDA International Development AssociationIDS Innovative Development StrategiesIPA Institute of Public AdministrationLUMS Lahore University of Management SciencesMIS Management Information SystemsNAB National Accountability BureauNDC National Defense CollegeNGO Non Governmental OrganizationNIBR Norwegian Institute for Urban and Regional ResearchNILAT National Institute of Labour Administration TrainingNIM National Institute of ManagementNIPA National Institute of Public AdministrationNIPP National Institute of Public PolicyNMC National Management CollegeNSPP National School of Public PolicyO&M Organization and Methods DivisionPCS Provincial Civil ServicePIDC Pakistan Industrial Development CorporationPIDE Pakistan Institute of Development EconomicsPIM Pakistan Institute of Management, KarachiPRSP Poverty Reduction Strategy PaperSMC Senior Management CourseSTI Secretariat Training InstituteUNCAC United Nations Convention Against CorruptionUNDP United Nations Development ProgramUSAID United States Agency for International DevelopmentWB World Bank

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User Needs Profile of Executive Education on Governance in Pakistan

EXECUTIVE SUMMARY

Good governance addresses the competent management of resources and affairs in a manner that is open, transparent, accountable, equitable and responsive to people’s needs and problems.

Governance as distinct from government encompasses a wider interactive relationship between government, private sector, civil society and media, which aims to recognize collaborative action as a means to networking to find solutions to public problems. Good governance is increasingly seen as a means towards the achievement of a number of development outcomes. It facilitates in bringing about the necessary framework within which poverty alleviation and broad based economic growth can be effectively realized. Good governance is predicated on a range of interrelated factors including equity in the exercise of authority, accountability, inclusive policy frameworks, efficient and effective management of resources, meritocracy, protection of individual rights as well as access to information, services and employment opportunities for all segments of the society irrespective of wealth, social status and position.

Demand for Good Governance (DFGG) generally refers to the extent and ability of citizens, civil society organizations, and other non-state actors to hold the state accountable and to make it responsive to their needs. As a result, DFGG has the positive impact of strengthening the capacity of the state organs to become more transparent, accountable, and participatory while responding to these demands.

The existing infrastructure for executive education/training in the country is extremely insufficient to meet the needs of users. The total number of government functionaries runs into several hundred thousand: the federal government alone is currently employing over four hundred thousand individuals in BPS 1 to 21; a large number of whom (BPS 16 and up) are directly or indirectly involved in matters of governance at different levels. To these must be added the thousands of executives in the Provincial governments and the autonomous bodies to get an idea of the size of the public sector executive cadre in Pakistan. Those in the private and NGO sector add to these numbers. These executives have very little or no education and training in the governance needs of modern societies in today’s increasingly competitive globalized world. In contrast with the huge numbers of executives the number of training facilities available to provide this executive education in governance is extremely limited.

Not only are the facilities insufficient for meeting the training requirements of a burgeoning user base but the curricula of these training institutions is also extremely limited in terms of the range and the content of the subject matter to address these governance needs. And more importantly, the emphasis on character building of executives which is the cornerstone of governance is largely absent.

The few elite training institutions that exist are criticized for being too mechanical in their approach towards executive education. They are further criticized for placing inadequate emphasis on research (though efforts are now being made to rectify this weakness) in the structure of training programs that require participants to breeze through a number of courses in a short span of time. The evolution of these training programs has not kept pace with emerging user needs.

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The problem being addressed is, therefore, extremely vast and complex. Not only is executive education for governance currently extremely limited but its relevance to user needs is at best unclear.

A successful education strategy at any level seeks to impart the triad of appropriate skills, knowledge and attitudes: knowledge that structures information appropriately to invoke critical thinking; problem solving and sound decision making skills that are relevant for enhancing efficiency and effectiveness and attitudes that selflessly lead towards the cumulative benefit of all.

This report seeks to delineate a user needs profile of executive education on governance in Pakistan for a variety of stakeholders including legislatures, public institutes, local governments, think tanks, NGOs, associations, clubs, chambers, and unions, while co-relating it with the current state of executive education courses/programs being run in public and private sector institutions.

An attempt has been made to assess the requirements of key stakeholders within existing government structures, current societal norms, prevalence of corruption and inadequate rule of law have been kept in view while focusing on some of the key elements of good governance (accountability, participation, predictability and transparency) at all levels,. This needs assessment has, therefore, elicited requirements of a range of key stakeholders within the context of existing constraints and challenges, while suggesting ways of moving towards building an education and training base for executives to ensure good governance.

The methodology used included a Desk Review of executive education on governance in Pakistan involving a thorough literature review focusing on major themes of executive education in the country. The review was used to identify key target areas and lay the basic framework for the development of a questionnaire that was then administered to key informants. The literature review also covered a detailed exploration of the concept of governance. In-depth Interviews with 60 educationists, academics, public servants, prominent personalities including retired and serving bureaucrats and military officials, businessmen, lawyers, judges, academicians, professors, doctors, development consultants as well as a few students and other citizens etc. on the challenges, opportunities and needs relevant to governance with particular reference to executive education formed the next stage of the methodology that was followed. Two structured questionnaires were administered during the interviews. The first one sought to elicit views on wide spectrum of governance issues ,while the second questionnaire, administered subsequently and to a smaller group, was more focused, aiming to obtain more precise demand side requirements of executive education of governance from the constituents to be serviced including legislatures, civil servants, lawyers, doctors, business community, media. Three Focus Group Discussions (FGDs) with groups comprising representatives of the key stakeholder sets in three different cities of the country – Islamabad, Lahore and Karachi were organized to elicit expert inputs on defining problems, assessing needs and proposing recommendations vis-à-vis executive education on governance. . The composition of Focus Groups was deemed extremely important and conscious efforts were made to ensure a broad spectrum of participation. The groups accordingly comprised of participants from a diverse set of backgrounds relevant to the objectives of the study. The FGDs included various levels of bureaucrats and governance practitioners at the national, provincial and local level.

The respondents presented a multi faceted diagnosis of the problem of governance in Pakistan: illiteracy; an inefficient, incompetent and unprofessional bureaucracy; the absence of rule of law;

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lack of genuine political leadership; military interventions; scarcity of justice; intolerance; indifference of the population; lack of accountability, misappropriation of funds and corruption; lack of patriotism and falling standards of probity; financial indiscipline and adhocism; elitism and unrepresentative ruling structures.

The respondents for this study ranked political stability, financial stability, a satisfied population, peace and tranquility, rule of law (fair and speedy dispensation of justice), transparency (transparent implementation of regulations), as more important elements of good governance. A responsive bureaucracy and efficient bureaucracy were considered less important in order of priority. This is an important finding since it shows that the overall socio-political and economic environment is more important than the bureaucrats in determining good governance.

Almost a similar percentage of respondents with public and private sector backgrounds ranked rule of law as either the most important or important constituent of good governance. However, while private sector representatives also emphasized more on political and financial stability as compared to public sector representatives, the latter put more weight on a responsive and efficient bureaucracy.

The current state of governance in Pakistan cannot be seen in isolation from the institutions that have run the affairs of the state through the years, i.e. the political, military and bureaucratic elite. Understandably, these three institutions are most often blamed for the current state of affairs. Individual interviews conducted as part of the study reflect the obvious. A predominantly high ratio of respondents categorized civil servants as mostly responsible for the persistence of poor governance in the country, followed by politicians, the army and the judiciary.

The most organized system of executive education for public functionaries presently exists in the institutions under National School of Public Policy (NSPP). They are finally selected by the Establishment Division, mostly from amongst those who had entered civil services through CSS (Central Superior Services) examination. There is also sprinkling of other civil servants e.g. officers of the provincial services. The most important consideration for selection is the fact that an officer has entered the promotion zone. Selectees thus form a heterogeneous group, belonging to different services (i.e. occupational groups) The Executive education programs seek to transfer an institutionally determined set of skills, knowledge and attitudes to the participants, with a view to helping them to perform their functions and roles more efficiently, effectively and in a more responsive manner. The focus is not on specialized educations but on preparing them to hold higher managerial positions.

However, more than sixty percent of the officers of the federal government belonging to ex-cadre position do not undergo any training in their career; either to upgrade their technical skills or general management/executive education. The number of training institutes should be increased manifold in order to address requirements of the training of specialized and ex-cadre personnel. In order to pay due attention to the training of specialized services/ex-cadre officers, a policy making institutional mechanism should be set up in the form of a separate Division which may also be made responsible for ensuring that user need profiles of functionaries belonging to cadres (including ex-cadre officers) not yet covered by the Establishment Division are prepared. Provincial governments should be also encouraged to streamline their systems of training and expand the functional scope of their training institutions to encompass specialized cadres/ex-cadre functionaries.

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This study has identified a range of subjects around which the curricula for executive education for good governance needs to be developed. These are presented below in alphabetical order:

Administrative History of Pakistan; Art of Negotiation Communication Skills Comparative Analysis of States and Societies; Conflict Resolution; Critical Thinking Economic Development Effective Human Resource Management and Time Management Governance under Islam Human Development; Management; Moral Sciences/Character Building; Nation building; Participatory Development; Performance Evaluation; Policy Implementation and Monitoring Frameworks; Policy Planning and Economics; Research Methodology Social, Economic and Political Problems; Sustainable Development; The Holy Quran and Life of the Prophet (PBUH) Theory of Governance;

This study finds that the certain core training is common to all the User Categories. These are:

Management Formal and informal mechanisms for dispute resolutions/grievance redressal Gender studies E-governance: e-participation, e-administration and e-service delivery1

This user’s need assessment has focused on four major groups. The executive education/training needs for good governance for each group are described below:

1. Training Needs of Legislatures (Public Representatives)

As a starting point, the legislature as a User of executive education programs needs executive education to develop a thorough understanding of the three core functions of the legislature.

A large body of training manuals and materials has already been developed by organizations in the public and private sectors that can be further built upon for use in executive education courses for legislatures.

1 E-Governance is important for enhancing government and public institutions efficiency, transparency and accountability, makes communication better between the government and the citizens and gives citizens a stronger voice in government processes.

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Similarly, in their capacities as public representatives, lawmakers and overseers of the executive branch, it is important for executive education programs to develop a basic set of knowledge, skills and attitudes within legislators to enhance their sense of responsiveness, accountability and transparency. Any executive education program for legislators needs to devise ways and means for inculcating the following:

Developing Attitudes: Any executive education program developed for public representatives should try to pass on the following attitudes for better prospects of good governance to materialize. 1. Awareness of their being trustees, bound to discharge their duties with honesty and

competence.2. Conscious of the need of remaining in constant touch with constituents.3. Willingness to share information with constituents and ordinary citizens. 4. Willingness to provide constituent services. 5. Conscious of the need to actively participate in parliamentary proceedings.6. Willingness to propose laws that reflect society's needs and the interests of the

marginalized.7. Willingness to take up issues related to corruption, mismanagement and human rights

violations by executive authorities.

Transferring Appropriate Knowledge: Similarly, the following knowledge set is felt essential by legislators: 1. Concept of Governance with special reference to the responsibility of the legislature /

legislators.2. Principles and practice of lawmaking3. Constitutional provisions and legal framework of the country / provinces 4. Process of budget making and preparation of Annual Development Programme5. Country's international obligations under treaties, conventions and protocols including

those with IMF / World Bank / Asian Development Bank.6. Standard operating procedures with regard to parliamentary debates, asking questions,

legislation, parliamentary committees, etc. 7. International standards of accountability, transparency and basic freedoms.8. Globalization 9. Foreign policy10. Security Policy11. Industrial / Commercial Policies

Transferring Appropriate Skills

1. Management of allocated funds2. Methods and techniques of taking legislative initiatives.3. Methods of sharing information with the broadest set of stakeholders 4. Techniques of establishing network with academia and intelligentsia:

Mechanics of Executive Educations for Legislative/Legislators

The parliament may get the appropriate courses designed by experts and may like to associate NSPP in this process pending that, a begining may be made by holding 5-7 day workshops. The Provincial Assemblies may like to take similar action.

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2. Training Needs of Government Agencies / Institutes / Government Functionaries

Under this category three users categories were defined: i) governments as the employer of participants in various training programs, ii) public functionaries who undergo training and iii) functionaries who manage these training institutes. i.e. provider of the executive education.

For the first two categories it is recommended that:

i.) The curricula of all courses in NSPP institutions should be reviewed every year. An advisors Committee, drawn from various sections of society including academia, ex-civil servants, business leaders, corporate executive and civil society, may be associated with the exercise.

ii.) Current load of course work needs to be rationalized and made more manageable. i) A dedicated module should be developed on Governance.ii) As users, legislatures, local governments and the civil society would want to enlarge the

scope of current curricula to add subjects like community mobilization, grassroots development and participatory mechanisms for assessing, implementing and monitoring projects. These subjects have assumed particular importance within the new paradigm of devolved governance. Their inclusion may be considered.

There are various specialized occupational groups within these categories whose executive education needs presently are not catered for at all. As part of this report, a number of individuals with wide ranging experience in training and capacity building were approached to identify the specialized areas in which government functionaries should be imparted training. Based on their observations and on the research carried out for this study, several areas were identified. These are listed in the report. Further work in this connection needs to be done in a separate study.

The third category of users under this group is the functionaries managing training institutions. They suffer from a great disadvantage of not being intimated as to what their client (the government) needs. In absence of this critical input institutions have been using their own judgment and coming up with curricula and methods of training. The only feed back as to their success or failure is provided by participants in their evaluation. No evidence is available whether this feedback is used at all or to what extent it is used to correct the course. Nor is there any special effort at self examination as to whether the mission of the institution is being achieved or to what degree it is being achieved.

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This study recommends that the dedicated module on governance training should at a minimum cover: Concept of Governance Major Constraints to Good Governance in Pakistan Ethics in Public Service/Attitudinal and behavioral change Building Governance Capabilities Character Building Combating Corruption Accountability Mechanisms including Administrative Arrangements,

Ombudsmen and Courts. Rule of Law Fundamental Rights Administrative Law and Law of Torts Transparency / Dissemination of Information Monitoring and Evaluation Principles of Supervision Participatory Development Innovations in Service Delivery / Response based Performance

Incentives and Participatory Action Planning E-Governance Case Studies on Governance Practical Exposure to Interface meetings with Citizens and Public

Complaint Handling e.g. Open Kutcheris


Given the critical importance of training under the NSPP institution one is not sure if the core faculty is world class. Likewise one is not satisfied despite substantial increase in emoluments if the psychic income of trainers has also increased i.e. whether an assignment in NSPP is regarded as a prestigious tour of duty by civil servants as a class. This is an old problem, still persisting but requiring a satisfactory resolution.

For this third group the following recommendations are made:

i. The government should start conveying in detail its training needs to the executive education institution. The Board of Governors of these Institutions, as a standard operating procedure, should assess if the needful is being done.

ii. The Board of Governors should regularly assess if the training programs are delivering, particularly keeping in view the mission statement of institutions.

A world class core faculty should be recruited and efforts should be made to retain it.

Presently the executive education systems proceed on the assumption that once an officer has completed the National Management Course it is the end of the road. Thus the process of education stops as far as the officers of the rank of Additional Secretary/Secretaries are concerned. This is not a correct approach, functionaries occupying the vantage points in the bureaucracy very much needs to refresh the need for having correct attitudes. Obviously no long course of executive education is practical in their case. But a one day retreat of secretaries to deliberate upon various policy issues specifically including governance is strongly recommended.

3. Training needs for Local Governments (LG Staff/ Elected Representatives)

To develop a thorough understanding of local governments for good governance at the district and sub district levels, the following topics are essential for executive education programs:

The Local Government Ordinance 2001, Division of Powers and Jurisdictions, Roles of Public Representatives and Government Functionaries, Monitoring and Evaluation, Citizen Community Boards and Musalihat Anjumans, Project Management, Financial Management and Budgeting, Political and Social Activism, Community organization, Participatory Needs Assessment, Conflict Management, Women Rights and Violence against Women, Lobbying and Networking, E-Governance Governance under Islam Social Audit/Community report cards

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A training needs assessment based on a survey of government functionaries and public representatives at the district level in NWFP identified certain core training domains (Government of NWFP 2001). These training areas and courses are described in the report. It is recommended that other Provincial Governments may like to draw upon this wealth of material and adopt suggestions made in the NWFP report.

4. Training Needs of Think Tanks, NGOs, Associations, Clubs, Chambers and Unions

The needs of civil society in the context of executive education are empowerment related and have two dimensions: a) Empowerment for demanding and pointing the way to good governance b) empowerment to act as partners of the government to put into effect agreed norms and principles and plans of actions.

It is recommended that the Civil Society Organization’s training should at a minimum cover: Concept of governance with special emphasis on civil society’s responsibility. Ethics in Public Service Accountability mechanisms including government’s complaint handling mechanism,

ombudsmen institutions and courts. Techniques of Advocacy

- Approaching a) media, b) legislatures, c) elected district government officials Building coalitions for good governance Transparency Fundamental rights Structure of Government Access to information Social auditing and participatory budgeting/development Preparing Community scorecards Public-private partnerships Community driven development Good Practices in Service Delivery

The training programs for the Media should at a minimum cover: Concept of governance with special emphasis on responsibility of media Accountability Mechanism Ethics in public service Ethics in Journalism Transparency and public access to information Investigative journalism PEMRA laws

The training programs for the Business Community should at a minimum cover: Concept of governance with special emphasis on management of economy Ethics in business and public service Trade Laws and policy/WTO Laws Trade and Industrial policies National and provincial budgetary processes Economic and Political Problems. Communication skills. Public-private partnerships.

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It is recommended that the training programs for the Medical Profession should at a minimum cover:

Concept of governance with special emphasis on responsibilities of the medical profession

Ethics in medical profession and public service Health management and administration

It is recommended that the training programs for the Engineering Profession should at a minimum cover:

Concept of governance with special emphasis on responsibilities of engineering profession

Principles of Management/ contract management and project management Corruption in the Engineering Sector Ethics in engineering profession and Public Service Industrial Relations/Labor Laws Conflict Management Co-ordination and Effective Project Management Professional Accountability

It is recommended that the training programs for the Legal Profession should at a minimum cover:

Concept of governance with special emphasis on responsibility of legal profession Ethics in Public Service Ethics in legal profession Fundamental rights Problems of corruption in dispensation of justice Judicial reforms Bench and Bar relationship Law of Torts Administrative law Professional Accountability

The study also recommends special mechanisms for training for:

A. CSOs

Training and awareness workshop should be organized by the NGOs and supported by the government through funding and resource persons (NGOs can also play a major role in mobilization of financial and human resource).

B. Media

Training may be organized by the government in collaboration with press associations through workshops

C. Business CommunityTraining may be organized by Chambers of Commerce.

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D. Engineers, doctors and lawyers

Training may be organized by their professional organizations with the assistance and collaboration of government agencies. (Duration five to seven days)

It is further recommended that all the universities/institutions imparting professional education may include the subject of governance in their curricula.

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IINTRODUCTION

The existing infrastructure for executive education in the country is extremely insufficient to meet the needs of users. The total number of government functionaries runs into several hundred thousand: the federal government alone is currently employing over four hundred thousand individuals in BPS 1 to 212; a substantial majority of whom are directly or indirectly involved in matters of governance at different levels. To these must be added the thousands of executives in the Provincial governments and the autonomous bodies to get an idea of the size of the executive cadre in Pakistan. These executives have very little or no education and training in the governance needs of modern societies in today's increasingly competitive globalized world. In contrast with the huge numbers of executives, numbers of training facilities available to provide this executive education in governance are extremely limited.

Not only are the facilities insufficient for meeting the training requirements of a burgeoning user base but the curricula of these training institutions is also extremely limited in terms of the range and the content of the subject matter to address these needs. And more importantly, the emphasis on character building of executives which is the cornerstone of governance is largely absent.

The few elite training institutions that exist are criticized for being too mechanical in their approach towards executive education. They are further criticized for placing inadequate emphasis on research (though efforts are now being made to rectify this weakness) in the structure of training programs that require participants to breeze through a number of courses in a short span of time. The evolution of these training programs has not kept pace with emerging user needs.

The problem being addressed is, therefore, extremely vast and complex. Not only is executive education for governance extremely limited but its relevance to user needs is at best unclear.

This report, therefore, seeks to delineate a user needs profile of executive education on governance in Pakistan for a variety of stakeholders including legislatures, public institutes, local governments, think tanks, NGOs, associations, clubs, chambers, and unions, while co-relating it with the current state of executive education courses/programs being run in public and private sector institutions.

The exercise forms part of a larger project currently being implemented by the Governance Institute Network International (GINI) with the assistance of Government of Norway and in partnership with the Norwegian Institute for Urban and Regional Research (NIBR), Oslo. GINI program on governance education network aims at developing a national integrated network of learning and research institutions to systematically approach the furtherance of governance knowledge. The objective of the program is to create governance capacity in various spheres of governance covering universities, institutions, practitioners, researchers, NGOs, think tanks and the student body of Pakistan which elects to take up governance courses. 1. Scope of work

2 While the majority of these are in grades 1 to 15; those that can be classified as executives (in grades 16 and above) still run into tens of thousands.

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Under the project, Innovative Development Strategies (IDS) was tasked with the preparation of a user needs profile of executive education on governance in Pakistan. This requires an assessment of the requirements of key stakeholders including legislatures, local governments, government institutes, think tanks, NGOs, associations, clubs, chambers, and unions. While it is important to focus on some of the key elements of good governance (accountability, participation, predictability and transparency) at all levels, it is also crucial to relate these to existing government structures, constraints and challenges keeping in view current societal norms, prevalence of corruption and inadequate rule of law. The needs assessment has, therefore, elicited requirements of the above key stakeholders within the context of existing constraints and challenges, while suggesting ways of moving towards achieving the above cited elements through executive education on good governance.

2. Methodology

The report seeks to develop a comprehensive user needs profile of executive education on governance in Pakistan with the help of the following tools:

A Desk Review of executive education on governance in Pakistan involving a thorough literature review focusing on major themes of executive education in the country. The review also helped in identifying key target areas as well as laying the basic framework for the development of a draft questionnaire to be administered to key informants. The literature review also covered a detailed exploration of the concept of governance.

In-depth Interviews with educationists, academics, public servants, etc. on the challenges, opportunities and needs relevant to governance with particular reference to executive education. A total of 60 in-depth interviews were conducted from prominent personalities including retired and serving bureaucrats and military officials, businessmen, lawyers, judges, academicians, professors, doctors, development consultants as well as a few students and other citizens.

During the process of conducting interviews two questionnaires were administered. The first one sought to elicit views on wide spectrum of governance issues (see Annex 3) ,while the second questionnaire, administered subsequently and to a smaller group (Annex 4) ,was more focused, aiming to obtain more precisely demand side requirements of executive education of governance from the constituents to be serviced including legislatures, civil servants, lawyers, doctors, business community, media .

Focus Group Discussions (FGDs): Expert inputs on defining problems, assessing needs and proposing recommendations vis-à-vis executive education on governance.

Three focus groups were organized comprising representatives of the key stakeholder sets in three different cities of the country – Islamabad, Lahore and Karachi. The composition of Focus Groups was deemed extremely important and conscious efforts were made to ensure a broad spectrum of participation. The groups accordingly comprised of participants from a diverse set of backgrounds relevant to the objectives of the study. The FGDs included various types of bureaucrats and governance practitioners at the national, provincial and local level. These exercises were greatly helpful in identifying specific constraints, bottlenecks and structural problems, while proposing practical recommendations to improve the state of executive education on good governance.

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IITHE GOVERNANCE DISCOURSE: DEFINITIONS,

INTERPRETATIONS AND ISSUES

Governance is not synonymous with government. The term “Government” is generally used to refer to the mechanisms of political leadership, structure of administration, and service delivery. In government state plays the central role in directing the distribution of public goods and the legitimacy required for public action and accountability. Whereas “governance” encompasses a wider interactive relationship between government, private sector, civil society and media, which aims to recognize collaborative action as a means to networking to find solutions to public problems.(Knepper et.al)

Good governance is increasingly seen as a means towards the achievement of a number of development outcomes. It facilitates in bringing about the necessary framework within which poverty alleviation and broad based economic growth can be effectively realized. Good governance is predicated on a range of interrelated factors including equity in the exercise of authority, accountability, inclusive policy frameworks, efficient and effective management of resources, meritocracy, protection of individual rights as well as access to information, services and employment opportunities for all segments of the society irrespective of wealth, social status and position

1. What Constitutes Good Governance?

Undoubtedly achieving the goal of good governance requires incessant endeavors on a number of fronts. The executive education in this context is one of such fronts. However the executive education can prove an extraordinary powerful tool. Hence the need for incorporating good governance in executive education programs is of very great value. All education programs and courses on good governance need to inculcate a coherent understanding of the concepts and processes relevant to governance. Additionally, such programs need to capture the underlying constraints inhibiting good governance in the developing world generally and in Pakistan particularly.

Although definitions of governance vary, depending upon who is formulating it, the concept broadly concerns the institutional environment in which citizens interact among themselves and with government agencies/officials. UNDP defines governance as the exercise of economic, political, and administrative authority to manage a country’s affairs at all levels. It comprises the mechanisms, processes, relationships and institutions through which citizens and groups articulate their interests, exercise their rights and obligations and mediate their differences. Good governance thus addresses the competent management of resources and affairs in a manner that is open, transparent, accountable, equitable and responsive to people’s needs and problems. One formulation of good governance conceptualizes it as having the following eight characteristics (UNESCAP n.d):

1. Participation: Good governance entails that the decision making process is open and allows for the participation (direct or indirect) of all, irrespective of differences in caste, creed, color, gender, status, wealth and position. Additionally, participation needs to be

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informed and organized, implying both the freedom of association and expression as well as the existence of an organized civil society.

2. Rule of law: Good governance further entails the impartial enforcement of fair legal frameworks, adherence to the full scope of human rights, independence of the judiciary and a law enforcement mechanism that is free of corruption.

3. Transparency: Decision making and implementation should follow clearly laid upon regulations that have been thoroughly scrutinized and agreed upon. Further, good governance implies the free and easy availability of information.

4. Responsiveness: Good governance requires that institutions and processes try to serve all stakeholders within a reasonable timeframe.

5. Consensus oriented: Good governance also requires the achievement of a broad consensus on all issues that are considered important by all or any section of the society.

6. Equity and inclusiveness: A society’s well being depends on ensuring that all its members feel that they have a stake in it and do not feel excluded from the mainstream of society. This requires all groups, but particularly the most vulnerable, have opportunities to improve or maintain their well being.

7. Effectiveness and efficiency: Good governance is also about meeting the requirements and needs of the society as well as making the best (and sustainable) use of resources.

8. Accountability: All institutions have to be accountable to those who are affected (directly or indirectly) by their decisions and actions.

Another formulation of good governance describes it in terms of the following political and economic principles (AusAid 2000):

A. Political Principles Good governance is based on the establishment of a representative and accountable form

of government. Good governance requires a strong and pluralistic civil society, where there is freedom of

expression and association. Good governance requires good institutions – sets of rules governing the actions of

individuals and organizations and the negotiation of differences between them. Good governance requires the primacy of the rule of law, maintained through an impartial

and effective legal system. Good governance requires a high degree of transparency and accountability in public and

corporate processes. A participatory approach to service delivery is important for public services to be effective.

B. Economic Principles Good governance requires policies to promote broad-based economic growth, a dynamic

private sector and social policies that will lead to poverty reduction. Economic growth is best achieved in an efficient, open, market based economy.

Investment in people is a high priority, through policies and institutions that improve access to quality education, health and other services that underpin a country’s human resource base.

Effective institutions and good corporate governance are needed to support the development of a competitive private sector. In particular, for markets to function, social norms are needed that respect contract and property rights.

Careful management of the national economy is vital in order to maximize economic and social advancement.

The need for peace and stability to attract people’s willingness to invest and settle down.

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Good governance has been pushed to the forefront of the agenda for development in the recent past. The European Union (EU), World Bank (WB) and Asian Development Bank (ADB) characterize good governance in almost similar terms (Table 1).

Table 1: Elements of Good GovernanceEU WB ADBOpenness Public Sector Management AccountabilityParticipation Accountability TransparencyAccountability Legal Framework for Development ParticipationEffectiveness Transparency Predictability

2. Building Governance Capabilities

Governance is being increasingly visualized as a functional concept measurable in terms of the development and other societal outcomes including sustained economic growth, attractive investment climate, poverty reduction, respect of human rights, and rule of law, political stability, as well as peace and security. Within this context, the quality of government is seen as a focal point. Measures to achieve better governance are located within multifaceted endeavors centered on building state capabilities so that governments have the capability to create the economic conditions and services necessary for poverty reduction and other development goals.

For instance, it is convincingly argued that progress could be faster if governments focus on key capabilities and established partnership with the private sector and civil society. A DFID report in this regard focuses on seven key governance capabilities which states need to develop, in partnership with the private sector and civil society, in order to meet development objectives and targets (DFID 2001).

1. The successful operation of political systems geared towards providing opportunities for all, including the poor and disadvantaged, helping them to influence government policy and practice;

2. Providing macroeconomic stability and facilitating private sector investment and trade so as to promote the growth necessary to reduce poverty;

3. Implementing pro-poor policies, while raising, allocating and accounting for public resources accordingly;

4. Guaranteeing the equitable and universal provision of effective basic services;5. Ensuring personal safety and security with access to justice for all;6. Managing national security arrangements accountably and resolving differences between

communities before they develop into violent conflicts;7. Developing honest and accountable governments that can combat corruption

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Box 1: The Interface between Governance and Development Countries attract more investment and achieve higher rates of per capita growth when the state improves its

effectiveness. A state which applies rules and policies predictably and fairly, ensures order and the rule of law and protects property will generate confidence and attract more domestic and foreign investment.

The most successful governments are those which understand the connection between economic and social policy. They promote both human development and the conditions which encourage economic growth. The kinds of policies governments adopt, and whose interests those policies serve, are critical factors.

The political system determines policy. Politics determine whether governments rule for the public good or for narrower interests – and influences whether governments are honest or corrupt, effective or inefficient. Perhaps most importantly, politics determines the allocation of scarce resources between competing interests including those of poor people.

Human rights conventions affirm that all people are entitled to participate in government, either directly or through freely chosen representatives. This right is supported by the fundamental freedoms of speech and association, and equal and universal suffrage in periodic and genuine elections. Democratic government serves the interests of the poor better than totalitarian government in the longer term. But even under democratic systems poor people face difficulty in having their voice heard and domestic institutions are often captured by privileged groups even when the poor are in the great majority.

To achieve the International Development Targets, governments need to be committed to pro poor reform and to convert commitment into action. The government must be able to provide security against internal and external threats so that people can pursue their livelihoods in safety. The government must be able to guarantee the provision of basic services. And it must have the capacity to make policies, to finance and implement them, and to monitor the outcomes.

Governments also need to work with the private sector in order to generate economic development, and with civil society, which channels the views of the people to the political system. Government must ensure that the state fulfils its responsibilities to its citizens; that citizens and the private sector fulfill their responsibilities to the public good; and that the state accounts for its policies and performance. These relationships work best where roles and responsibilities are agreed and performed predictably. Law, regulation and custom set out the rules and in successful states are enforceable (‘the rule of law’).

Source: DFID

3. Integrating Demand and Supply Side Strategies for Good Governance

Building state capabilities for good governance are essentially supply side strategies. Executive Education belongs to the same category as it seeks to provision good governance through equipping suppliers (government functionaries and public representatives) with better skills, knowledge and attitudes. However, the goal of good governance cannot be fully realized without the active participation of demand side actors including civil society and the general population. Their needs in respect of any executive education program needs to be fully taken into account for designing a system that would deliver.

Demand for Good Governance (DFGG) generally refers to the extent and ability of citizens, civil society organizations, and other non-state actors to hold the state accountable and to make it responsive to their needs. As a result, DFGG has the positive impact of strengthening the capacity of the state organs to become more transparent, accountable, and participatory while responding to these demands. Four elements of demand for good governance process are (refer to Figure A.1 below 3)

(i) Promotion of demand: refers to the ability of citizens, civil society and other non state actors to demand better governance. This will depend on their access to information and the degree to act effectively on it.

(ii) Mediation of demand: demand would become effective only through mediation and institutionalized feedback to state

(iii) Response to demand: mediation should be followed by demand which includes developing programs and initiatives within the executive that respond to demand.

3 Pages 5-6 of Cambodia: Demand for Good Governance project by World Bank http://www.interior.gov.kh/document/TOR_Project_Management_Specialist_WBcomment07209.pdf retrieved on 5/11/09

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http://www.interior.gov.kh/document/TOR_Project_Management_Specialist_WBcomment07209.pdf


(iv) Monitoring: Finally the process of overseeing the public sector by non-executive actors such as the parliament, media, and civil society. This could take the form of participatory monitoring through citizens feedback surveys of government performance, social audits, media investigations etc

Figure 1: Four Core Elements of DFG

An active population aware of their worth and importance in the state, knowledgeable about their rights and of ways in which those rights can be demanded and realized is very much critical for the entrenchment of good governance in the organizational culture and operational structures of the state and its agencies.

Figure 2 below gives a snapshot of demand and supply side strategies to improve governance for achieving development outcomes (Burner 2007). While demand side strategies aim at building capacities of citizens through institutional arrangements that enhances the value of their inputs in matters relevant to governance and service delivery, supply side strategies gravitate around the developing capacities of governance providers through training, merit based recruitment and promotion, introduction of private sector management techniques as well as through a series of other reforms.

In-service training as stated earlier is thus only one aspect of a comprehensive strategy, consisting of both demand and supply side tools and instruments, which can be utilized to improve the overall state of governance. Needless to emphasis, any strategy has to be consistent with the particular socio-economic and political context, as denoted by the good fit arrows in the diagram below.

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Figure 2: Demand and Supply Side Approaches

Socioeconomic conditions,

cultural factors

Ability of the poor to demand services

and hold public agencies

accountable

Ability of public agencies/other providers to

perform tasks effectively

Characteristics of the state agencies and other service

providers

Good governance for poverty reduction

Pro-poor policies

Effective policy implementationControl of corruptionAccess of the poor to justice

Development outcomes

Sustainable Poverty reduction

Measures to improve voice and accountability for

example, political decentralization,

participatory planning

Measures to improve state capacity

for example, public expenditure management,

civil service reform, e-government

Good fit

Good fit

Goodcoordination

Other factorss

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IIITHE STATE OF GOVERNANCE IN PAKISTAN

The governance indicators of Pakistan leave a lot to be desired. Irrespective of who is at the helm, the general population largely lacks trust in the ruling elite. In popular perceptions, the latter is mired in corruption, persistent and large scale abuse of power, cronyism, and self aggrandizement and ineptitude. The legitimacy of almost every election in recent memory has been contested with allegations of pre poll and post poll rigging. This lack of entrance legitimacy has been reinforced with a lack of performance legitimacy as the country delves deeper into one crisis after another.

The sense of pessimism gets aggravated with rising inflation, persistent energy shortfalls and the worsening security situation, and is reflected in both popular and academic discourses. In a series of interviews conducted under the current project, respondents were unanimous in their dissatisfaction with the current state of governance in the country. The similarity of views were despite the fact that the respondents belonged to a diverse set of backgrounds represented a cross section of prominent figures from both the public and private sectors – lawyers, retired judges, public servants and military officials, students, academicians, educationists, journalists, politicians, development consultants and representatives from non-governmental organizations.

The respondents presented a multi faceted diagnosis of the problem: illiteracy; an inefficient, incompetent and unprofessional bureaucracy; the absence of rule of law; lack of genuine political leadership; military interventions; scarcity of justice; intolerance; indifference of the population; lack of accountability, misappropriation of funds and corruption; lack of patriotism and falling standards of probity; financial indiscipline and adhocism; elitism and unrepresentative ruling structures.

The complexity and overlap in the above views was crystallized when the respondents were asked to rank the following eight possible constituents of good governance on a scale varying from Most Important and Important to Less Important and Least Important: political stability, financial stability, satisfied population, peace and tranquility, rule of law (fair and speedy dispensation of justice), transparency (transparent implementation of regulations), responsive bureaucracy and efficient bureaucracy.

Rule of Law (fair and speedy dispensation of justice) and Political Stability was most often cited as the most important constituents of good governance (Table 2). More importantly, little difference was found on this amongst respondents representing the public and private sectors. This is an important finding since it shows that the overall socio-political and economic environment is more important than the bureaucracy in determining good governance.

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Table 2: What Constitutes Good Governance?(Percent of Columns)

Most Important Important Less Important Least ImportantPolitical Stability 19% 19% 6% 6%Financial Stability 10% 20% 12% 8%Satisfied Population 10% 6% 15% 19%Peace and Tranquility 12% 14% 14% 10%Rule of Law 32% 13% 4% 1%Transparency 12% 8% 17% 13%Responsive Bureaucracy 4% 8% 17% 21%Efficient Bureaucracy 2% 11% 15% 21%

100% 100% 100% 100%

Almost a similar percentage of respondents with public and private sector backgrounds ranked rule of law as either the most important or important constituent of good governance. However, while private sector representatives also emphasized more on political and financial stability as compared to public sector representatives, the latter put more weight on a responsive and efficient bureaucracy (Figure 3).

Figure 3: Important Constituents of Good Governance

In addition to ranking the above 8 constituents of good governance in order of importance, respondents were asked to mention any other factors which they believe to be important in this regard. The answers received from the respondents can be categorized as follows: Accountability across the entire spectrum of governance Sustainable democracy Economic stability accompanied by sustainable development Public Dissemination of knowledge Responsible and visionary Leadership-who practice what they preach Simple life style of political and bureaucratic elites Transparency and rule of merit Ethical and moral education-with special emphasis on character building Strict adherence of Constitutional mandate

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De-politicization of all public offices Freedom of Expression Institution building

1. Major Constraints

Generally, lack of good governance has a circular relationship with a lack of transparency and responsiveness, weak accountability, poor organization and motivation, as well as administrative inefficiency. In Pakistan, as in most other developing countries, good governance is inhibited by essentially undemocratic and unrepresentative decision making structures that derive from a peculiar social, political and economic setup. In this context, the following political, economic, social and administrative factors impose direct or indirect constraints on the realization of good governance. Social Factors: illiteracy, poverty, injustice, insecurity, gender asymmetries, lack of access to

information, absence of merit, etc.

Political Factors: political instability, leadership vacuum, political and ethnic violence, poor implementation of development goals, etc.

Economic Factors: misuse and misappropriation of public resources, iniquity in the distribution of wealth and opportunities, inefficient and sub optimal usage of resources, elitist economic structures and policies, etc.

Administrative Factors: Lack of accountability and transparency, political interference, weak judiciary, selective application of laws, etc.

Individual in-depth interviews with eminent people from the private and public sectors yielded the following causes of poor governance in the country:

Unchecked and rampant corruption Inefficiency, incompetency and lack of professionalism amongst the governance

providers. Absence of honest and principled leadership Illiteracy and lack of public awareness Individualism Disrespect for the rule of law Lack of transparency Political instability Absence of political will Lack of national vision and civic responsibilities Outdated organizational system and lack of implementation of regulations Poor compensation and career planning resulting in less motivated governance providers Poor regulatory system Violation/Relaxation of prescribed legal provisions

The current state of governance cannot be seen in isolation from the institutions that have run the affairs of the state through the years, i.e. the political, military and bureaucratic elite. Understandably, these three institutions are most often blamed for the current state of affairs. Individual interviews conducted as part of the study reflect the obvious. A predominantly

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high ratio (37%) of respondents categorized civil servants as mostly responsible for the persistence of poor governance in the country, followed by politicians, the army and the judiciary (Table 3). Table 3: Which Segment of the Society is Largely Responsible for Poor Governance in Pakistan?

(Percent of Columns) Mostly

ResponsiblePartly

ResponsibleLess

ResponsibleLeast

ResponsibleCivil Servants 37% 10% 0% 4%Politicians 33% 12% 2% 2%Armed Forces 11% 15% 5% 19%Civil Society 6% 15% 18% 11%Judiciary 7% 24% 14% 5%Lawyers 0% 6% 27% 17%Functionaries Administering Justice 2% 13% 21% 13%Business and Industrial Community 4% 5% 12% 30% 100% 100% 100% 100%

Interestingly, 93 percent respondents ranked civil servants as either mostly responsible or partly responsible for poor governance, while a vast majority (90%) placed politicians in the similar two categories (Table 4). Similarly, the judiciary was ranked more often in the mostly responsible and partly responsible categories than in the two categories on the other side of the scale.

Table 4: Which Segment of the Society is Largely Responsible for Poor Governance in Pakistan?(Percent of Rows)

Mostly Responsible

Partly Responsible

Less Responsible

Least Responsible

Civil Servants 74% 19% 0% 7% 100%Politicians 67% 24% 5% 5% 100%Armed Forces 21% 31% 10% 38% 100%Civil Society 12% 31% 36% 21% 100%Judiciary 14% 48% 29% 10% 100%Lawyers 0% 12% 55% 33% 100%Functionaries Administering Justice

5% 26% 43% 26% 100%

Business and Industrial Community

7% 10% 24% 60% 100%

The views expressed in the focus groups with respect to civil servants as mostly responsible for poor governance are largely shared by civil servants as well (See Box 2). In a survey of civil servants conducted by the Pakistan Institute of Development Economics (PIDE) in 2007, 51% respondents agreed that bribery in one form or the other is the usual course for getting things done and civil servants are seldom/never held accountable for their deeds (Haque and Khawaja 2007). Further, 77% respondents agreed that there is political interference in the civil services, while 93% agreed that the performance of the civil services has deteriorated over the years.

Box 2: Findings From a Survey of Civil ServantsCivil servants are demoralized; they acknowledge that the service is corrupt and that their public approval rating is low. There is also awareness among the civil servants that corruption may be a serious problem. In addition there seems to be

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no trust in the accountability process, i.e., corruption is not penalised. Interestingly the civil service appears to have little faith in their human resource management! While acknowledging the benefits of meritocracy, they continue to prefer seniority-based promotion and reward system. Written job descriptions as well as criteria for performance evaluation are generally not used. Similarly ‘connections’ are perceived to be the major determinant of nominations for training especially foreign training. Background and abilities are not regarded as important for assignments and training.

The survey also confirms that the civil service fears that their independence has been curbed through repeated political interference. Fear of competition is clearly evident even when they recognize that merit and professional competence are important. While the grade 22 respondents with no more promotions to look forward want to open out recruitment, the junior grades wish to restrict the entry of professionals to the grade 17—a clearly incredible proposal.

The motivation for joining the civil service is clearly not money. Power prestige and status are cited as the main reasons for joining the service. This does not quite gel with what we learnt earlier that the service is held in low esteem by the public and it is perceived to be corrupt. Moreover, the low ranking of money for joining the service appears to be quite incredulous given the low real monetary salaries. The only interpretation that lends it self to explaining these responses is that power and money may be highly correlated and the main motivation for joining the service. This would also explain why they value job security and a closed civil service system.

Despite low salaries, the majority is satisfied with their civil service job. Police-probably because of the power—Foreign Service and Commerce and Trade—probably because of choice foreign postings— record relatively higher level of satisfaction. Majority of the officers would like to stay in civil service. On their benefits, a majority favours portability of pensions and monetization of perks. Portable pensions cut down the cost of switching jobs and hence encourage mobility. However, we also see that be20 cause of job security and power; civil servants do not show a preference for mobility.

The preference for monetization is interesting in that while the survey shows a preference for it, when it is proposed it is always rejected as it was recently by provincial administrations. Perhaps this is because perks are mostly a non-transparent method of payment; entrepreneurial and well networked individuals seek to maximize them. If this is true perks will be quite unequally distributed among the public servants with the better connected and aggressive individuals being able to collect more perks. Given this it would be hard to find a value at which monetization would be acceptable to all in place of perks. This may explain why a majority prefer monetization but yet in reality it may not happen!

Source: (Haque and Khawaja 2007)

2. Governance-Poverty Nexus in Pakistan

Good governance means different things to different people. Irrespective of its various formulations, the concept is seen as inextricably linked to development outcomes. For instance, the role of good governance is now seen as intrinsic to the achievement of sustainable development and poverty reduction: The concept has thus assumed central importance in both donor driven and indigenous programs for poverty alleviation and development.

Literature on the subject suggests that lack of public spending cannot completely explain gaps in social development. Instead, the literature argues governance failures associated with public service providers, which include policymakers/politicians, bureaucrats and frontline service providers offer a more robust explanation (Charlton et. al. 2003). The importance of ‘governance impediments’ as a significant variable in explicating the prevalence of social gaps is best appreciated by the following findings from the literature (Cheema 2006):

Pakistan’s social gaps persist relative to comparator economies even after controlling for short-falls in magnitudes of social spending (Easterly 2003).

Pakistan’s social development has been plagued with considerable inequality in social development outcomes across not only poor and non-poor households but also: rural-urban areas; gender; class; social groups and, in certain areas, even between villages that lie in close proximity to one another (Easterly 2003, Keefer et. al. 2005, Cheema and Mohmand 2004, 2005).

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These factors have cumulatively led to the exclusion of a vast majority of the population who are left with little voice in the affairs of the state and little capacity to hold state representatives accountable. In turn, there has been a consequent persistence of unrepresentative elite structures uninterested in meaningful reform partly for lack of consistent and forceful demands aimed at changing the status quo.

3. Governance in the Context of Pakistan:

A. Participation

Out of 62 years since its independence, Pakistan has been under military rule for almost 31 years. During these years, freedom of speech, thought and expression were almost non existent. It was only in General Musharraf’s quasi military rule from 1999 to 2008, that the country witnessed the establishment of an open media which espoused freedom of speech and expression. The civil society emerged for the first time as force to be reckoned with in the country’s affairs. Human rights societies, NGOs and other private sector organizations became vocal and started exerting pressure on the government on national issues and governance matter through public debates, civil rights movements, electronic and print media etc. The hallmark of a free civil society was evident from the lawyers movement in 2007, that was also fully supported by all segments of the society including political parties, NGOs, the private sector etc.

B. Accountability

Pakistan’s one of the biggest tragedies is the lack of accountability at all levels of the public and the private sector. Accountability of public office holders in particular the government servants and politicians holding public offices was not accorded due priority by successive governments since independence. Though there were politically motivated instances of actions against some functionaries. Nothing however came out of this process. Likewise occasional anti corruption laws were promulgated but implemented half heartedly. Public office holders involved in looting the public exchequer were rarely held accountable. This has obviously eroded the trust and respect for the institutions of the state. Within government departments, lack of internal accountability mechanisms promoted the culture of inefficiency, incompetence and lethargy. Heads of public sector organizations have rarely been held accountable for administrative and financial mismanagement and failure to meet the assigned goals. Pakistan’s premier anti corruption organization (Federal Investigation Agency) in its first 27 years of existence failed to obtain conviction of senior bureaucrats.

The case of politicians of Pakistan is no different. They have not been held accountable for their dishonest conduct including misuse of authority, nepotism and financial misdeeds, involving bribes, commissions and kickbacks in government contracts and deals. Similarly, leading ruling elite and businessmen who plundered public sector banks by obtaining huge loans and failing to return the same, normally escape accountability.

It was only in the early 90’s that the demand for accountability became more vociferous than ever before, hence the slogan of Ehtisaab (accountability) became the rallying cry of the people of Pakistan. A major turning point for this public demand occurred in the early 90’s when Pakistan was declared the second most corrupt nation of the world, after Nigeria in the rankings by Transparency International.

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In 1999 a National Accountability Bureau (NAB) was established which initially went about its functions in a fairly objective manner. However, with the passage of time barring some cases, its target was mainly political opponents of the regime. Even this organization is sought to be replaced by another institution. A controversial legislation in this behalf is pending.

Pakistan signed the United Nations Convention against Corruption (UNCAC) in 2003 which was ratified by the parliament in 2007. As part of the International Coalition against Corruption, Pakistan is duty bound to maintain an apex accountability body to undertake across the board and fair accountability of both the public and private sectors in the country.

C. Political Stability and the absence of violence

Due to the extremely irresponsible behavior of politicians and perennial discord among them Pakistan experienced prolonged military rule and consequential political discontinuities. Thanks to the conjunction of these adverse factors the country has not seen the political stability that is so critical for a truly democratic society. Had democratic rule flourished and democratic institutions been strengthened, Pakistan would have surely encountered political stability that would have resulted in the emergence of an honest clean political leadership with men of integrity and character.

Political instability in Pakistan has also been caused by a self serving political class, which has often resorted to political intrigues and behind the scene conspiracies to destabilize their political opponents, subsequently helping to bring down political governments before the expiry of their authorized tenures. Political instability did result in the greater power of the establishment that included the bureaucracy leading to greater mis-governance.

4. Corruption, Accountability and Governance

Corruption is the single most important manifestation of poor governance. In the popular perception corruption and poor governance are synonymous and interchangeable terms (in reality we have seen the concept of poor governance is much wider).

In context of public service corruption may be defined as the misuse of official power for personal profit, preferment or prestige or for the benefit of a group or class in a way that constitutes infraction of legal norms or standards of high moral conduct. Bribery, misappropriation of public property, favouritism, nepotism and the like are different facets of corruption (Inaamul Haque, 1978).

Corruption is a potent corroding malady and in the long run is capable of destroying a nation. Now it has become a conventional wisdom that lack of probity is a formidable enemy of development and growth. There is ample data to show that corruption and growth are inversely related. Similarly corruption and the investment ratio to GDP are inversely related (Easterly, 2001) In addition to this corruption has also an indirect adverse impact on other policies affecting growth.

Thus the first victim of corruption is the development process itself as inequalities gets entrenched and law and order breaks down. Corruption in such a country does not remain restricted to one sector; it permeates the whole society.

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Pakistan has unfortunately been a typical case. We have seen an exponential upsurge in the scourge of corruption since independence. The National Corruption Perception Survey 2009 (NCPS 2009) by the Transparency International Pakistan indicates that the overall Corruption in 2006 has increased from Rs.45 Billion to Rs.195 Billion in 2009.In other words corruption in the last three years has increased 400%.

Major Findings of Pakistan National Corruption Perception Survey 2009:

1) Police, Power, Health and Land are most corrupt departments. Happily Judiciary, Customs and Taxation have improved their rankings since 2006.

2) The three main reasons of corruption in view of respondents to the survey were lack of accountability, lack of transparency and discretionary power. (Transparency International Pakistan,2009)

Over many years, eradication of corruption has been regarded as a matter of enforcement only. Despite a plethora of penal laws and proliferation of agencies the malady is becoming progressively life threatening. However our experience and that of other countries has similar states has revealed that unless the causes of corruption are addressed, the society is empowered to stand up for its rights and the political will to take unpalatable decisions is created, corruption will continue unabated.

A. Causes of Corruption in PakistanCorruption is a complex phenomenon owing its prevalence and persistence to no single factor but to a number of causes.

At the individual level, corruption results from need or greed combined with opportunity when there is low fear of detection and/or punishment. The need or greed element of corruption must be understood in its wider context by which the system fails to provide a viable alternative to corruption. Unless honesty is widely accepted as a binding norm of conduct and a social climate of abhorrence for corruption is not created it will not be possible to stamp out this evil. Bureaucracy is after all a social unit reflecting norms of total society. No amount of exhortation, sermons and penalties can turn public servants into angels so long as they are made of earthly stuff and operate in a certain spatial and temporal framework (Inaamul Haque, 1978) Key causes include:

Economic – Inadequate pay, poor public service provision, coupled with large families. Social /Cultural – Conflicts between demands of modern (rationalized Max Weberian)

bureaucracy and demands of baradari, family, and other ties; social pressures for ostentatious demonstration of wealth, etc.

Developmental – Low levels of social empowerment and opportunities for self improvement, inadequate emphasis on character building, inequitable distribution of wealth and economic growth.

Political – Feudal power structure at the rural level; low levels of political competition; political instability, poor example set by politicians and periodic military rule and consequential weakening of institutions.

Legal and Judicial – Poor access to justice and loss of respect for law.(National Anti-Corruption Strategy Report NACS ,p.13)

B. Public Sector Management

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i. Civil service management and reformsStakeholders are clear in their unanimous vision of the motivated, meritocratic, performance driven, professional civil service with pride in its job that Pakistan must develop in order to eliminate corruption. Civil Service reforms so far have been woefully inadequate. While limited civil service reforms were initiated at federal level with isolated initiatives in the provinces, the service needs root and branch reforms if corruption is to be eradicated.(NACS,p.21-22)

ii. Ministerial and senior managerial leadershipThe Ministerial and senior managerial leadership play a critical role in ensuring success in addressing issues of efficiency, effectiveness and institutional corruption. However the quality of leadership has shown a secular decline. Many of the cases of gross corruption in the past have been through the connivances of the ministers and senior officials.

Abuses of power have come in every conceivable form such as conflict of interest and kickbacks in public procurement. But one area of public concern in the past has been the large scale discretionary powers accorded to senior officials and politicians, who had the legal right to exercise discretion in making decisions (which may be arbitrary or patently bias).

In the ultimate analysis the political leadership sets the country’s ethical standards. Sadly, in Pakistan, it is the elected governments which have set poor examples in the past by exploiting public office as an opportunity for self enrichment, massive incompetence and betrayal of public trust.

iii. Internal controlsSenior officials have also by and large failed to be held accountable for not establishing sound internal controls. This is partly due to a misconception that internal controls mean no more than financial controls and internal audit.

Internal controls refer to those internal systems, procedures, plans and methods which ensure that an organization’s mission, vision, objectives and targets are successfully achieved through the effective and efficient use of scarce public resources. Sound internal controls involve establishing many of the mechanisms, outlined below. For our purposes “Risks” refer to corruption. The key components of internal controls are:

Performance Indicators – The setting of clear objectives, performance indicators and targets and their communication to staff; identification of key operational, financial, compliance and reputational risks.

Control Environment – Clear strategies and policies on managing honest administrators laying down an appropriation code of conduct, values environment, organizational culture, human resource policies and performance evaluation system to support the probity in public service.

Monitoring and Corrective Actions – Processes established to allow the monitoring of achievement against objectives. These may be external, for example, customer ratings of satisfaction and experience of corruption in the institution; internal processes include internal audit reviews; follow up mechanisms to ensure that deviations from laid down provisions can be dealt with swiftly.

Information and Communication – Information system in place; regular, reports reporting achievements against objective laid down standards, channels of

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communication for the reporting of corruption and other by staff; open lives of communication between staff and senior officials.

iv. Internal Controls: ground realitiesThe establishment of internal controls has not been a priority for the government in the past. This among other things contributes to prevalence and persistence of corruption. Senior officials tend to deal with corruption on a reactive, rather than proactive basis. There is little reporting or monitoring mechanisms available to inform all senior officials about corruption in their jurisdictions. Business processes are not configured around the avoidance of risk and corruption. In fact the opposite is true: business processes are maintained so as to provide opportunities for corruption.

v. Public Sector Ethics and Integrity

The existing ethics management system established within the Pakistan bureaucracy has failed in yielding high ethical and integrity outcomes. The emphasis on character building in the education system as well as in the civil services has disappeared.” The Government Servants (conduct) Rules 1964” which cover some ground are not only inadequate but also little known and understood and scarcely complied with and enforced. Officials regularly breach professional standards and “conflict of interest” provisions. A number of provisions are now flagrantly violated e.g. the rules on acceptance of gifts are generally ignored.

The most flagrant violation has been of Rule 19 that prevents a government servant from approaching a member of the parliament for intervening on his behalf in any official mater. Hordes of public servants have been approaching political mentors for transfers and postings.

Training in Ethics and Integrity is either non-existent or very poor. Even in the officer training institutions, subjects like Code of Conduct, Efficiency and Discipline Rules, Financial Rules and Management are given inadequate importance and in most cases they are lumped with a host of general areas. Not only does the young probationer leave without adequate knowledge of these rules, the message given to him/her is that these rules are not important.

C. The Legislature and Parliamentarians

The Parliament is a fundamental pillar of any national integrity system based on democratic accountability. Its task is to express the will of the electorate to hold the executive to account. Unfortunately, recent governments have seen the institution plagued by inherent weaknesses caused largely by the underlying political system and culture. These have undermined Parliament’s achievements of its goals and transferred it into a bastion of corruption. As a result the executive has been able to act without accountability against public interest.

The outcome in recent years has been a set of, by no means all, but many legislators with low integrity, reflecting the overall political culture, where the desire for power at all costs meant political expediency. It is well known that many legislators tended to usurp executive functions and indulged in practices like nepotistic recruitment and transfers and postings of the “right” kind of officials to places of their choice. While civil servants are banned from approaching legislators for favours there is no enforceable code of ethics prohibiting MPs from interference in executive functions. There exists a system of “bending” the rules and

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patronage between the politician and bureaucrat and between politician and constituent. (NACS, p 16)

D. Accountability Mechanisms

At present there is an absence of modern management accountability techniques, There are no output oriented job descriptions linked to institutional outputs. The performance evaluation system which should be the first building block in creating a results oriented and accountable institutional culture does not operate effectively. With no job descriptions, there is nothing to compare performance against. There are no performance evaluation criterion for such post, thus the process is largely subjective. It is also widely reported that personal relationships get in the way of objective assessment and feedback.

Low levels of transparency make it difficult to enforce accountability in a comprehensive manner. Special attention needs to be paid to the accountability of senior officials for institutional performance. Annual reporting of performance has not been fulfilling their objective partly because it is not mandatory. Even where such reporting is mandatory, for example, the external audit process, the exercise is superfluous, audit observations remain un-complied for years .There is no forum at which senior officials and ministers are required to report publicly on the performance of their institutions.

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IVTHE STATE OF EXECUTIVE EDUCATION

IN PAKISTAN (PAST AND PRESENT)

1. Early Years

At the time of Independence (1947) Pakistan inherited an administration that was colonial in outlook and. It followed in the respect of administrative appointments the philosophy that if employees were inducted into service through an appropriate, merit-based system, they would be competent to handle most administrative jobs in the public or private sectors. Importance given to this class of officers became the basis of the Pakistan Administrative Services Academy set up in 1948, meant to train officers of the newly created Pakistan Administrative Service. The training imparted by the academy was at induction stage. No other government training institution was set up in the decade following Independence.

In 1954, India established their Institute of Public Administration (IIPA) for policy research and in-service training in Public Administration. Taking the cue from this development across the border, the framers of Pakistan’s First Five-Year Plan (1955-1960) made a series of recommendations for strengthening the Administrative machinery of the country to enable it to cope with the demands of development that this Plan envisaged.

Among their several recommendations were some proposals for the training of public servants. These included:

1) The need for starting a joint training programme, covering all non-technical services, in the Civil Service Academy, at Lahore.

2) The establishment of an Administrative Staff College to run in-service refresher courses to mid level administrators in different aspects of Public Administration.

3) The setting up of an Institute of Public Administration. Its course curriculum would include Business Administration, and which would encourage research, hold conferences and maintain links with local and foreign universities for upgrading syllabi and maintain a circulating library.

4) Universities in Pakistan were to be encouraged to start courses in Public Administration, and that this subject should also be included in the syllabus of the Central Superior Services Examination.

5) An increase in the number of officers deputed for foreign training to the Staff College at Henley (UK) and for study tours to other countries for studying international best practices in different aspects of Public Administration.

2. The Training Policy of 1960

It was not until the final year of the Plan that the recommendations of the Plan were implemented. In 1960, the Pakistan Government recognizing the need for having a well organized management training system in the country announced a Policy for providing training in Public Administration. This covered both the Government sector training as well as education through Universities and dedicated training institutes. The Policy provided for:-

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1) Under graduate pre-entry to service training in Public Administration and citizenship to be added as an integral part of the courses at the Punjab and Dacca Universities.

2) Graduate level training facilities to be provided and in-service training given to mid level government officers in Public Administration by setting up institutes of Public Administration at Karachi, Dacca and Lahore (NIPAs).

3) Village Development Academies were to be set up at Peshawar and Comilla which would impart training in Rural Development to the supervisory personnel of the (then) Village AID administration and other nation building departments as well as the CSP / PCS Cadre’s.

4) An Administrative Staff College was to be set up to provide in-service administrative training to the higher echelons in Government service and also conduct research in various fields of Public Administration.

5) A high level Administrative Training Council was established for coordinating this training programme in Public Administration at all levels and to act as an advisory body for further development of administrative training and research. Announcement of this training policy in 1960 was an important land mark in the history of training reform in the country. It not only defined the different types and levels of training needed in the country – the pre-entry; pre-service; in-service levels, but set up the organizations required for imparting these categories of training. The structure that was set up almost half a century ago remains intact, with minor modifications even up till today. The only modifications that have taken place during these years essentially relate to shifts in the overall control of the NIPAs and the Rural Development Academics. While all were originally placed under the control of the Federal Government through the Establishment Division, the NIPAs and the Academics gradually moved towards autonomy and also enlarged their programmes to serve the needs of the provincial governments and specific departments and organizations, both public and private. Now however, with the promulgation of the NSPP Ordinance in 2002, the administrative changes have come full circle, and all these components of the training system have been unified once again under the National School of Public Policy and placed under the administrative control of the Establishment Division.

The objective of the 1960 Training Policy in inducing universities to play a leading role in providing pre-service training by introducing post graduate level courses in Public Administration was only partially successful. The National Commission on Education (1959) also endorsed the provision of administrative training through universities and emphasized that: “Courses in Public Administration would be of great advantage to young persons wishing to enter public service, who after entry would be able to raise the levels of efficiency in the fields of public and business administration”. Till then the needs of Commerce and Industry in Pakistan for having trained personnel in their managerial cadres was being met by the Pakistan Institute of Management (PIM), Karachi. This Institute had been set up by the Federal Government in 1954, by the Pakistan Industrial Development Corporation (PIDC) to promote the management capacity of PIDC’s Industrial units as well as those of the private sector Industry. Like the Indian Institutes of Management at Allahabad and Calcutta, PIM was set up with the technical assistance of the Ford Foundation and the World Bank. However the courses that this Institute offered were mostly of short duration that addressed specific types of management subjects, such as personnel, marketing, production, financial and public relations management, etc. These courses are meant for in-service personnel, rather than for graduating students. Further, with its limited capacity PIM could not meet the demand of both the private and public sector industry.

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3. Teaching of Administrative Sciences at Universities

Providing a composite grounding in all aspects of Public Administration falls within the ambit of public sector universities. The lead was taken in this by the Punjab and Dacca Universities in 1960 by starting Master’s degree programs in Public Administration. Later, a full-fledged department of Administrative Sciences was set up by the Punjab University that also offered a Masters degree in Business Administration, both in morning and evening sessions. The Karachi University also started a school of Public administration, which did not, however succeed and had to be closed down, for want of students who showed little interest in a subject that did not provide them with clear employment opportunities. Since then, however, Karachi University has developed a vibrant Department of Public Administration that now offers the following courses:i. M Phil and PhD in Public Administrationii. Masters in Public Administration and Administrative Sciences.iii. PGD in Public Administrationiv. Bachelors in Studies in Public Administration.

Public Administration Courses are also being offered at the Quaid-e-Azam University’s Department of Management Sciences in Islamabad; the Peshawar University, which offers a BA (Hons) degree in Public Administration and the University of Balochistan which offers a Master’s degree in Public Administration.

While a large number of students graduate in Public Administration through all these universities, very few find their way into public service where their knowledge can be utilized. In so far and the Central Superior Services are concerned, Public Administration is one of a large number of optional subject to choose from. This subject carries 100 marks but is not among the favored subjects that can earn good marks. Candidates are usually reluctant to choose it, even those who have graduated in it. Very few persons qualifying for the Superior Services therefore have an academic background in Public Administration. There is an evident need to improve the nexus between an education in Public Administration and job prospects in the Superior Services. This can be simply achieved by improving the prospects of gaining marks in this examination by revising the level of questions downward and/or the standard of marking. This would also encourage candidates belonging to other fields for taking up Public Administration as a preferred subject in the CSS Examination. The same remedy can be applied in the PCS examinations being conducted by the Provincial Public Service Commissions.

4. Consolidation of the System of Training

Several additional steps were taken by the Government in 1961, to consolidate the new system of administrative training after the promulgation of the 1960 policy. Firstly, the grades of officers who had to undergo training at the Administrative Staff College and the National Institute of Public Administration (NIPAs) were identified (grades 20 & 19) and the linkage of this training to promotion to the next higher grade (grades 21 & 22) was notified. Secondly, nominating organizations were provided quotas of seats in the training organizations for nominating their candidates for training. They were to be held liable if they did not utilize their quotas to the full. To obviate the nomination of only the un-welcome officers for training, the nominating agencies were instructed to re-post trainee officers to their original posts after completion of their training. Evaluation reports prepared by training

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institutes were placed in the dossiers of trainees to be given suitable weight-age to, when considering these officers for promotion.

All these measures necessitated a broadening of the base of training especially at the grade-19 level, and therefore, two more National Institutes of Public Administration were set up at Peshawar and Quetta. For want of suitable accommodation these Institutes were located in the premises of the Academy’s for Rural Development in these provinces.

5. Administrative Reforms of 1973

The next major change in public sector training occurred through the Administrative Reforms of 1973. The various “Superior Services” were replaced by 11 ‘Occupational Groups’ and the entire bureaucracy were reclassified under 22 Salary Grades. Direct induction was started into Grades-19 and 20, and the erstwhile Finance Services Academy at Walton, Lahore, was renamed the Academy for Administrative Training and was mandated to conduct a common pre-service training programme for nominees to all the occupational groups through the CSS Examination. Specialized Training of these candidates was to be conducted by their respective departments in their respective departmental training Institutes. The District Management Group (DMG) was to receive their specialized training at the former Civil Services Academy in Lahore. The First Common Training Programme (CTP) started in November 1973 and till date 35 CTP’s have been held. Among the objectives of introducing this new year-long CTP (now reduced to 10 months) was that training would have a role in the final allocation of service groups to trainee officers by evaluating their performance during their training. This happened only for a few years. However, thereafter the trainees continue to retain their service group allocations made by the Federal Public Service Commission on the basis of their performance in the CSS Examination.

6. Shortcomings in the Training System

Among the key areas that the training Policy of 1960 or indeed the Administrative Reforms of 1973, did not touch was strengthening and capacity building of the training institutions themselves. The 1960 policy assigned this role to the National Administration Training Council that was set up at the Pakistan Administrative Staff College in January 1967. The Principal of the College was entrusted with the task of calling conferences under the umbrella of this Council, of which he was the Chairman. The first such conference was held in June 1967, this was followed by six conferences held in different cities; the last being held in Lahore in February 1975. A series of recommendations were framed during the last conference for strengthening the training base in the country by setting up a separate occupational group of Administrative Trainers, with a proper career structure, and salary scales. Recommendations were also made for the setting up of a National Administration Training and Research Commission to work alongside the training Institutes in research and curriculum development. It also emphasized the need for a clear definition of the objectives, scope and purpose of post-entry training, departmental training and in-service training at different levels for different tiers of officers.

But however, most of these recommendations of the National Administration Training Council were not implemented. In fact the Council itself got phased out due to its ineffectiveness and inactivity as it ceased to meet after the year 1975. This Council was set up as an ad-hoc body headed by a part-time Minister who depended entirely on the Training Wing of the Establishment Division for providing it secretarial support. Furthermore, the

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Council was essentially meant to coordinate training activity rather them propose training policy or a restructuring of the training system. It could not therefore provide leadership in ensuring that the training system keeps pace with the evolving needs in the management of public services. Thus, the control over the training establishment remained firmly in the hands of the Establishment Division, which for several years, did not see any need to strengthen or modify it.

7. Other Institutions Providing Administrative Training

In order to enhance the abilities of Government officials in the application of analytical techniques in their work, the Government set up an Organization and Methods (O&M) Division in 1978. This Division has been imparting training in Organization and Methods and Work Study and other analytical techniques since 1979. In the year 1985 this Division was reconstituted as a Wing of the Establishment Division and rechristened as the Management Services Wing. Besides offering training in MIS and Computers, this Wing organizes six courses in the following priority areas in management:

i. Financial and Management Planningii. Management of Public Enterprises iii. Management Information Systemsiv. Organizational Designv. Project Managementvi. Human Resource Development

These courses are run at Islamabad and Karachi and officers belonging to a large number of Departments and Organizations have participated in them. In aggregate so far, a total of 294 training courses / seminars / workshops have been conducted by the Wing through which 5288 officers of the Federal and Provincial Governments and those of the Armed Forces have been trained.

The other training Institute of note, working under the Establishment Division, is the Secretariat Training Institute (STI). Set up in 1956 at Karachi, it shifted to Islamabad in 1977. This Institute was designed to impart in-service training to the Ministerial staff of the Federal Government. This also included the in-service training of Section Officers working in the Federal Secretariat. The curriculum of this Institute centers on Service Rules, Office Procedures, Secretariat Instructions, Noting and Drafting, Record Management, etc. And these courses cater to the needs of a variety of subordinate staff such as Office Superintendents’, Assistants, Stenographers, Private Secretaries, Upper and Lower Division Clerks, etc. Among all the Government Training Institutes STI is the oldest and has been the most productive in so far as the number of officials it has trained. Since it imparts skills more than knowledge to its trainees, the efficacy of its training courses is evident through the post course performance of its trainees. Mention must be made of the Institute of Business Administration (IBA) at Karachi that ranks among the most highly rated institutes imparting administrative skills to students aspiring for management positions in the Corporate Sector. Mention must also be made of the National Defense College (now University) that imparts professional training to high ranking officers of the defense services as well as a limited number of civil officers. Its National Defense Course is ranked equal to the National Management Course run by the National Management College, Lahore. During September this year, the NDC plans to launch an MSc

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level, 2-year course in Government and Public Policy and an MPhil level, 2-year course in Government and Public Policy. These courses will include subjects like Strategic Management and Fundamentals of Policy and Statecraft. When launched both these courses would provide a valuable addition to the number of pre-service educational courses in Public Policy being offered by Government’s training institutions.

Finally, mention is also due of the National Institute of Labour Administration Training (NILAT), Karachi. This was established in the year’s 1956-57 under the Directorate of Labour Training. It was meant to develop a class of Labour administrators to enhance their skills so that they could work effectively in fields such as Labour Administration and Industrial Welfare. Its courses were designed for various administrative echelons in labour related subjects so that the course participants could learn the technique of maintaining industrial peace and workers harmony.

8. Foreign Training

Training of its officials in foreign countries has always remained an option in Governments overall policy of personnel development. Right from the early years when Civil and Foreign Service trainees were sent abroad for completing their induction training, officials are being sent abroad for general education as well as for specialized training in specific fields.

These trainings are provided generally under the technical assistance programs sponsored by international donor agencies, of which there are many, such as USAID, the British Council, UNDP, the Fulbright, the Hubert Humphrey and the Rockefeller Foundations, and several other bilateral technical assistance programs of individual countries. Very Senior Government officials continue to be sent for training or on study tours abroad and to such prestigious institutions as the Imperial Defense College (UK) as well as the Eisenhower Exchange Fellowships and the US Leaders Specialist Programme of the USA.

The Training Wing of the Establishment Division is entrusted with the management of foreign training and education which it carries out in consultation with the Economic Affairs Division and the sponsoring agencies. An attempt was made in the early 1960’s, largely in result of the Training Policy enunciated by the Government, in regulating the foreign training program. The objective was to scale down the number of Government personnel being deputed for training abroad while strengthening the local training facilities available within the country. An attempt was also made to restrict foreign training only to those fields in which local training facilities were not available. Officials who had received foreign training during the preceding three years were not considered eligible for foreign training. Foreign trainees had to sign contracts with the Government to return and serve the Government for a required number of years, failing which they were to pay compensation, which was the cost of the foreign education / training they had received.

Over the years the numbers of Government officials who have received foreign education or training have run into hundreds of thousands. Evidently, the sheer number of such qualified personnel should have had a telling effect on the quality of public services that they have supervised. Not only is no such effect visible, the quality of services has shown at evident decline. While this decline cannot solely be attributed to ineffectiveness or otherwise of the training of the officials, it clearly underscores a need to look afresh art the entire spectrum of foreign training from the point of view of areas of its need and cost effectiveness.

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9. The National School of Public Policy

Disenchanted perhaps with the performance of the Civil Government he was heading, President Pervaiz Musharraf decided to reorganize the entire training apparatus of the Federal Government. He thereupon promulgated the NSPP Ordinance in 2002 in which a variety of steps were proposed to revitalize public sector training; they were:

a) to provide for instruction, tuition, training, research, demonstration and service in such branches and disciplines of public administration, public policy, law, economics, finance, management sciences and any other relevant discipline as the Board may, from time to time determine;

b) to introduce, suspend or abolish any of the disciplines or to establish and support other facilities for education, training and research;

c) to formulate and prescribe courses of study and training;d) to determine teaching methods and strategies as well as co-curricular activities in order to

ensure the most effective educational and other related programmes;f) to provide for pre-service and in-service training;g) to undertake research, consultancy and advisory services;i) to admit and examine students and to determine and charge fees and other charges;j) to develop standards, conduct examinations and to award degrees, diplomas, certificates

and other academic distinctions to persons who have been admitted to and have passed its examinations under prescribed conditions; and

k) to serve as a research institute for the Federal government on matters of public policy and to advise the Federal government on such policy matters as the government referred to it;

In order to define and clarify the nature of changes that the NSPP Ordinance envisaged, a Study Group was set up by the Establishment Division at Islamabad through the assistance of the Stockholm Environment Institute. Their report published in 2003 not only defined the vision and mission of the NSPP but suggested changes in the system along specific lines for NSPP to follow that would improve the quality of the existing system of training. Their report proposed:

A. Training

Existing training programmes at the Staff College and NIPAs be made more intense with: (i) the mobilization of additional informational, professional and academic resources; (ii) short courses should be developed in the areas of critical need and these courses should be an important sources of revenue of the Organization; (iii) client oriented programmes should be developed, not only for other Government Training Institutes but also for Government Ministries, Divisions and Public Sector Corporations.

B. Education

NSPP to focus on providing Graduate degree programs beyond the normal M.A. /M.Sc. degrees. The following educational programs were proposed:i) A two-year Masters degree programme in Public Policy (MPP).ii) A two-year M Phil progammeiii) A one-year Executive Programme as Master’s level (EMPA or EMPM) as the

flagship programmeiv) A Ph.D. Programme.

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C. Research

The need to establish an effective Research Management System by attracting quality faculty (including foreign faculty) in this field; to improve the informational resources by producing quality educational and training materials for the Institution.

D. Information Resources

A key goal to bring informational resources within reach of all users which meant not only the upgrading of libraries but also providing professional journals, national and international statistical data-bases, data management tools and methodologies (GIS, IMS, etc) for use into the system. Training in statistical techniques and provision of statistical data was also seen as essential and needed to be included in the courses.

E. Networks and Linkages

NSPP was asked to develop sustained linkages with leading institutions and individuals engaged in Public Policy training, formulation and implementation, including Asian institutions of repute. The NSPP was also expected to adopt a proactive approach by working closely with prospective employers of NSPP graduates to develop mutual trust and cooperation with them.

After the recommendations of this group were accepted by the Government, and the Board of Governors of NSPP, these five parameters came to define the direction which the newly constituted NSPP would take for revitalizing the system of management education and training in the country. After a slow initial start, the process of change picked up momentum in the year 2005 when revamped courses were introduced at the top two levels of training – the National and the Senior Management levels.

F. The Present Training System under NSPP

The National School of Public Policy works under the general directions of a Board of Governors of which, the President of Pakistan is the Chairman, and the Rector is its ex-officio Secretary. In addition to being it’s Chief Executive. It comprises three Integral Units and five Constituent Units. Its integral units are:i. The National Management College (NMC)ii. The National Institute of Public Policy (NIPP)iii. The Executive Development Institute (EDI)

The NIPP is responsible for coordinating the research activities of all the affiliated and integral institutes, and is intended to eventually become a Think Tank for the Government. The EDI has been set up to conduct 4-6 weeks regular Executive Development Workshops on Public Policy. It is intended to meet the training needs of legislature, district government, law, business, industry, media and the academia.

The National Management College is located at Lahore in the premises of the former Administrative Staff College and now offers training courses at three levels:

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1. The National Management Course (NMC) at Lahore, successor of the erstwhile NMC offered by the Administrative Staff College. This flagship course is designed for the common training of Grade 20 officers of the Government. A few participants of foreign countries are also being nominated to this course. Its duration is 22 weeks.

2. The Senior Management Course (SMC) at Lahore is the successor to the former Advance Management Course offered by NIPA Lahore. This re-vamped course is designed for the common training of Grade-19 officers. Its duration is 20 weeks.

3. The Mid Career Management Course (MCMC) at Lahore. This is a new course introduced for the first time in Lahore in June 2009. It is designed for the common training of Grade 18 officers.

Attending all these courses has been declared mandatory for promotion to the next higher grade.

There are four Constituent Units of the National School of Public Policy – the three National Institutes of Management (NIMS) – (the former NIPAs) - located at Karachi, Peshawar and Quetta, now offering the Mid Career Management Course for Grade-18 officers and the Civil Services Academy.

The NSPP Secretariat is the nucleus of the NSPP and exercises administrative control over all its integral and constituent units. It has been set up in the premises of the DMG Campus at Lahore. The National Management Course of the NMC is being conducted at the premises of the former Administrative Staff College, the Senior Management Course at the former NIPA, Lahore, and the Mid Career Management Course at the DMG Campus, Lahore as well as at all the former NIPA Campuses at Karachi, Peshawar and Quetta. The Common and Departmental training programs continue to be conducted in their respective institutes, both of which have now become Constituent Units of the NSPP.

These mergers have created some anomalies. For example, no specialized training institution except that of the DMG, have been absorbed into the NSPP and are outside its purview. Similarly the MCMC training institute at Lahore has neither been designated as a NIM nor granted the status of a Constituent Unit like other NIMS at Karachi, Peshawar and Quetta. It remains a part of the National Management College as its integral unit.

This structure at times allows the NSPP to micro-manage the training facilities. Although this may have been necessary in the initial stages, when new training components were being introduced in these institutions, this model hopefully will be a feature of transition.

G. Changes in the Courses of Study

Among the basic reasons for setting up the NSPP was the need for improving the quality of pre and in-service training of civil servants by making the existing programs more ‘intense’ through mobilization of additional informational, professional and academic resources.

Now that the 7th National Management Course and the 6th Senior Management Courses are underway under the new system introduced by NSPP, we can take stock of the changes that have been introduced into their syllabi and evaluate the impact of these changes. The comparison below is between the syllabi of the 79th National Management Course (2003) run by the former Administrative Staff College and the latest National Management Course (2009) run by the NSPP.

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S.# ADMINISTRATIVE STAFF COLLEGE79TH NATIONAL MANAGEMENT COURSE

JULY 14, 2003 TO NOV 15, 2003

NATIONAL MANAGEMENT COLLEGE91ST NATIONAL MANAGEMENT COURSE

AUG 10, 2009 TO JAN 9, 20101 INFORMATION TECHNOLOGY

Computer Hardware/Software, Internet, hard processing, power point , Excel etc.

BASIC STUDENTS COMPUTER LITERACY MS Word; Multimedia; Power Point; Internet, E-Mail, Economics (Basics), Communication Skills.

2 PUBLIC POLICY & STRATEGIC MANAGEMENT Public Policy Formulation; Implementation; Participative Dimensions; Case Study (Lahore – Punjab Motorway) St. Management / Management Development Effective Leadership Skills; Interpersonal Comm; Rational decision Making.

PUBLIC POLICY AND STATECRAFT Concept, role and functions of State; Sources of PP; Formulation of Public Policy; Governance Judicial Decisions, Military Interventions; Security Water Issues; Media and Statecraft, PP Implementation Interval Threats Case Study (Lal Masjid)

3 HUMAN RESOURCE DEVELOPMENT AND CHANGE MANAGEMENT Dimensions of HRD, Understanding Change; Information Management Development Human Resources; Performance Management; Strategic Planning for Change; Negotiating and Decision Making Skills (Case Study).

SOCIO-CULTURE DYNAMICS OF PAKISTAN, HUMAN DEVELOPMENT AND PUBLIC SERVICE MANAGEMENT Socio-Cultural Environment Values, attitudes beliefs on Policy Formulation; Sports, Culture, Education, Health Policies, Minorities Issues; Pak Heritage, Hadood Ordinance, Higher Education Commission.

4 CURRENT TRENDS AND MASS COMMUNICATIONS Media in Public Administration; Defining Media Policy; Role of Media is Governance;

INTERNATIONAL RELATIONS Statecraft and Diplomacy; New World Order; Pak Relations with; US, China, Russia, CAR’s Muslim World , India, Afghanistan and Iran.

5 ECONOMIC DEVELOPMENT AND MACRO ECONOMIC MANAGEMENT Macro Economic Management; Commercial, Monetary and Fiscal Policies; Poverty;Globalization; Industrial, Agricultural Energy Policies.

ECONOMICS AND FINANCE FOR POLICY MAKING Economy of Pakistan; Financial Statements; Growth; Poverty and Income Distribution, Monitory and Fiscal Policies; PPP; Debt Management; Global Finance; Capital Market; Trade Industry; Agriculture; Energy.

6 PUBLIC FINANCE MANAGEMENT Economic Development; Govt & Market Economy; Federal Budget; Project Appraisal, Decentralization, Audit and PIFRA

GOVERNANCE, STRATEGIC MANAGE-MENT AND LEADERSHIP Governance – perspective, levels, indicators, Economic Governance; / ICTs and Governance. Strategic Management Overview National Leadership; Team Building; Leadership Styles.

7 GOVERNANCE, DEFENCE AND INTERNATIONAL RELATIONS Constitution; Political Parties and Political System; Development; Accountability; Gender and Socio Development; Internal and External Security; Socio - Culture Environment.

It would be observed that the core topics that relate to Public Policy, Governance, Information Technology, Media, Planning, Globalization, Accountability, Economic Policies, Decision Making, Leadership and the basic issues confronting Pakistan, like Poverty, Water and Energy, Security, etc., are covered under both the courses. The current course however also includes topics that relate to the current socio-political situation of the country. It emphasis governance issues, security issues and adds an entire module on Pakistan’s external relationships, especially with the US and the regional countries. Since training courses are expected to be dynamic and should address the prevailing issues, these changes are not surprising. However what has added real value to the new course is the introduction of

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training tools like the Simulation Exercises and the Individual Research Paper and the emphasis of the course on enquiry and research.

The heavy course content of the current NMC that involves delivering 167 study events in over 700 study hours in 21 weeks has substantially raised the intensity at which this course is now being delivered. But it is a moot point whether this intensity translates into a better quality of the course. Many participants feel that the extent of physical demands that the programme makes on some of the more aged and ailing participants prevents them from deriving the full value from the course.

A comparison of the syllabi of the courses run by the former NIPA and the present Senior Management Wing leads us broadly to the same conclusions. The following chart compares two syllabi:-

S.# NATIONAL INSTITUTE OFPUBLIC ADMINISTRATION (NIPA)

90TH ADVANCED COURSE IN PUBLIC SECTOR MANAGEMENT

SEPT 11, 2006 TO DEC 16, 2006

SENIOR MANAGEMENT WING (SMW)4TH SENIOR MANAGEMENT COURSE (SMC)

SEPT 1, 2008 TO JAN 21, 2009

1 MODULE -1: COURSE FOUNDATION Research Methodology; Workshops on Time and Workload Management; Presentation Skills; Analytical Skills and Quranic Themes.

STUDY–1: INTERNATIONAL RELATIONS Foreign Policy and Diplomacy; New World Order, Global Economic Block and Pakistan; Pakistan’s relations with the US, EU, Russia, CAR’s China, Muslim World, Afghanistan, India and SAARC.

2 MODULE-2: CORE NATIONAL ISSUES: Foreign Policy; Clash of Civilizations; New World Order; Indo-Pak Relations Pak-Afghan; Pak-Iran Relations; Terrorism; Nuclear Policy; Internal Security; Human Rights; Water Sharing.

STUDY-2: SOCIO-CULTURAL DYNAMICS OF PAKISTAN: HUMAN DEVELOPMENT AND PUBLIC MANAGEMENT: Socio-ethnic and other diversities of Punjab, NWFP, FATA, Sindh, Balochistan and AJK Process of Islamisation; Marginalised Sections of Society; Emotional Literacy; Impact of Sports, Arts Literature on Pakistani Society. Values, Beliefs and Attitudes and their Impact on Governance National Heritage; Strategic Health Management.

3 MODULE-3: ECONOMIC POLICY ANALYSIS AND FINANCIAL MANAGEMENT: Macro / Micro Economics; State of Economy; District Management; Financial Management Systems and Reforms; Fiscal Monetary Policies; Budget NFC Award; PIFRA; Poverty Reduction Strategy; Trade with India. Wheat; Sugarcane; Cotton; Rice Policies; Textile and Industrial Policies; SMEs; Privatization; Engineering Sector.

STUDY-3: ECONOMICS AND PUBLIC FINANCE: Micro-Macro Economics; Economic Policy; Market Economy; Poverty Allocation Strategy; Tax Structure, PIFRA; Public Expenditure Management; Financial Statements; Project Management; Food Security, Consumer Price Mechanism; Monetary Policy; Privatisation.

4 MODULE-4: PUBLIC SECTOR MANAGEMENT: Communication Skills; Decision Making, Negotiating Skills; Organisational Behaviour; Project Planning and Management; Public Policy – Foundation, Formulation and Implementation; Strategic Planning; Regulating Bodies; District Management; Devolution; Nuclear Health, Education, Media, Policies; Accountability; Ethics & Case Studies; PIA; Steel Mills; AKRSP; Edhi Foundation; Service Structures, Civil Services and Pakistan Army; Public Private Partnership (their Case Studies) Change Management; TQM.

STUDY-4: GOVERNANCE STRATEGIC MANAGE-MENT AND LEADERSHIP: Sources of Public Policy; Policy Formulation; Statecraft in a Modern Islamic State, Federal, Provincial and District Governments; PPP; Leaderships dimensions; Strategic Management; Ethics Devolution; Negotiating; Decision Making; Team Building Skills; Governance.

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S.# NATIONAL INSTITUTE OFPUBLIC ADMINISTRATION (NIPA)

90TH ADVANCED COURSE IN PUBLIC SECTOR MANAGEMENT

SEPT 11, 2006 TO DEC 16, 2006

SENIOR MANAGEMENT WING (SMW)4TH SENIOR MANAGEMENT COURSE (SMC)

SEPT 1, 2008 TO JAN 21, 2009

5 MODULE-5: ADMINISTRATIVE LAW & PUBLIC INTEREST: Constructional Development Revenue Sharing and Fiscal Devolution Centre – Province Relationships; Water Sharing; National Security Council; Fundamental Rights; Administrative Law; Delegated Legislation; Public Accounts Committee; Justice System and Judicial Review;

6 MODULE-6: ISLAM IN CONTEMPORARY TIMES: Ijtehad; Hadood Ordinances; Riba; Blasphemy Law;

7 MODULE-7: INFORMATION TECHNOLOGY: Computers Introduction; Windows; MS Word, Power Point, Excel, Internet, E-Male, E-Governance (Case Study NADRA).

Even a cursory glance at the course contents would show that the NIPA course was excessively loaded with class work in which as many as 133 training events were conducted in 629 hours in a total time-span of 14 weeks. On the other hand the present Senior Management Course comprises 90 training events, among a total of 744 hours spread over 20.5 weeks. The present course is evidently more focused and purposeful; especially as it also combines three Simulation Exercises along with this class work.

However, the efficacy of both the courses, the current NMC and SMC, can only be determined through a proper evaluation conducted through an impartial external agency. This assessment should also take into account the relevance of these courses to the specific training needs of the individuals who have been trained so that a co-relation can be established between the pre and post course work performance of trainees.

Further, there is a good deal of similarity between the topics included in the NMC and SMC. A large proportion of topics are common to both courses. The similarity does not end here. If we study the modules and topics of the Mid Career Management Course, that was introduced recently for grade 18 officers, we will find some of the same topics being studied in this course as well. Indeed, many of these topics are also included in the pre-entry common training programme meant for grade-17 officers. The following is a list of topics which are common to all four courses.

Public Policy and its formulation and implementation; Governance; accountability; devolution; organization and structure of the Federal, Provincial and District Governments Regulation and Regulatory bodies; Public Private Partnership, Research Methodology, Poverty Alleviation; Leadership theory and styles; Macro / Micro Economics; Crisis Management; Disaster Management; Change Management; Project Management; E-Governance; Market Economy; Negotiating Skills.

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It can be argued that these subjects are so basic to management that they must constitute the core of any Public Administration training programme. That may be true but it still begs the question whether all of them need to be repeated at all four levels of training. It they must, then how do we differentiate the different levels of training when large number of their components are identical? This question cannot be fully explained by arguing that in the higher level courses the ‘policy’ related to these issues is emphasized, while at the senior level the ‘tactical’ side of these issues are primary while at the mid-career level only their ‘operational’ aspects are considered. A proper consideration of these topics is possible only when all their aspects – the policy formulation, the tactical options for implementation and their actual implementation are studied together, whatever the level of the course. This dilemma has arisen because these courses have been provider designed. A needs based (demand driven) course design would only include those topics which are relevant and necessary and practicable from the stand point of the work or functions of the officers attending the course.

H. Progress Achieved by NSPP

Progress in the development of the country’s public sector training system has to be evaluated in the context of the objectives set for the NSPP. These objectives centered on the areas of Training (facilities and courses), Education, Research, Information Resources and Networks and Linkages in which the NSPP was required to achieve significant results. In this fourth year after the system was revamped the progress achieved by the NSPP in each of these areas is as follows:

Training

For the development of the physical infrastructure, the NSPP sponsored a project titled: Strengthening in country Training Capacity through Support of Training Institutions, CSA, NISPA, and PASC. This project was supported through IDA credit of Rs.290 million and approved by the Government at a cost of Rs.145 million.

Through this project the NSPP has built an EDI hall in the DMG Campus, upgraded the library of the NMC, renovated the class room at the NMC, added additional rooms to the hostel of SMW, completed the Administration block of NIM, Karachi, started a new hostel building at NIM, Karachi and purchased a large quantity of furniture and IT equipment for the Institute. With these added facilities the NMW and SMW now offer top class training facilities.

In so far as training courses are concerned, the new courses introduced have already been discussed. However, the NSPP was also required to start short courses in areas of critical need on the pattern of LUMS, PIM, etc. No effort however has been made by the NSPP in this direction. In fact, many short courses that were being offered by some of its institutes, like NIM Karachi, were also terminated. The reasons advanced for this was that the basic courses had first to be consolidated before short courses could be considered. Most of these institutions have the capacity for undertaking such courses, and running only one course in an institute is a serious under utilization of these facilities. Even the former Administrative Staff College, which ran two full length National Management Courses, had the time and capacity to offer a range of short courses. Large establishments like the NIMs at Karachi and Peshawar are equipped to offer a variety of courses with the addition of a few staff members. Running additional courses would also provide them additional revenue. They could also

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handle the Senior Management Course, along with the MCMC, with a few critical inputs. The NSPP needs to reconsider its policy in this regard.

Education

NSPP has almost achieved its objective of providing graduate degree programs in its institutes. The Higher Education Commission has accorded approval, in principle, to accord degree awarding status to the NSPP. HEC is now willing to support three post graduate degrees by combining two or more training programmes that are presently being run by the NSPP; they are:

1. Masters in Public Sector Management by combining the Common and Specialized training programmes.

2. Master’s in Public Policy: by combining the Mid Career Management and Senior Management Courses.

3. M Phil degree in Public Policy on completion of the National Management Course.

This is a significant achievement and although the details are still being worked out between the NSPP and the HEC, there are good chances that the Educational program of the NSPP will take off, shortly.

Research

The NSPP has a full-fledged National Institute of Public Policy (NIPP) dedicated to the field of research. It is currently functioning with very limited staff other than the Dean, heading it. The setting up of a Research Management System envisaged under the policy document has still to come about. Currently, the work of NIPP is limited to training the different courses in research methodology and overseeing the simulation exercises that are being conducted in the courses.

It is field research that connects the substance of training with the real issues of governance that emerge in the field and cogitating these issues by trainees in class leads them to finding effective solutions. This link between field research and course syllabi makes training of public servants both relevant and meaningful.

Most of the research that is presently being carried out in the training courses is desk research which relies on secondary data, usually-derived from Government sources. Much of this research therefore fails to uncover ground realities as it is not geared towards obtaining current data, through primary .sources.

The system of Governance, especially at the operational levels, has undergone a substantial transformation in recent years. Decision making, especially for field officers, has become very complex as a large number of ‘unofficial’ factors have come into play to influence the process of decision making. This has had serious repercussions on the quality of Governance in the country. Some of the factors that distort proper decision making are listed below:

i) Hiring and firing in Government are now to a very great extent, disconnected from merit or performance. Considerations of merit have become virtually irrelevant at the local level.

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ii) The distinction between public and private goods has almost completely disappeared. Corruption has assumed many shapes and forms.

iii) Service to the public is no longer a matter of duty but has become the prerogative of the provider; to provide it at all or free of charge or for an illegally leveled charge.

iv) No public service delivery system comes up to a reasonably acceptable quality standard.v) Very few important decisions are being taken independently by Government officials.

Most decisions are ‘influenced’ in one way or another.vi) Most resources are diverted towards new facilities and equipment; there is little or no

interest in maintaining Government’s assets.vii) Personal relations take precedence in administrative decisions. This premise negates all

concepts associated with Human Resource Management.viii) There is a very flexible attitude to time and time limits. This is true not only in office

attendance but in meeting schedules and completing plans and programmes on time.ix) Important decisions are usually taken at the higher levels and communicated to the

officer concerned orally for regularization and issue of orders. There is usually no consultation, cogitation or consensus-building.

x) There is a sense of powerlessness in decision making which leads to apathy and inertia in making important or controversial decisions. Survival in the post in considered a very important objective and all decision making is avoided that tends to jeopardize it.

xi) Resort to E&D Rules is decreasing even where there is gross misconduct. Transfers are increasingly being used as the means of inflicting maximum punishment.

xii) The whole system appears to be geared to ensure ‘conformism’. Anybody taking up issues for bringing in change is sidelined.

These are only some of the issues of Governance that are crying out for redress. The training institutes must not only sensitize their participants to these grim realities they must help participants develop their personal responses as to how they must cope with the administrative challenges that these conditions pose for them. This can only be done if the level of awareness of participants is enhanced through Operations Research. Both the Simulation Exercises of the Mid Career Management Course, and at least one each of the SMC and NMC should focus its research on a critical area of public service delivery so that their participants understand, first-hand, all the basic issues involved in governance in the country..

Information Resources

The NSPP has not only renovated the library of the National Management College but has taken steps to add to its stock of books and journals. The library at the Senior Management Wing (former NIPA, Lahore) has been converted into a reference library and stocked with Government’s reports and publications. Progress in adding books and publications in other libraries such as those of the PIMs at Karachi, Peshawar and Quetta, is moving apace depending upon resource allocations and by the Government and book donations by international donors.

In so far as the electronic library is concerned the NSPP has uplinked with HEC’s Pakistan Educational Resources Network (PERN) through a 9.2 MB Bandwidth connectivity. This allows video conferencing, voice-over IP Phone, Research and education links with other Universities, etc. However, the NSPP has still to apply for and obtain access to the digital library of PERN.

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Networking and Linkages

The NSPP has shown good progress in this area and is currently close to signing MOUs with some important International institutes of Training such as China’s National School of Administration (CNSA) and the National School of Government, UK. Contacts have also been established with other international institutes of training in New Zealand, Russia, Italy, Turkey, Spain etc.

Once these contacts are established, they will go a long way in building the capacity of trainees and trainers alike, through exposure to international norms and best practices, in organizing and managing training courses and Institutions.

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VA USER NEEDS PROFILE OF

EXECUTIVE EDUCATION ON GOVERNANCE

1. Importance of User Needs Profile:

A user need profile is extremely important for designing any executive education program on governance. Preparing such a user need profile is very helpful to the government(s) as an employer to realize its organizational goals through improving productivity and enhancing the capacity of its employees. The needs assessment profile plays a critical role in improving public sector human resource capital by providing a sound basis for “determining instructional objectives, the selection and design of instructional programs, the implementation of the programs and the evaluation of the training provided.” (Miller & Osinski, 2002) Without such an assessment one would be groping in dark and despite expending considerable resources and energy executive education’s outcomes would be sub-optimal.

A. Process of Drawing up a User Need Profile

Before undertaking actual training it would be appropriate to start the process of drawing up a user needs profile through collecting and analyzing information about the following:

1) Organization - its goals and objectives.2) Competencies and skills needed for effective performance of functions leading to

achievement of organizational objectives.3) Selection of individuals for training.

The organization in our context refers to the government (including the federal and provincial governments). The issue of its goals and objectives, questions as to required competencies / skills and selection of individuals are dealt with in the succeeding paragraphs.

B. Rationale for Executive Education

Why does the government allocate substantial resources on the executive education of its functionaries? The answer is to be found in its intention to add value to its human assets by enhancing their capacities and changing their attitudes to carry out business of the state including provision of better governance to citizens of the country. It would be pertinent in this connection to refer to the Vision 2030 prepared by the Planning Commission of Pakistan which articulates the objectives of state of Pakistan to be “a developed, industrialized, just, and prosperous nation at the end of the next 20-25 years.

This vision is to be realized, notwithstanding resource constraints, by deploying, among other things, knowledge inputs. It is further recognized that in order to survive and thrive in the contemporary world. Pakistan must intelligently, efficiently and effectively take advantage of globalization. These colossal challenges require a core of dedicated, competent, efficient and honest public functionaries, who have capabilities and a response capacity commensurate with emerging needs of time. This exposition, however, is not really sufficient for the training

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institutions to properly cater to needs of its client (i.e. the government using the facilities for its employees). The issue has been raised again in Section 4 of this chapter.

C. Competencies and Skills

So far as competencies and skills that would be required by the public functionaries to perform well are concerned, the subject will be addressed later in this chapter but an in depth treatment requires an exceedingly extensive study covering the wide spectrum of public service in Pakistan at the national, provincial and local government levels. This requires, inter alia, preparation of job descriptions of each assignment, the incumbent of which is to be selected for executive education and requirements of a highly integrated world. This huge exercise should be undertaken in due course of time but soon enough.

D. Main Target Group of Executive Education at Present

As stated elsewhere in the report the most organized system of executive education for public functionaries presently exists in the institutions under NSPP. They are finally selected by the Establishment Division, mostly from amongst those who had entered civil services through CSS (Central Superior Services) examination. There is also sprinkling of other civil servants e.g. officers of the provincial services. The most important consideration for selection is the fact that an officer has entered the promotion zone. Selectees thus form a heterogeneous group, belonging to different services (i.e. occupational groups)

Executive education programs seek to transfer an institutionally determined set of skills, knowledge and attitudes to the participants, with a view to helping them to perform their functions and roles more efficiently, effectively and in a more responsive manner. The focus is not on specialized educations but on preparing them to hold higher managerial positions.

E. Number of Institutions

There is one palpable constraint on the ability of the government to get the maximum out of executive education imparted in NSPP institutions. Presently these institutions essentially cater to the need of those occupational groups (at middle management and higher levels) that were initially recruited through the Central Superior Services (CSS) examination or inducted into these groups later on as well as selected provincial government functionaries. There is no systematic arrangement for training officers of other categories. While more than seven hundred recruits are inducted into service by the Federal Public Service Commission; with a technical background, they do not get the opportunity for proper training. Thus more than sixty percent of the officers of the federal government belonging to ex-cadre position do not undergo any training in their career; either to upgrade their technical skills or general management/executive education4.

The number of training institutes should be increased in order to address requirements of the training of specialized and ex-cadre personnel. In order to pay due attention to the training of specialized services/ex-cadre officers, a policy making institutional mechanism should be set up in the form of a separate Division which may also be made responsible for ensuring that user need profiles of functionaries belonging to cadres (including ex-cadre officers) not yet covered by the Establishment Division are prepared. Provincial governments should be also

4 The number of public servants otherwise runs into hundred of thousands. If their training needs in totality are also taken into account training institutions in a far larger number would be needed.

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encouraged to streamline their systems of training and expand the functional scope of their training institutions to encompass specialized cadres/ex-cadre functionaries.

2. Leading Transformation through “Change Management”

The challenge faced by the executive education institutions at the federal, provincial and local levels is indeed stupendous. A successful response requires a transformation and not an attempt at incremental changes. The principles of the “Change Management” should be adopted by entire training entities throughout the country. Five principles underlie successful change in training institutions: (i) Improve performance against organization’s (i.e. both the governments and the training institutions) mission on good governance; (ii) win over external and internal stakeholders and keep them constantly in the loop; (iii) delineate a road map; (iv) recognize the connections among all organizational elements; (v) and be a leader, not a bureaucratic entity.5 Change programs that follow these principles are more likely to survive and retain momentum even when there are discontinuous political or bureaucratic changes of leadership.

Training institutions, as well as demand side users of executive education programs including government institutions/agencies/departments, should aim to transform in order to address major issues such as governance. Thus for the government to fulfill its role, in the present challenging times, it must continually transform itself within the framework of the Constitution to deliver on its mission in an environment that is becoming more and more uncertain. Can we continue to operate effective government in increasingly uncertain times? This uncertainty is reflected to cite a few instances, in national defense, the war on terror, global economics, environmental protection, public health, healthcare, and the quality of life.

The answer is “Yes”, but we have to wholeheartedly embrace ‘Change Management Approach’ that provides a step-wise blue print for bringing about effective change in an organization: 1) Establish a Sense of Urgency – impending crises; 2) Create a Guiding Coalition – Establish a team of leaders that are credible, have authority and expertise in the area of focus. 3) Develop a Vision and Strategy – Establish the target vision and strategies for reaching that vision; 4) Communicate the Change Vision – Develop a communication plan to present and re-enforce the change vision. 5) Empower Broad-based Action – Identify and remove barriers to change; 6) Generate Short Term Wins – Plan milestone achievements; 7) Consolidate Gains and Produce More Change – Build on past successes so that change becomes permeated throughout the organization; 8) Anchor New Approaches in the Culture – This must be done after the prior 7 steps are completed.6 The above approach advocates tackling cultural changes in the end since these are most difficult to achieve. Additionally, bringing changes in organizational culture must begin with policies and incentives that drive behavior.

Finally, change management emphasizes more on leadership, and less on mere management – without abandoning good management. Leaders are visionaries. Managers are operationally oriented, focusing on planning and budgets, organizing and staffing, controlling and problem solving. Leadership, on the other hand, involves itself in establishing direction, aligning

5 For further details, see http://harvardbusiness.org/product/change-management-in-government/an/R0605J-PDF-ENG?Ntt=Frank+Ostroff

6For further details, see http://www.nascio.org/publications/documents/NASCIO-Transforming%20Govt-Research%20Brief.pdf

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http://www.nascio.org/publications/documents/NASCIO-Transforming%20Govt-Research%20Brief.pdf

http://www.nascio.org/publications/documents/NASCIO-Transforming%20Govt-Research%20Brief.pdf

http://harvardbusiness.org/product/change-management-in-government/an/R0605J-PDF-ENG?Ntt=Frank+Ostroff

http://harvardbusiness.org/product/change-management-in-government/an/R0605J-PDF-ENG?Ntt=Frank+Ostroff


people, motivating and inspiring. The former produces predictability and the potential for producing short term results. The latter produces dramatic change. Both are required for organizational transformation.

3. User Categories

Although the list of Users of executive education programs can be quite exhaustive, the scope of the study limits its application to the following four categories: 1) Legislatures, 2) Government institutions/departments/agencies, 3) Local Governments, and 4) civil society (Think tanks, NGOs, associations, chambers, clubs, etc). Essentially, the above categories subsume three groups of individuals, i.e., public representatives, government functionaries and the “organized citizenry”.

A. Multiple Capacities of Users

A user may have more than one capacity. The legislature offers a good example of the multiple capacities. The legislature has a duty to see that funds allocated by it are well spent and the nation gets value for money. As the training institutions fall within the oversight of the legislature, it is really concerned with the product which comes out after undergoing training. The critical question the legislature is interested in is whether the training process has added value to the capacity of the trainees, particularly making them better providers of governance e.g. have these trainees become more responsive to public interests and more conscious of their accountability to the representatives of the people? The legislature as a user would also want all participants of executive education programs (irrespective of their background and institutional affiliation) to develop an understanding of subjects relevant to legislature’s area of functions, roles and responsibilities. Similarly, it would also require training in a core set of skills, knowledge and attitudes when members of legislatures themselves are direct users of executive education programs.

4. Process of Transferring Knowledge, Skills and Attitudes

This section seeks to delineate the skills, knowledge and attitudes that executive education needs to transfer to particular types of stakeholders within the context of their specific roles, responsibilities, and functions as public representatives, policy makers, implementers, and citizens.

A successful education strategy at any level seeks to impart the triad of appropriate skills, knowledge and attitudes: knowledge that structures information appropriately to invoke critical thinking; problem solving and sound decision making skills that are relevant for enhancing efficiency and effectiveness and attitudes that selflessly lead towards the cumulative benefit of all.

A. Re-conceptualizing the Basics: Attitudes

An “attitude is a hypothetical construct that represents an individual degree of like or dislike for an item”7. Simply stated attitude denotes the way one thinks and feels about somebody/something, or the way one behaves towards someone/something that shows how one thinks or feels. 7 “Attitudes (Psychology) on Wikipedia .Visited http://en.wikipedia.org/wiki/Attitude_(psychology), on 30 October 2009

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In as much as the current structure of governance in Pakistan continues to rest on its colonial roots, the pattern of interaction with the governed exudes a master-slave relationship. Executive education programs have failed to fully address the need to break away from elitist traditions and attitudes that usually culminate in insularity disconnect with ground realities, and a patronizing ethos with distorted views of oneself and the people at large. For better governance priority attention needs to be given to transformation of attitudes. Supply side actors also need to be cognizant of the roles and functions of each user type while imparting training to various stakeholders.

While designing executive education programs for civil servants, one point to be repeatedly conveyed to the participants is that the customer (i.e. citizen) is always right. To hear the views of the customers of government civil servants should be exposed to the maximum amount of customers/citizens interaction during their training programs, since sole purpose of the civil servants is to serve society. In this context it would be worthwhile to reiterate to public functionaries what has been so pertinently highlighted by Quaid-e-Azam in his address to the Gazetted officers at Chittagong (on 25th March, 1948):

“You do not belong to the ruling class; you belong to the servants, make the people feel that you are their servants and friends, maintain the highest standard of honour, integrity, justice and fair-play. If you do that, people will have confidence and trust in you and will look upon you as friends and well-wishers.”

Attitudinal change is undoubtedly not easy. This is akin to changes in organizational culture which have been described above as the “most difficult to achieve”. Nevertheless unlike personality, attitudes are expected to change as a function of experience. Policies and incentives also play important role in driving behavior which is the main objective of the change. Some experts have been arguing that efforts should be concentrated on changing behaviour rather than attitudes as the former really matters in practical life and can be assessed being visible. Another problem in the context of attitudes stems from the fact that the overarching need of the individual public functionaries in the NSPP institutions is to successfully complete the training programs in order to qualify for promotion. They are therefore strongly motivated to learn whatever their training institution has prescribed. Since acquisition of knowledge and skills can be assessed, these users expend their energies and efforts on these visible activities, with little incentive to work on their attitudes.

Whatever may be difficulties in bringing about the change in attitudes and behaviours it is very important to effect these changes. Appropriate policies and incentives driving behaviour should be found and adopted. As a matter of fact this sub-objective of training (seeking behaviour /attitudinal change), should take precedence over other objectives. This aspect of the executive education has not been receiving its due importance. It is suggested that a full fledged in-depth study should be conducted to ascertain the best way of achieving this critically important objective.

B. Traits Leading to Good Governance

As part of the study, semi-structured interviews were conducted with prominent individuals representing various User groups. Respondents were asked to rank different traits which in their opinion could lead to good governance. Of all the traits ranked as most important and more important was fear of God (Most important 27%; More Important 1%), official

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accountability (Most Important 24%; More Important 11%) executive education (Most important 11%; More Important 11%), and honesty (Most important 8%; More Important 20%) were cited more often than others (Table 5).

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Table 5: Which Traits Can Lead to Good Governance?(Percent in Columns)

Most Important

More Important

Important Less Important

Least Important

Fear of God 27% 1% 4% 2% 15%Official Accountability 24% 11% 5% 5% 6%Accessibility 5% 10% 11% 17% 8%Effective Listening 2% 4% 8% 18% 18%Commitment to Organizational Mission

5% 11% 13% 11% 11%

Comprehension of Issues and Problem Solving

4% 5% 18% 15% 8%

Sense of Responsibility 8% 20% 10% 8% 4%Inspiring Confidence/Trust 6% 8% 8% 12% 15%Honesty 8% 20% 11% 6% 5%Good Executive Education 11% 11% 13% 6% 10% 100% 100% 100% 100% 100%

Although Fear of God was cited more often than others as the most important trait needed for good governance, there were many amongst the sampled stakeholders who cited it more often than others in the Least Important category. This can be seen more clearly from Table 6, which elucidates the spread of each trait along different ranking categories. It shows that while 55% respondents ranked Fear of God as Most Important, 31% respondents ranked it as Least Important.

Table 6: Which Traits Can Lead to Good Governance?(Percent in Rows)

Most Important

More Important


Least Important

Fear of God 55% 2% 7% 5% 31% 100%Official Accountability 48% 21% 10% 10% 12% 100%Accessibility 10% 19% 21% 33% 17% 100%Effective Listening 5% 7% 17% 36% 36% 100%Commitment to Organizational Mission

10% 21% 26% 21% 21% 100%


7% 10% 36% 31% 17% 100%

Sense of Responsibility 17% 40% 19% 17% 7% 100%Inspiring Confidence/Trust 12% 17% 17% 24% 31% 100%Honesty 17% 40% 21% 12% 10% 100%Good Executive Education 21% 21% 26% 12% 19% 100%

A large number of the respondents were of the view that formal education in governance should be a prerequisite to entry into civil service. Additionally, a predominant majority believed that in-service executive education on governance can improve the state of governance in the country.

C. Re-conceptualizing the Basics: Skills and Knowledge

Much needs to be done to achieve an optimum transfer of the other two components i.e. knowledge and skills through the executive education programs. Curricula need to be revised

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in order for it to be less anachronistic and more inclusive. For instance, under Module 2 – “Core National Issues” – of the 90th Advanced Course in Public Sector Management (Sep-Dec 2006) at NIPA and under the 4th Senior Management Course (September – January 2008-9) at SMC, topics like Clash of Civilizations and New World Order were being taught without reference to competing models and theories. While such topics by themselves add little to the efficiency of public servants, they might, however, lead to the further consolidation of insular attitudes and pessimistic views on inter- state relations, biasing judgments in the practice of statecraft / diplomacy and economic interactions with the rest of the world.

D. Interviews and Focus Group Discussion

Interviews and Focus Group discussions under the current assignment directed considerable attention to a large number of subjects. Some of the identified subjects are being already taught in the executive education courses, while some others are taught under different names. The following subjects were identified:

Comparative Analysis of States and Societies; Management; Moral Sciences/Character Building; Nation building; Policy Planning and Economics; Research Methodology Social, Economic and Political Problems; Theory of Governance; Performance Evaluation; Policy Implementation and Monitoring Frameworks; Conflict Resolution; Participatory Development; Sustainable Development; The Holy Quran and Life of the Prophet (PBUH) Governance under Islam Economic Development Human Development; Administrative History of Pakistan; Effective Human Resource Management and Time Management Critical Thinking Art of Negotiation Communication Skills

Training institutions may like to keep this list in view while periodically revising their curricula. Many other suggestions related to curricula have been also made later in this Chapter.

A. User Category 1: Legislatures (Public Representatives)

As a starting point, the legislature as a User of executive education programs needs executive education to develop a thorough understanding of the three core functions of the legislature (See Box 3).

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Box 3: The Three Roles of Legislatures Representation of Constituents: As citizens’ representatives, members of the Parliament and Provincial Assemblies

are expected to keep themselves informed about problems their constituents face and to voice their concerns and aspirations in assemblies and public forums.

Law Making: The legislative function is the primary responsibility of the Parliament. In the role of legislators, parliamentarians propose new legislations or amendments in the existing ones and vote for or against proposed legislation. Once a Bill has been voted into an Act of Parliament, it becomes a part of the domestic law.

Executive Oversight: As a system of checks and balances, parliamentary democracy requires the legislature to keep a check on the executive to ensure it functions within the bounds of constitution/law and in an efficient and transparent manner. For example, it is within the ambit of legislature’s executive oversight role that it keeps track of the functioning of police (an Executive department) and holds the government accountable if it transgresses the rule of law or fails to deliver the goods. Question Hour during Assembly sessions is a mechanism which allows backbenchers and opposition members to check the Executive. Similarly, Senate, National Assembly and the four Provincial Assemblies all have Select Committees on health, education, finance and other departments. The task of a Select Committee is to scrutinize and examine the expenditure, administration and policies `of its particular designated government department.

Source: (CRCP 2005)

A large body of training manuals and materials has already been developed by organizations in the public and private sectors that can be further built upon for use in executive education courses for legislatures.

Similarly, in their capacities as public representatives, lawmakers and overseers of the executive branch, it is important for executive education programs to develop a basic set of knowledge, skills and attitudes within legislators to enhance their sense of responsiveness, accountability and transparency. Any executive education program for legislators needs to devise ways and means for inculcating the following8:

Developing Attitudes: Any executive education program developed for public representatives should try to pass on the following attitudes for better prospects of good governance to materialize.

1 Awareness of their being trustees, bound to discharge their duties with honesty and competence.2 Conscious of the need of remaining in constant touch with constituents.3 Willingness to share information with constituents and ordinary citizens. 4 Willingness to provide constituent services. 5 Conscious of the need to actively participate in parliamentary proceedings.6 Willingness to propose laws that reflect society's needs and the interests of the marginalized.7 Willingness to take up issues related to corruption, mismanagement and human rights violations

by executive authorities.

Transferring Appropriate Knowledge: Similarly, the following knowledge set is felt essential by legislators:

1 Concept of Governance with special reference to the responsibility of the legislature / legislators.

2 Principles and practice of lawmaking3 Constitutional provisions and legal framework of the country / provinces 4 Process of budget making and preparation of Annual Development Programme5 Country's international obligations under treaties, conventions and protocols including

those with IMF / World Bank / Asian Development Bank.

8 Adapted from (CRCP 2005)

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6 Standard operating procedures with regard to parliamentary debates, asking questions, legislation, parliamentary committees, etc.

7 International standards of accountability, transparency and basic freedoms.8 Globalization 9 Foreign policy10 Security Policy11 Industrial / Commercial Policies

i. Transferring Appropriate Skills1. Management of allocated funds2. Methods and techniques of taking legislative initiatives.3. Methods of sharing information with the broadest set of stakeholders 4. Techniques of establishing network with academia and intelligentsia:

ii Mechanics of Executive Educations for Legislative/LegislatorsThe parliament may get the appropriate courses designed by experts and may like to associate NSPP in this process pending that, a begining may be made by holding 5-7 day workshops. The Provincial Assemblies may like to take similar action.

B. User Category 2: Government Agencies/Institutes/Government Functionaries

Under this category there are three users: i) governments9 as the employer of participants in various training programs, ii) public functionaries who undergo training and iii) functionaries who manage these training institutes. i.e. provider of the executive education.

i. Needs of government(s) as employer(s)As an employer government is interested to get the maximum value for the money it spends on the establishment and operating training institutes. It regards these entities as a prime instrument for capacity enhancement of its human assets. What outcomes and types of products it looks for, have been already explained elsewhere (see Chap V-1) In short, its need is to ensure that the product of these institutions, inter alia, become better provider of good governance. Specifically the government is interested in the appropriateness of the curricula and the effectiveness of the methods of training as a means to adding optimum value to its employees. The government would therefore like its training institutes to keep reviewing their curricula and methods of study so that these remain updated.

Detailed comments have been already offered on changes brought about in courses of study after the establishment of NSPP (Chapter IV (K)). The effectiveness of the current NMC & SMC courses can be really determined through a much more extensive study than the instant one. The personnel agencies (e.g. Establishment Division has not been also indicating to the training institutions specific training needs of their employees. The system thus, in a manner of speaking is operating through “playing by ear”. Further, up till now no exercise has been undertaken to gauge the impact of the training. Thus one does not know with reasonable exactitude whether the executive education has been delivering. In such a situation interim prescriptions working on the basis of a survey of users (Annexure 3 and 4) provide the only solution. Accordingly inputs generated there from, coupled with discussion in Focus Group meetings have been relied upon to formulate certain recommendations that will be submitted for consideration later.

9 Reference is to governments both at the national and sub-national levels.

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iii. Public Functionaries as Users of Training InstitutionsThe primary users of the executive education are public functionaries deputed for training to NSPP institutions by the Establishment Division of the Government of Pakistan. They are nominated, as stated earlier, because they have reached the relevant promotion zone. For them stakes for successfully completing the courses are evidently high.

Comments have been made about the overriding need for working on their attitudes. Likewise some references have been made to imparting of knowledge and skills. The remaining recommendations are set forth below:-

i. The curricula of all courses in NSPP institutions should be reviewed every year. An advisors Committee, drawn from various sections of society including academia, ex-civil servants, business leaders, corporate executive and civil society, may be associated with the exercise.

ii. Current load of course work needs to be rationalized and made more manageable. iii. A dedicated module should be developed on Governance. (See box below for the possible

subjects that may be included).iv. As users, legislatures, local governments and the civil society would want to enlarge the

scope of current curricula to add subjects like community mobilization, grassroots development and participatory mechanisms for assessing, implementing and monitoring projects. These subjects have assumed particular importance within the new paradigm of devolved governance. Their inclusion may be considered.

Box 4: Module on Governance Concept of Governance Major Constraints to Good Governance in Pakistan Ethics in Public Service/Attitudinal and behavioral change Building Governance Capabilities Character Building Combating Corruption Accountability Mechanisms including Administrative Arrangements, Ombudsmen and Courts. Rule of Law Fundamental Rights Administrative Law and Law of Torts Transparency / Dissemination of Information Monitoring and Evaluation Principles of Supervision Participatory Development Innovations in Service Delivery / Response based Performance Incentives and Participatory Action Planning E-Governance Case Studies on Governance Practical Exposure to Interface meetings with Citizens and Public Complaint Handling e.g. Open Kutcheris

Advisability to include subjects that came up in Focus Group Meetings should be seriously considered (Annex-2).

Specialized Occupational Groups

There are various specialized occupational groups whose executive education needs presently are not catered for. As part of this report, a number of individuals with wide ranging experience in training and capacity building were approached to identify the specialized areas in which government functionaries should be imparted training. Based on their observations

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and on the research carried out for this study, several areas were identified which are set out in the Annex-6. Further work in this connection needs to be done in a separate study.

iv. Functionaries Working in Training InstitutionsThe last category of users under this group is that of functionaries managing training institutions. Their need is to ensure that their institutions deliver. As stated earlier they suffer from a great disadvantage of not being intimated as to what their client (the government) needs. In absence of this critical input institutions have been using their judgment and coming up with curricula and adopting methods of training. The only feed back as to their success or failure is provided by participants in their evaluation. No evidence is available whether this feedback or to what extent it is used to correct the course. Nor is there any especial effort is apparently made at a self examination if the mission of the institution is being achieved or to what degree it is being achieved.

Given the critical importance of training under the NSPP institution one is also not sure if the core faculty is world class. Likewise one is not satisfied despite substantial increase in emoluments if the psychic income of trainers has also increased i.e. whether an assignment in NSPP is regarded as a prestigious tour of duty by civil servants as a class. This is an old problem, still persisting but requiring a satisfactory resolution.

Following recommendations are made:

i. The government should start conveying in detail its training needs to the executive education institution. The Board of Governors of these Institutions, as a standard operating procedure, should assess if the needful is being done.

ii. The Board of Governors should regularly assess if the training programmes are delivering, particularly keeping view the mission statement of institutions.

A world class core faculty should be recruited and efforts should be made to retain it.

Beyond National Management Course

Presently the executive education systems proceed on the assumption that once an officer has completed the National Management Course it is the end of the road. Thus the process of education stops as far as the officers of the rank of Additional Secretary/Secretaries are concerned. This is not a correct approach, functionaries occupying the vantage points in the bureaucracy very much needs to refresh the need for having correct attitudes. Obviously no long course of executive education is practical in their case. But one day retreat of secretaries to deliberate upon various policy issues specifically including government is recommended.

C. User Category 3: Local Governments (LG Staff/ Elected Representatives)

A good point for discussion would be a user needs study carried out in the NWFP in 2003. Importantly, a significantly large number of government functionaries in the EIROP study (GoNWFP 2003) lacked understanding of the changes introduced by LGO 2001. This is particularly disconcerting as the new paradigm of devolved governance is critical to the overall state of governance as well as to the prospects of economic and political empowerment of the people at the grassroots. (This reality is very much intact despite recent, ongoing rethinking about revising the local government law.)

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Consequently, the Poverty Reduction Strategy Paper (Government of Pakistan 2003) marks capacity building in project execution, service delivery, economic policy formulation and financial management at union, tehsil and district administration levels as priority areas for the Government. Additionally, it recognizes the special need to address capacity deficits in newly assigned functions such as community development, adult literacy, and information technology as well as internal audit for local governments. In this respect, the capacity building of PFC, Local Government Commission, Police Safety Commissions, Police Complaint Committees, Prosecutors, District Ombudsman and Musalihat Anjumans have been highlighted as of particular importance.

The PRSP rightly suggests that governmental training institutions and resources will have to undergo a large scale reorientation owing to the expansion in roles. For instance, EDOs responsible for community development lack experience in community participation mechanisms. Moreover, Local government staff is still not absolutely clear about their roles and responsibilities and the line of reporting under the devolved system and often looks to the District Government for assistance. There is also some confusion regarding functions assigned to different levels of government when multiple levels are involved in delivering the same service and the public is unable to assign credit or blame for a particular service to a particular politician. The mismatch between expectations and jurisdictional responsibility is creating disabling problems of accountability without responsibility. Many union nazimeen and naib nazimeen report that voters are demanding services from them for which they do neither the responsibility nor the resources to provide. Yet, despite their ex officio presence on tehsil and district councils, they are not credited with any of the successes of higher tiers of government.

Further, LG capacities in finance and planning can be significantly improved to ensure better budget preparation and implementation, while planning can go beyond assessment and look at issues like appraisal, cost benefit analysis, and O&M arrangements. Demand-driven capacity-building can play an important role for optional or location-specific needs. An ADB/DFID study cites four broad categories of problems resulting in poor service delivery in LGs: a) weak management of front line staff, b) weak senior management in DGs and TMAs, c) politicization of budgets and their disconnect with local needs, and d) weak public demand for accountability (ADB/DFID 2005).

There are further capacity issues in project monitoring. Staff commonly involved in monitoring of projects at the district level is the DDO Technical or the EDO Works. At the tehsil level, these are the TMA sub-engineers, the Tehsil Officer Infrastructure and Services (TO I&S) and the Tehsil Officer Planning (TOP). The EDOs CD are responsible for overall monitoring of CCBs but have no technical or financial sanctioning authorities to move the projects forward. Thus a large number of government functionaries at the district level and below have no access to government sponsored training institutions. Neither is training relevant to their promotion system.

To develop a thorough understanding of local governments for good governance at the district and sub district levels, the following topics are essential for executive education programs:

The Local Government Ordinance 2001, Division of Powers and Jurisdictions, Roles of Public Representatives and Government Functionaries,

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Monitoring and Evaluation, Citizen Community Boards and Musalihat Anjumans, Project Management, Financial Management and Budgeting, Political and Social Activism, Community organization, Participatory Needs Assessment, Conflict Management, Women Rights and Violence against Women, Lobbying and Networking, E-Governance Governance under Islam Social Audit/Community report cards

i. Core Training Needs IdentifiedA training needs assessment based on a survey of government functionaries and public representatives at the district level in NWFP identified certain core training domains (Government of NWFP 2001)10. (See Annex 7). It is recommended that other Provincial Governments may like to draw upon this wealth of material and adopt suggestion made in the NWFP report.

D. User Category 4: Think Tanks, NGOs, Associations, Clubs, Chambers and Unions

As to the role of civil society in Governance, Kofi Annan, former UN Secretary General once observed (September 2000):

Governments can bring about change, report, not by acting alone but by working together with other actors…with civil society in the broadest sense. Governments can define norms and principles, and plans of actions, after carefully listening to the views of civil society. But then they need to work with appropriate partners to put those norms into practice. (Governance for the Millennium Development Goals: Core Issues and Good Practices, p.63)

He was echoing the now fully accepted conventional wisdom that governance is everybody’s business and civil society act as a critical bridge between the individual and the state in this context. Hence NGOs, civil society organizations (CSOs)11, media, private sector and other citizens all should effectively play their role in promoting good governance. The needs of civil society in the context of executive education are empowerment related and have two dimensions: a) Empowerment for demanding and pointing the way to good governance b) empowerment to act as partners of the government to put into effect agreed norms and principles and plans of actions.

102Training Needs Assessment of Elected Representatives and Government Functionaries, NWFP Essential Institutional Reforms Operationalization Program (EIROP), Government of NWFP, 2001. 112 Formation of Civil Society alliances can prove very effective in adding force and potency to demand for Good Governance and should be highly encouraged.

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i. Building Capacity in Areas Deemed CriticalInterviews (Annexes 2, 3 and 4) with individuals’ inputs belonging to various sections of society and discussion in FGs meeting generated useful inputs as to training needs of various users of executive education.

ii. Areas Deemed Necessary/Useful by Respondents:A. Civil Society Organizations (CS0s)2: Concept of governance with special emphasis on civil society’s responsibility. Ethics in Public Service Accountability mechanisms including government’s complaint handling mechanism,

ombudsmen institutions and courts. Techniques of Advocacy-Approaching a) media, b) legislatures, c) elected district government officials Building coalitions for good governance Transparency Fundamental rights Structure of Government Access to information Social auditing and participatory budgeting/development Preparing Community scorecards Public-private partnerships Community driven development Good Practices in Service Delivery

B. Media Concept of governance with special emphasis on responsibility of media Accountability Mechanism Ethics in public service Ethics in Journalism Transparency and public access to information Investigative journalism PEMRA laws

C. Business Community Concept of governance with special emphasis on management of economy Ethics in business and public service Trade Laws and policy/WTO Laws Trade and Industrial policies National and provincial budgetary processes Economic and Political Problems. Communication skills. Public-private partnerships.

D. Medical Profession Concept of governance with special emphasis on responsibilities of the medical

profession Ethics in medical profession and public service Health management and administration

E. Engineering Profession

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Concept of governance with special emphasis on responsibilities of engineering profession

Principles of Management/ contract management and project management Corruption in the Engineering Sector Ethics in engineering profession and Public Service Industrial Relations/Labor Laws Conflict Management Co-ordination and Effective Project Management Professional Accountability

F. Legal Profession: Concept of governance with special emphasis on responsibility of legal profession Ethics in Public Service Ethics in legal profession Fundamental rights Problems of corruption in dispensation of justice Judicial reforms Bench and Bar relationship Law of Torts Administrative law Professional Accountability

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A. Recommended Training Common All the Above User Categories: Management Formal and informal mechanisms for dispute resolutions/grievance redressal Gender studies E-governance: e-participation, e-administration and e-service delivery12

B. Mechanisms for Training:A. CSOs

Training and awareness workshop to be organized by the NGOs and supported by the government through funding and resource persons (NGOs can also play a major role in mobilization of financial and human resource).

B. Media:

Training may be organized by the government in collaboration with press associations through workshops

C. Business Community:

Training may be organized by Chambers of Commerce.

D. Engineers, doctors and lawyers:

Training may be organized by their professional organizations with the assistance and collaboration of government agencies. (Duration five to seven days)

It is further recommended that all the universities/institutions imparting professional education may include the subject of governance in their curricula.

12 E-Governance is important for enhancing government and public institutions efficiency, transparency and accountability, makes communication better between the government and the citizens and gives citizens a stronger voice in government processes.

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VICONCLUSIONS AND SUMMARY OF

RECOMMENDATIONS

I. Conclusions

The overarching importance of good governance is now being increasingly recognized. Kofi Annan the former UN Secretary General was only echoing the conventional wisdom when he remarked “Good governance is perhaps the single most important factor in eradicating poverty and promoting development.” The essence of the governance in public realm lies in the exercise of economic, political, and administrative authority to manage national or sub-national affairs. The exercise of authority to promote good governance must take place within a framework of laws and societal discipline, characterized, among other things, by participation of people, rule of law, probity in public services, transparency, equity and inclusiveness and accountability.

The governance indicators of Pakistan are not enviable. Striving for good governance in our case calls for incessant endeavors; both short term and long term, across a wide spectrum. For achieving this critical goal Pakistan must make serious efforts for espousing single minded commitment to good governance, transform societal norms, laws, attitudes and institutions. In this process executive education of public functionaries and other societal actors can play a very significant role

Public functionaries’ attitudes, knowledge and skills in particular can prove to be extremely an important in providing good governance. In this context properly structured and focused training programs are critical. In order to design such programs it is essential to undertake research to determine a User Needs profile of executive education/in-service training on governance in Pakistan. Without ascertaining the needs of stakeholders one will be only groping in dark.

Building capabilities for good governance is essentially a supply side task. Executive education falls within this category as it seeks to provision equipping suppliers’ i.e. government functionaries and public representatives with better knowledge, skills and attitudes. Good governance however cannot be fully achieved without the active participation of demand side actors, including civil society and the general public. An active and knowledgeable citizenry conscious of their rights and aware of ways in which these rights can be demanded is really necessary for ensuring that good governance forms an integral part of the organizational culture and operational structure of the state and its agencies.

In this report an attempt has been made to highlight the role of users of executive education and its scope also encompasses the empowerment of civil society and people at large to demand good governance as well as to become partners of the government in providing good governance.

The need for reflecting demand side inputs and improving supply side response is a stupendous task .This report is a first step on a long journey. Follow up in terms of further knowledge searching for new insights and implementation of recommendation made needs to be attended to with continuing seriousness in days to come.

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II. Summary of Recommendations

Recommendations made in this report fall in the following categories Vital, Very Important, Important and Desirable/Optional. Hence recommendations have been arranged in this order. At the end of summary of recommendations, a synoptic view of recommendations indication as to agencies who are to take action and time line of recommendations.

A. Vital Recommendations:

1. The number of training institutes should be increased in order to cater to requirements of the training of specialized and ex-cadre personnel. Chapter V, Number of Training).

2. Training institutions, as well as demand side users of executive education programs including government agencies, should follow the principles of Change Management aiming to transform and not merely focusing in incremental change.(Chapter V, Leading Transformation through Change Management).

3. Executive education programs should fully address the need to break away from elitist traditions and attitudes. (Chapter V, a) Reconceptualising the Basics: Attitudes).

4. Appropriate policies and incentives driving behaviour should be adopted.A full fledged in-depth study should be conducted to ascertain the best way of achieving this critically important objective. Chapter V, a) Reconceptualising the Basics: Attitudes).

5. A dedicated module on Governance should be prescribed. (See box 4 for the possible subjects that may be included, Chapter V, User Category 2, 2).

6. The government should start conveying its training needs in detail to the executive education institutions. The Board of Governors of these Institutions, as a standard operating procedure, should assess if the needful is being done. (Chapter V, User Category 2, 3).

7. Capacity Building of civil society organizations should be undertaken, keeping in view their two roles: demanders of good governance and partners to the government in promoting good governance. (Chapter V, User Category 4).

8. Civil Society Organizations, media, NGOs etc should be encouraged to play their role in improving governance. They should be trained in courses and areas deemed critical to governance as suggested in the report.

9. Likewise capacity building of media, business community, and other professional groups should be undertaken for demanding better governance and acting as partners in the management of public affairs.

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B. Very Important Recommendations:

1. The existing ethics management system in Pakistan’s bureaucracy may be made more effective to yield high integrity outcomes.(Chapter III, Public Sector Management).

2. There should be a code of ethics prohibiting MNA/MPAs from interference in executive functions.(Chapter III, The Legislature and Parliamentarians).

3. Forums should be established at which senior officials be required to report publicly on the performance of their institutions. (Chapter III, Accountability Mechanisms).

4. Strengthening and capacity building of the training institutions be given greater importance. (Chapter IV, 6. Shortcomings in the Training System).

5. The efficacy of courses of NMC and SMC be periodically determined through a proper evaluation conducted through an impartial external agency.(Chapter IV, 9 k).

6. Both the Simulation Exercises of the Mid Career Management Course, and at least one each of the SMC and NMC should focus its research on a critical area of public service delivery so enabling their participants to understand, the basic issues involved in governance.(Chapter IV, I) Research).

7. In order to pay due attention, inter alia, to the training of specialized services/ex-cadre officers, a policy making institutional mechanism be set up in the form of a separate Division in the Federal Secretariat which may also be made responsible for ensuring that user need profiles of functionaries belonging to cadres (including ex-cadre officers) not yet covered by the Establishment Division are prepared. (Chapter V, Number of Training).

8. Provincial governments should be encouraged to streamline their systems of training and expand the functional scope of their training institutions to encompass specialized cadres/ex-cadre functionaries. (Chapter V, Number of Training).

9. Supply side actors should become cognizant of the roles and functions of each user type in imparting training to various stakeholders. (Chapter V, a) Reconceptualising the Basics: Attitudes).

10. Any executive education program developed for public representatives should seek among other things, attitudinal changes conducive to pass on some attitudes for better prospects of good governance awareness of their being trustees, bound to discharge their duties with honesty and competence, willingness to take up issues related to corruption, mismanagement and human rights violations. (Chapter V, User Category 1).

11. The Board of Governors should regularly assess if the training programmes are delivering. (Chapter V, User Category 2, 3).

12. A world class core faculty should be recruited and efforts should be made to retain it in training institutions. (Chapter V, User Category 2, 3).

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13. Specialized groups training needs should be catered to. (Annex-6).

14. Courses for local governance executive education may include among others Local Governance Ordinance 2001, Conflict Management, Community Organizations, role of public representative, Political and Social activism ,Financial Budgeting and planning etc ( Chapter V, User Category 3).

C. Important Recommendations:

1. Civil servants should be exposed to the maximum amount of interaction with citizens in course of their training programs.( Chapter V, 4 A).

2. Knowledge may be imparted to the legislators of subjects, such as; concept of governance , process of budget making and preparation of Annual Development Programme, standards of accountability and transparency etc. (Chapter V, User Category 1).

3. Skills like the management of allocated funds, methods and techniques of taking legislative initiatives, methods of sharing information with stakeholders, techniques of establishing network with academia and intelligentsia may be imparted to them. (Chapter V, User Category 1).

4. New subjects may be added to the current curricula as desired by various stakeholders due to their importance under the new paradigm of devolved governance. (Chapter V, User Category 2, 2).

5. One day retreat of secretaries may be held to deliberate upon various policy issues including governance specifically. (Chapter V, User Category 2, 3).

6. The provincial Governments may be encouraged to take similar action. (Chapter V, User Category 2, 3).

7. All the universities/institutions imparting professional education may include the subject of governance in their curricula. (Chapter V, Additional Recommendations).

8. A proper system of i) job descriptions and ii) institutional performance evaluation criterion may be prescribed ,so as to make possible comparison of performance against these bench marks.(Chapter III, Accountability Mechanisms).

D. Desirable Recommendations:

1. The nexus between education in Public Administration and job prospects in the Central Superior Services (CSS) and Provincial Superior Services may be strengthened. This can be achieved by improving the prospects of gaining marks in these examinations by revising the level of questions downward and/or the standard of marking.(Chapter IV, 3.Teaching of Administrative Sciences at Universities).

2. The level of awareness of participants to be enhanced through Operations Research.(Chapter IV, I) Research).

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3. The parliament may get the appropriate courses designed by experts and may like to associate NSPP in this process pending that, a begining may be made by holding 5-7 day workshops. The Provincial Assemblies may like to take similar action. (Chapter V, User Category 1).

4. Training institutions may keep in view recommendations regarding inclusion of subjects made in focus groups discussions. (Chapter V, Interviews and Focus Group Discussions).

5. Current load of course work needs to be rationalized and made more manageable. (Chapter V, User Category 2, 2).

6. Certain core training domains identified in a survey of government functionaries and public representatives at district level in NWFP may be considered for adoption by other provincial governments. (Chapter V, User Category 3).

7. Training and awareness workshop for civil society organizations to be organized by the NGOs and supported by the government through funding and resource persons (NGOs can also play a major role in mobilization of financial and human resource).(Chapter V, Mechanisms for Training).

8. Training for business community be organized by the Chambers of Commerce. (Chapter V, Mechanisms for Training).

9. Training for media, doctors, engineers, lawyers may be organized by their professional organizations with the assistance and collaboration of government agencies. (Duration five to seven days) (Chapter V, Mechanisms for Training).

III. A Synoptic View of Recommendations, Action by and Time Lines

Recommendations Action by Time LinesA. Vital 1. The number of training institutes should be increased in order to cater to requirements of the training of specialized and ex-cadre personnel.

Federal and Provincial governments 2-5 years

2. Training institutions, and demand side users of executive education programs, should follow the principles of Change Management aiming to transform and not merely focusing on incremental change.

Training institutions and the other concerned government agencies

Continuing

3. Executive education programs should fully address the need to break away from elitist traditions and attitudes.

Training institutions Continuing

4.i)Appropriate policies and incentives driving behaviour should be adopted.ii)A full fledged in-depth study should be conducted to ascertain the best way of achieving this critically important objective.

Training institutions i) Continuingii) 5-6 months

5. A dedicated module should be developed Training institutions i) Duration of module varying

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on Governance. (See box 4 for the possible subjects that may be included)

from 3 to 15 days ii) Action should be initiated within

3 months 6. The government should start conveying its training needs in detail to the executive education institutions. The Board of Governors of these Institutions, as a standard operating procedure, should assess if the needful is being done.

Establishment Division and the counterpart provincial departments. The Board of Governors of institutions.

3 months

7. Capacity Building of civil society organizations should be undertaken, keeping in view their two roles: demanders of good governance and partners to the government in promoting good governance.

Federal and Provincial governments i) Efforts continuingii) Process should commence

within 3-6 months

8 .Civil Society Organizations, media, NGOs etc should be encouraged to play their role in improving governance. They should be trained in courses and areas deemed critical to governance.

Civil Society organizations, Federal and Provincial governments

i) Continuing effortsii) Process should commence

within 3-6 months

9. Capacity building of media, business community, and other professional groups should be undertaken for demanding better governance and acting as partners in the management of public affairs.

Federal and Provincial governments and the concerned organization

i) Continuing effortsiii) Process should commence

within 3-6 months

B. Very Important 1. The existing ethics management system in Pakistan’s bureaucracy may be made more effective to yield high integrity outcomes.

All categories of users (including the federal and provincial governments

i) Continuing effortsii) Process should commence

within 3-6 months

2. There should be a code of ethics prohibiting members of legislature from interference in executive functions.

Legislatures at the national and provincial levels

Process may start within 6-9 months

3. Forums should be established at which senior officials be required to report publicly on the performance of their institutions.

Federal and provincial government, civil servants, local governments

4 to 6 months

4. Strengthening and capacity building of the training institutions be given greater importance.

Establishment Division and its provincial counterpart departments as well as training institutions

Continuing efforts

5. The efficacy of courses of NMC and SMC be periodically determined through a proper evaluation conducted through an impartial external agency.

Training institutions Annually

6. Both the Simulation Exercises of the Mid Career Management Course, and at least one each of the SMC and NMC should focus its research on a critical area of public service delivery so enabling their participants to understand, the basic issues involved in governance.

NSPP Process may commence within 3-6 months

7. In order to pay due attention, inter alia, to the training of specialized services/ex-cadre officers, a policy making institutional mechanism be set up in the form of a separate Division in the Federal Secretariat.

Establishment Division and the provincial counterpart departments

Six months to one year

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8. Provincial governments should be encouraged to streamline their systems of training and expand the functional scope of their training institutions to encompass specialized cadres/ex-cadre functionaries.

Provincial governments i) Continuing effortsii) Process may commence within

3-6 months

9. Supply side actors should become cognizant of the roles and functions of each user type in imparting training to various stakeholders.

Supply side user categories i) Continuing effortsii) Process may commence within

3-6 months

10. Any executive education program developed for public representatives should seek among other things, attitudinal changes conducive to pass on attitudes for better prospects of good governance.

National and Provincial legislatures Continuing efforts

11. The Board of Governors should regularly assess if the training programmes are delivering.

The Board of institutions Continuing efforts

12. A world class core faculty should be recruited and efforts should be made to retain it in training institutions.

Training institutions i) Continuing effortsii) Process should commence

within 3-6 months

13. Specialized groups training needs should be catered to (Annex-6)

Federal and provincial governments i) Continuing effortsii) Process may commence within

3-6 months14. Courses for local governance executive education may include among others Local Governance Ordinance 2001, Conflict Management, Community Organizations, role of public representative, Political and Social activism ,Financial Budgeting and planning etc.

Local government organizations and provincial governments

Process may commence within 3-6 months

C. Important 1. Civil servants should be exposed to the maximum amount of interaction with citizens in course of their training programs.

Training institutions i) Continuing effortsii) Process may commence within

3-6 months

2.Knowledge may be imparted to the legislators of subjects, such as; concept of governance , process of budget making and preparation of Annual Development Programme, standards of accountability and transparency etc.


i) Continuing efforts ii) Process may commence within

3-6 months

3. Skills like the management of allocated funds, methods and techniques of taking legislative initiatives, network with academia and intelligentsia etc may be imparted to them.



3-6 months

4. New subjects may be added to the current curricula as desired by various stakeholders due to their importance under the new paradigm of devolved governance.

Training institutions and the concerned organizations


3-6 months

5. One day retreat of secretaries may be held to deliberate upon various policy issues including governance specifically.

Establishment and Cabinet Divisions Thrice a year

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6. The provincial Governments may be encouraged to take similar action.

Provincial government Thrice a year

7. All the universities/institutions imparting professional education may include the subject of governance in their curricula.

The concerned institutions and the relevant government agencies


3-6 months

8. A proper system of i) job descriptions and ii) institutional performance evaluation

criterion may be prescribed ,so as to make possible comparison of performance against these bench marks.

Federal and provincial governments i) Continuing effortsii) Process may commence within

3-6 months

D. Desirable 1. The nexus between education in Public Administration and job prospects in the Central Superior Services (CSS) and Provincial Superior Services may be strengthened.

Establishment Division

2. The level of awareness of participants to be enhanced through Operations Research.

Training institutions

3. The parliament may get the appropriate courses designed by experts and may like to associate NSPP in this process pending that, a begining may be made by holding 5-7 day workshops. The Provincial Assemblies may like to take similar action.

Legislatures and the National and Provincial levels

Annually

4. Training institutions may keep in view recommendations regarding inclusion of subjects made in focus groups discussions.

Training institutions

5. Current load of course work needs to be rationalized and made more manageable.

NSPP

6. Certain core training domains identified in a survey of government functionaries and public representatives at district level in NWFP may be considered for adoption by other provincial governments.

Provincial governments Continuous

7. Training and awareness workshop for civil society organizations to be organized by the NGOs and supported by the government through funding and resource persons (NGOs can also play a major role in mobilization of financial and human resource.

CSO’s and federal/provincial governments

Twice a year with workshops of 5-7 days

8. Training for business community be organized by the Chambers of Commerce.

Federal government (Ministry of Commerce)


9. Training for media, doctors, engineers, lawyers may be organized by their professional organizations with the assistance and collaboration of government agencies.

Concerned professional organizations


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VIIREFERENCES

ADB/DFID, (2005) Improving devolved Social Service Delivery in NWFP and Punjab, ADB PRM, Islamabad

Australian Agency for International Development (2000). Good Governance: Guiding Principles and Implementation, Canberra

Birner, R. (2007). “Improving Governance to Eradicate Hunger and Poverty” 2020 Focus Brief on the World’s Poor and Hungry People, International Food Policy Research Institute, Washington DC

Cambodia: Demand for Good Governance Project (2009), World Bank. Retrieved from http://www.interior.gov.kh/document/TOR_Project_Management_Specialist_WBcomment07209.pdf on October 20, 2009

Cheema, A. (2006) “Revised Thematic Paper: Governance Impediments to Pro-Poor Change in Pakistan”, Lahore University of Management Sciences, Lahore

Cheema, A. and S. Mohmand (2004). “Provision Responses to Devolved Service Delivery – Case Evidence from Jaranwala Tehsil.” Manuscript, LUMS-McGill Social Enterprise Development Programme. Lahore University of Management Sciences.

Consumer Rights Commission of Pakistan (2005). “How to Contact Provincial and Federal Representatives”, Legislative Oversight Toolkit, Islamabad

Consumer Rights Commission of Pakistan (2005). “Qualities of a Good Parliamentarian”, Legislative Oversight Toolkit, Islamabad

Department of International Development (2001) “Making Government Work for Poor People: Building State Capability”, Strategies for Achieving International Development Targets, London

Easterly, W. (2003). “The Political Economy of Growth without Development: A Case Study of Pakistan.” In Search of Prosperity: Analytical Narratives on Economics Growth (eds. D. Rodrick). Princeton University Press, New Jersey.

Government of NWFP (2001) “Training Needs Assessment of Elected Representatives and Government Functionaries”, NWFP Essential Institutional Reforms Operationalization Programme (EIROP), Peshawar

Government of Pakistan (2002) National Anti Corruption Strategy, National Accountability Bureau, Islamabad

Government of Pakistan. (2003). “Accelerating Economic Growth and Reducing Poverty: The Road Ahead”, Poverty Reduction Strategy Paper, Islamabad

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http://www.interior.gov.kh/document/TOR_Project_Management_Specialist_WBcomment07209.pdf%20on%20October%2020



Haque, N. and Khawaja, I. (2007). “Public Services: Through the Eyes of Civil Servants, PIDE series on Governance and Institutions”, Pakistan Institute of Development Economics, Islamabad

Haque.I (1978).” Bureaucratic Corruption”, Pakistan Administrative Staff College Journal, Lahore

Kaufman, D., Kraey, A. and Mastruzzi, M. (2009). Governance Matters Aggregate and Individual Governance Indicators 1996-2008, Policy Research Working Paper 4978

Keefer, P., Narayan, A., and Vishwanath, T. (2005). “The Political Economy of Decentralization in Pakistan.” In Decentralization in Developing Countries: A Comparative Perspective (eds. P. Bardhan and D. Mookherjee). MIT Press.

Knepper.H, Sitren.R et.al (2006). ‘Government and Governance’. Public Affair Review e-journal. University of Maryland. Retrieved from http://pafresearch.ucf.edu/journals/par/winter_2006_article_1.php on October 30, 2009

M.Osinski, Diana and A.Miller, Janice (2002). SPHR “Training Needs Assessment” available at http://www.ispi.org/pdf/suggestedReading/Miller_Osinski.pdf

Government of Pakistan, NAB, National Anti-corruption Strategy (NACS).2004

Niazi, M.K., Ahmed, N. and Khalid, M. (2006) “Rural Service Delivery in Pakistan”, Innovative Development Strategies, Islamabad

United Nations Economic and Social Commission for Asia and the Pacific (n.d). What is Good Governance? available athttp://www.unescap.org/pdd/prs/projectactivities/ongoing/gg/governance.doc

United Nations. (2007).” Governance for the Millennium Development Goals: Core Issues and Good Practices”.

World Bank (2009).Cambodia: Demand for Good Governance Project. Retrieved from http://www.interior.gov.kh/document/TOR_Project_Management_Specialist_WBcomment07209.pdf on October 20, 2009

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http://pafresearch.ucf.edu/journals/par/winter_2006_article_1.php


ANNEXURES

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ANNEX-1

PARTICIPANTS IN FOCUS GROUP DISCUSSION

I. Lahore Sr. Name Contact No. Email Address Affiliation1 Rida Nasir 0300-8801064 [email protected] USAID 2 Shagan Sharef 0321-4401833 1-F College Road GORI Former Secretary Prosecution, Government of Punjab3 Sikandar Lodhi 0300-8457374 [email protected] Editor Business Desk Jang Group4 Afzal Khial 0300-9497896 [email protected] Former Director Staff College National School of Public Policy5 M. Waseem 0300-5193446 Professor Lahore University of Management Sciences6 Sarwat Waseem 0300-9495398 [email protected] Advocate High Court7 Nadeem-ul-Haq 0321-4845178 [email protected] Assistant Vice president Habib Bank8 Nawaz-ul-Haq 0321-4560688 Director Evening Program Department of Public Administration

Punjab University9 GP Capt(R) Shamsher Ali 0303-4050142 NAB10 Brig (R) Farooq Hameed Khan 0321-4121855 [email protected] Former Director General National Accountability Bureau11 Asad Ullah 0346-4641096 [email protected] Additional General Manager Retired C/O GM operations Pakistan

Railways Lahore12 Faris Rehman Khan 0300-8504184 [email protected] Member directing staff National school of public policy13 Muzafar A. Ghaffar 042-5885052 [email protected] CIVIL SOCIETY PRESIDENT14 Amir Mehmood Ch. 0300-4700531 [email protected] Samee Uzair Khan 0345-4060694 [email protected] Incharge Principal University Law College(Punjab University)16 Dr.Aman Ullah 0307-74781073 [email protected] Assistant Professor University Law College 17 Ch. Naeem Ullah Khan 0300-8087076 [email protected] Lecturer University Law College 18 Sadia Khawar 0333-4625568 [email protected] USAID19 Fazal Hussain 0333-4379199 Advocate High Court LLM20 Sajjad Mehmood 0346-3636812 Former senior instructor NEPA21 Sharif Hussain 042-352415161 22 Tahir Ahmed Sindhu 0301-4227120 [email protected] Advocate High Court an MPA23 Justice Dr. Munir A. Mughal 042-5304847 [email protected] Justice Retired Member Islamic Ideology Council 24 Sajjad Haidar Rizvi 0321-4642555 [email protected] Principal Quaid College of Commerce Garhi Shau Lahore25 Iqbal M. Khan 0321-4046625 [email protected] Pir Syed Shahid Ali Shah (ASC) 0345-4753468 [email protected] Advocate27 Ali Yazdani 0321-8403650 [email protected] Businessman28 Muhammad Yousaf 0300-4100864 [email protected] Advocate/post graduate student29 Sidrah Kousar 0344-4681076 [email protected] Advocate30 Sobia Siddique 3344027621 [email protected] Advocate31 GP Capt(R) M. Anwar Chaudhry 0300-4507702 [email protected] Chief Executive Education Foundation Lahore

75


























Sr. Name Contact No. Email Address Affiliation32 Brig (R) M. Jamil Khan 0323-4252723 [email protected] Shamshad Ahmed 0300-4618900 [email protected] Former foreign Secretary and Ambassador 34 Ghulam Yazdani 0300-8416010 [email protected] Former Federal Secretary35 Bakht Munir 0313-9476699 [email protected] advocate36 Farooq Malik 0344-4485030 [email protected] IDS

II IslamabadSr Name Address Contact No. Designation1 Mian Nazir Azhar 31- Sahibzada Abdul Qayum Road, I-8/3,

Islamabad4101744; 03008552284 Advocate High court Former Director General

Custom Intelligence 2 Afzal Hayat Khan H 179-A, St 36, F-10/1 Islamabad 051-2293246; 03005192468 Advocate High Court and former Director

Administration OGDC3 Sarfraz Shahid 270, St 88, G-9/4, Islamabad 051-2261713; 03335152526 IDS4 Sarfraz Qureshi H 382, St 72, F-11/1, Islamabad 03009839092 IDS5 Dr Akhtar Hassan Khan House No. 9, Street No. 17, F-6/2; Islamabad 0519214497; 0333-5243333 Retired Federal Secretary6 Mr. Hassan Raza Pasha House 59, Street 59, I-8/3. Islamabad. 051-4448803 Former Federal Secretary7 Sardar Taimur Hayat Khan 98, Margalla Road, F-6 Islamabad 0301-54560888 Dr. M Azeem Khan CSO, SSD, PARC, Islamabad 0300-97161159 Waheeda Kousar D (Estt) PARC 0300520135710 M.S Kazmi Planning Commissoin 03215169262 Former Additional Secretary11 Syed Shahid Hussain H 235, St 54, I-8/3 Islamabad 0333-5218506 Former Federal Secretary12 Ms. Mariam Yazdani FCS, NDU, Islamabad mariamyazdani @hotmail.com Associate Professor National Defence

University13 Col. R. B. Aleem (wrong) X-358,DHA Lahore 0333-5146688 Executive Vice President Agriculture

Development Bank14 Dr. Syed Tahir Hijazi 512-A, St 9, F-10/2 Islamabad 0300-88643615 M Faheem SACHET, Islamabad, Pakistan 0300-5008255 Former Federal Secretary16 Dr. Tariq Hassan 1-A, St. 26, F-6/2 Islamabad Advocate/ Ex chairman SECP17 Masud Zaman 1, St 4, F-7/3, Islamabad 051-2610842 Former Member FPSC18 Mr. Noaman Ghani 051-9204518

[email protected] of finance/ Poverty M & E specialist UNDP

19 Dr. Shujat Ali Senior Management Advisor, ERRA Murree Road,Islamabad

0345-4162081

20 Brig. ® Saleem GINI 0300-8500300 GINI21 Ch. Khalid PARC 0300-6621724 PARC22 Dr. Fouzia Rehman PARC 0300-8190057 PARC23 Nooruddin Baqai 237, St 34, F-10/1, Islamabad 0333-5189009 Former Member Telecom Ministry of IT24 Zubair Faisal Abbasi Sustainable Development Policy Institute

76







Sr Name Address Contact No. Designation25 Chaudry Danial Aziz GINI Former Chairman NRB/MNA

III. KarachiSr. Name Contact Number Email Address Designation Organization1 Dr. Masuma Hasan 0213-4540662 [email protected] Former Cabinet Secretary2 Mr. Khero Former Additional Chief Secretary

(Development) Government of Sindh3 Ms. Mahpara 03332301819 Assistant Manager Applied Economic Research

Centre (A.E.R.C )Karachi University

4 Fahim Zaman 0300 8215935 Former Mayor of KarachiE.D

Haroon Sons

5 Mahboob Patel 0321-2024141 Management Dawn Group6 S.Roshan Ali 03013325133 Staff Economist A.E.R.C7 Asif Ali Asro 0301-8311429 Audit officer/Mphil Student Pakistan Audit Department and

AERC8 Qurat ul Ain Lecturer G.G.D College A.E.R.C9 Sohail Jamil Staff Economist A.E.R.C10 Ashfaque Ali Member Finance A.E.R.C111 Waqar Saleem Baig 03332454543 Instructor I.M MTRI-M/O LG2RD12 Tehseen Iqbal 0213-9261541 [email protected] Research Associate A.E.R.C13 Asghar Ali 0213-9261541-43 [email protected] Research Associate A.E.R.C14 Dr.Mutahir Ahmed 0333-3878783 [email protected] Professor International Relations Karachi

University15 Dr. Shehla Khan 021-99210301 D S PND P N D department16 Farhat H Qureshi 021 4301156

0333 3801952Business Man GSI

17 Mehdi Hassan Shaheen 992508640321-6654094

Principal MTRS Municipal Training (MTRI)

18 Faiza Umer 021-4583103 [email protected] Student A.E.R.C19 Syed Mustafa Haider 021-4574476 [email protected] Student A.E.R.C20 Muhammad Ali 0333-3493136 Student A.E.R.CSr. Name Contact Number Email Address Designation Organization21 Alamgir Khan 0333-7866606 Student A.E.R.C22 Nayar Rafique 03144661155 Student A.E.R.C23 S.Sami Ullah 03138246845 Student A.E.R.C24 Sajjad Ali Memon 03456110080 Student A.E.R.C25 S.Masood 03002368739 Director DG Audit Sindh

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Sr. Name Contact Number Email Address Designation Organization25 Gazi 03332218725 Student A.E.R.C26 Majid Hussain 03343067703 Student A.E.R.C27 Rashid Mehmood [email protected] Student A.E.R.C28 Shumaila Waqar 0346-2748870 Student A.E.R.C29 Nirma Firdous [email protected] Student A.E.R.C30 Fareen Lubna [email protected] Student A.E.R.C31 Samina Khatoon 0333-2056416 Student A.E.R.C32 Zinaz Aisha [email protected] Student A.E.R.C33 Farzana Ali 03334-3096454 Student A.E.R.C34 Saba Sabir Khan [email protected] Student A.E.R.C35 Maria Qureshi [email protected] Student A.E.R.C36 Hur Mujahid Student A.E.R.C37 Ahmad Raza U 0333-6295305 Student A.E.R.C

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ANNEX-2

MAIN ISSUES/THEMES DISCUSSED IN FOCUS GROUP DISCUSSIONS

Merit based Recruitments and Promotions: Merit in recruitment is not enough. Merit must also prevail at all levels of promotions, right up to the highest level.

The Disconnect between Training and Posting: Postings should be consistent with the training received by public servants. (Example: A retired officer of the Income Tax, who had received special training in Harvard University on taxation measures, was never posted on a position remotely connected with the training he had received).

Use of Discretionary Powers: At certain levels, officers are given discretionary powers without holding them accountable in the use of these powers. The use of such powers, whenever they are exercised, should be properly recorded with an explanation of why they were used in a particular case. This might reduce the misuse of such powers, which often happens.

Relevance of Training: Emphasis in training should be on taking proactive and appropriate measures consistent with emerging problems before they become unmanageable.

Linkages between Private and Public Sectors: The private and public sectors should coordinate more often to find solutions to problems. (Example: the Japanese first started the concept of quality circles, productivity councils, task forces, etc. in which people of different disciplines would get together and try to find out quick solutions to the problems.)

Consumer Rights: The public sector should learn from the private sector in terms of how best the interests and rights of the consumer should be protected. Training programs should likewise be adapted. Our training institutes should teach how to serve and not how to rule by emphasizing the importance of citizens. Although we might not be able to make the public sector as responsive as the private sector in the short term, yet one can learn a lot from the latter in terms of how to sensitize public functionaries to the grievances and the problems of the people.

Building Strength of Character: Our training should be such that an officer should refuse orders he knows to be wrong.

Using Technology for Effective Monitoring and Implementation: Training should emphasize the use of modern technology and tools for more effective monitoring, better vigilance and implementation.

The Need for Measuring Good Governance: We need a criterion (a scale) to measure progress towards good governance. The criteria should be based on neatly crafted and relevant indicators. This is very important for many reasons. For instance, governance is important for measuring economic performance. In the old days, the economic performance was measured in terms of factors of productivity - land, labour capital. It was, however, found that these factors do not explain more than 30 to 40 percent of the growth in national income or national welfare. Knowledge, education, skills, and similar factors were not included factors of production. Even when such factors were included, the explanatory power could only reach around 70 percent. Now there is a lot of talk about including institutions where governance comes in. So if you do not have good institutions, or if they are decaying, then even if you have other factors of productivity in place in terms of capital accumulation or labour accumulation or knowledge accumulation or knowledge improvement, you do not get the total welfare. So that is

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where I think understanding of the importance of governance came in and that is a development which has come in over the last 15 years or so.

Executive Education Courses are too Academic in Orientation: What has been lacking is a practical touch. Although many senior officers are invited and an attempt is made to give executive education courses a practical pinch. Yet, somehow the training is too academic. There should be a more practical orientation.

Executive Education Courses Fail to Inspire and Motivate: There is no successful attempt to motivate or inspire senior executives and to inculcate among them basic qualities and values which are required. The stage of character building probably is gone when one becomes a senior executive but they can be motivated and inspired. I consider a motivated and inspired bureaucrat as the ideal for good bureaucracy.

Good Governance Requires a Small Size: For effective governance you need a smaller size. The government has bloomed in size, inefficiency and corruption. In the early years, there were no additional Secretaries. The total number of Joint Secretaries in the Government was 25 and the total number of Deputy Secretaries in the Government was about 50 or even less. The government has extended beyond justification and when you expand a thing, when you recruit people who are at the margin, you do not recruit the best people and you are recruiting second rate people and the second rate people are spoiling the atmosphere. Secondly, recruiting two persons to do the job of one person will always spoil the broth. There are too many ministries. I have not seen any special initiative so far but we have full fledged Secretary dealing with special initiatives. There is a separate ministry for Zakat and Ushr; there is separate ministry for religious affairs. There is separate ministry for communications and there is a separate ministry for postal services. The size is definitely too big and therefore, it is inefficient and no amount of governance, education or otherwise can improve things unless you reduce the size of the government to what is adequate and necessary.

Motivation and Remuneration: The government servant is (i) not well educated (ii) is not well motivated, (iii) is not well paid. When my father joined government of India in 1921 as an Assistant, he was paid 220 rupees which was equal to the price of 15 tolas of gold. Today, the equivalent amount of 15 tolas of gold will run into lakhs. The British kept the government servants small and people were recruited on merits and people were well satisfied. The salaries have become totally absurd as compared to the private sector. No worthwhile young man would like to join the government service because the facilities and the salaries are not there. At one time one bigger attraction of government service that the government servants got very classic accommodation. Now about 20 to 25 percent government servants get government accommodation. Other people are pushed to hire flats in third rate localities of Islamabad and Lahore and they are living a miserable life. When you are living in miserable life and you are getting a miserable salary, your motivation goes down, and your efficiency goes down.

Poor Quality of Training: The training which is given in Pakistan at NIPA and Staff College lacks quality and fail to inspire participants. The participants are normally required to write one research paper and my opinion would be that they should be required to write two or three research papers - one every month - so that there is a greater emphasis on bringing out research and going to the Library, reading and subsequently producing something worthwhile. The performance of the trainees should be judged on the basis of three research papers that he has to produce in three months training, either at NIPA or at Staff College.

The Importance of a good Political System and Honest Political Leadership: Some years ago, the chief minister of a province called up a meeting of all important officers in one of the divisions of Punjab: the officers were clearly told that he (the chief minister)

80


was not interested in their competence or integrity. Instead what matters to him most was their loyalty. I got this story from a very responsible officer who attended that meeting. Similarly, once a Prime Minister ordered a chief minister to take a suspended Tehsildar with him in his car to the place from where he was suspended and it was done. My third story is about one of the Speakers of the National Assembly who was talking very proudly of the situation when he had directed his office to recruit an individual for a certain position. The Secretary of the National Assembly took the book of rules to the Speaker and tried to inform him that the rules do not permit the implementation of his orders. The honourable speaker very proudly stated that he threw the book back at him. The political system is the mother of all systems: the political leadership has to produce the conducive environment wherein individual functionaries of the government can function properly.

Consumer Negligence: Governance is a problem because the consumers in our society have been totally negligent of their rights.

Disconnect between the Rulers and the Governed: The main issue in my mind is that the governors of this country were all educated in Cambridge, Oxford, Harvard, Yale, etc. That, I think, was the main problem. There is a disconnect between these people and the people who were governed - the consumers. By educating or reeducating, learning, unlearning and relearning, I think it will not really help unless the disconnect is taken away. As long as the consumers are not educated and as long as the consumer society is not encouraged to be formed, the balance of equation will always be in favour of the governors.

Good Leadership: We also understand historically things can change either through strong leadership or through a social track. Unfortunately, Pakistan has not so far been lucky to have that kind of leadership like that of Malaysia.

A Continuous Training Track: Executive training is episodic. The concept of continuous education should be stressed.

Executive Education for Whom? Who is the customer? First, it is the citizen. Second, legislators who make appropriations for running these institutions are also customers. Third, in house committees are also the customers and have a right to be involved. Like parent teacher meetings in good schools, why can’t we bring in citizens (who I consider the parents) to NIPAs to give their feedback?

Human Resource Management for Good Governance: Three things are needed (a) performance evaluation, (b) goal setting/target setting and a clear road map, and (c) reward and punishment. These should be the focus while other things like training should supplement these.

Motivation and Inspiration: I wrote down two things from the previous speakers: motivation and inspiration. Motivation can be ensured through financial incentives. Inspiration has deeper ethical roots and I think executive training should begin to put ethics at the top in a highly integrated way.

Learning from Foreign Training Institutions: During the ongoing discussion, there were some points regarding training in Harvard and Oxford and how these have strengthened the disconnect between the rulers and the governed: My contention is that it is not necessary that training at these top schools may make people to loose contact with the people. Rather I believe that the learning tools at these institutions may make government and policies more people oriented through learning the skills offered by these institutions. The need of the hour is to make more evidence based policy analysis so that will of the people is not ignored. What we really have in the context of different NIPA and other institutions that I have hardly seen any curriculum which is based on rigorous analytical empirical policy analysis and this is what we really lack in our curriculum and

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this is the part of the Kennedy school or most of the other prestigious public policy institutions that they have a very rigorous empirical analysis curriculum. So what I really believe is we can learn a lot from these prestigious institutions and we must apply these tools here in Pakistan.

The Lack of Performance Assessment: Without a thorough performance assessment, we cannot say how good or bad governance really is. I believe currently assessment is based on personal whims and wishes. There is no system of assessment of governance. I will propose that there should be a system of performance assessment of governance and I also propose that at the highest level. If it goes to reflect as to what is to be done. It is not enough that we are saying something in the while, the TORs must be clearly laid down and the assessment has to be on those TORs.

Immersion Programs: The World Bank started an immersion program where they sent their people to villages, to live with the poor for a few days. That is perhaps the solution to get rid of the disconnect. Educating people into a more elitist environment is not the answer.

Leadership Vacuum: Deficiency of leadership at local, departmental, organizational level.

Absence of accountability: Failure to implement disciplinary action leads to ineffective or little accountability.

Institutional Reforms: Need functional democratic institutions. Transparency at all levels. Need to look at the macro level instead of micro level. Weakness in state because of weak institutions-over centralization of institutes. Problem mostly at the top. Micro level problems will be solved automatically if macro level problems solved. Rules need to be upgraded.

Old attitudes are difficult to change: Existing attitudes are an impediment to bringing positive change. The focus of the training should be at the grass root level since mid career individuals are not too flexible in welcoming change. Ethics need to be inculcated, starting at home. There is a need for changing mindsets. It is difficult to impart ethics through training. Ethics start from the grass root level. Through training one can acquire skills but not learn to be ethical.

Need for devolution: Devolution of financial authority from federal to local government is vital.

Role of Community: Active participation of the public is necessary for development. Governance depends on society. Good governance is a slogan. Government should be able to solve public’s problems. Community needs to be consulted while formalizing public policy. There should be greater interaction between civil servants and the community in the form of seminars and other discussion platforms.

Implications of poor governance: A study analyzing the different factors affecting investment carried out in 55 countries, ranked governance at no 1 while law and order was at no 18.

Training is limited and disorganized: Civil officers are trained especially in revenue. At the district government level executive training is only available in revenue department and not in others. When officers are promoted they are not provided in service training. Education and health are the most corrupt departments. There is little knowledge of financial and audit rules. Hence training in these departments needs to be introduced. Civil service is extremely large, but only few at top get trained. Technical departments have no training. They are expected to learn on the job.

Lack of awareness regarding civil and public rights: Civic education is most important. People are unaware of their fundamental rights and obligations. Creating such awareness will help them fulfill their obligations which will automatically lead to good

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governance. Governance means adherence to rules at every level. Others are subsidiary. Aim of education is to create awareness about rules and regulations.

Selection based on stringent and competitive criteria: Induction process requires attention in order to filter those who do not meet the merit. Induction of unfit individuals undermines the benefits of training. Merit based inductions.

Restructuring the process of training: Proper training at the entry level is essential. Long gaps between trainings. Train in specific areas. Section heads should be properly trained. There needs to be a proper database so a time frame can be established for training. Use local languages for better communication.

Political Interference: Governance will improve immeasurably if politicians stop interfering in the work of public functionaries and ask undue favors or try to influence the process of promotions, recruiting and postings.

Political Instability and Governance: The constant upheavals in successive governments before the expiry of their terms is one reason why policies cannot be continued for a reasonable period of time. This effects governance in important ways.

Accountability and Political Victimization: In Pakistan, most mechanisms for accountability have been used for victimizing opposition rather than to hold them accountable. This has resulted in selective accountability, which is worse than having no accountability at all.

Zero based budgeting: Budgeting should be used as a planning and operational tool to be introduced in every department.

An Informed Citizenry: It is very important that the citizens are aware of their rights and how to demand those rights peacefully. The suppliers of good governance can only be made to deliver unless they are pushed by actors on the demand side.

Meritocracy: For good governance to take root, it is very important that merit is followed in all recruitments, promotions and postings.

Effective Supervision and Evaluation: Government agencies lack the skills to effectively evaluate and supervise projects. This area needs to be strengthened.

Leading by Personal Example: The leadership is corrupt and apathetic to the needs of the common people. They fail to lead by example. For instance, the bigger the rank, the late he/she comes to the office.

Loyalty and Patriotism: Most government servants are not loyal to their jobs and lack patriotism – the will, patience and motivation to work for the betterment of the country and its people.

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ANNEX-3

QUESTIONNAIRE FOR STAKEHOLDER INTERVIEWS

Questionnaire 1: Executive Education for Good Governance

Name: ________________________________Occupation: ________________________________Last Position: ________________________________

These data are being collected purely for research purposes to suggest improvements in the executive education for good governance and the responses will be aggregated. The respondent’s identity will be guarded.

A. ATTRIBUTES OF GOOD GOVERNANCE

1) In your opinion what does Good Governance constitute? Please rank in order of importance:

Attribute of Good Governance Importance [Rank Most = 1 and Least = 8])Political stabilityFinancial StabilitySatisfied populationPeace and tranquilityRule of law - Fair and speedy dispensation of justiceTransparent Implementation of RegulationsResponsive Bureaucracy Efficient Bureaucracy

2) Please list other attributes, if any, that you think are important for good governance

______________________________________________________________

______________________________________________________________

______________________________________________________________

3) Are you satisfied with the state of governance in Pakistan? [Please tick];( ) Yes or ( ) No

3.a.) If no then what in your opinion, are the main causes of poor governance?

__________________________________________________________; __________________________________________________________

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4) Please rank the following stakeholders in good governance in the country?; Stakeholders Rank [most important = 1 and least = 10]Civil servantsManagement training Institutions i.e. Instructors, Resource person etc.Personnel Management Agencies such as Establishment DivisionPolitical leadership including ministersLegislatorsCivil SocietyMediaLegal professionRetired Civil Servants and Retired Army OfficersArmed forces

5) In your opinion which segment of the society is largely responsible for poor; governance in Pakistan?

Segment of Society Rank in order of priority [most = 1 Least =8]Civil servantsPoliticiansArmed ForcesCivil SocietyJudiciaryLawyersFunctionaries administering justiceBusiness and Industrial community

6) Which of the following traits, in your opinion, can lead to good governance?Traits Please rank in order of importance [most important

= 1 and least important=10]Fear of GodOfficial AccountabilityAccessibilityEffective listeningCommitment to organizational missionComprehension of issues and problem solvingSense of responsibilityInspiring Confidence/TrustHonestyGood Executive Education

B. EXECUTIVE EDUCATION/INSERVICE TRAINING FOR GOOD GOVERNANCE

7) Do you think that formal education in governance should be a pre-requisite to entry into the civil service?

[Please tick __________ Yes ____________ No _______ not sure]

8) Do you think that governance can improve through in-service training/ executive education?

[Please tick ( ) Yes or ( ) No

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9) What type of subjects could/should be incorporated in the curriculum for in service training executive education to improve the capacity for good governance? Mention in order of priority.;

1) ___________________________________________________;2) ___________________________________________________;3) ___________________________________________________;4) ____________________________________________________

10) In your opinion, how should the overall in service executive training be structured and integrated to maximize the capacity for good governance? Please describe

____________________________________________________________________________________________________________________________________________________________________________________________________________________________

Questionnaire 2: Executive Education for Good Governance(In-Service/Retired Government Officers)

Name: ___________________________________Current Position: _____________________________Last Position: ________________________________

These data are being collected purely for research purposes to suggest improvements in the executive education for good governance and the responses will be aggregated. The respondent’s identity will be guarded.

A. ATTRIBUTES OF GOOD GOVERNANCE

1) In your opinion what does Good Governance constitute? Please rank in order of importance:

Attribute of Good Governance Importance [Rank Most = 1 andLeast = 8])

Political stabilityFinancial stabilitySatisfied populationPeace and tranquility

Rule of law - Fair and speedy dispensation of justiceTransparent Implementation of RegulationsResponsive Bureaucracy Efficient Bureaucracy

2) Please list other attributes, if any, that you think are important for good governance

__________________________________________________________________________________________________________________________________________________________________________________________

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3. a) Are you satisfied with the state of governance in Pakistan? [Please tick]; ( ) Yes or ( ) No

3. b) If no then what in your opinion, are the main causes of poor governance?

__________________________________________________________; __________________________________________________________; __________________________________________________________; __________________________________________________________

4) Please rank the following stakeholders in good governance in the country?; Stakeholders Rank [most important = 1 and least = 10]Civil servantsManagement training institutions i.e. Instructors, Resource persons etc.Personnel Management Agencies such as Establishment DivisionPolitical leadership including ministersLegislatorsCivil SocietyMediaLegal professionRetired Civil Servants and Retired Army OfficersArmed forces

5) In your opinion which segment of the society is largely responsible for poor; governance in Pakistan?

Segment of Society Rank in order of priority [most = 1 Least =8]Civil servantsPoliticiansArmed forcesCivil societyJudiciaryLawyersFunctionaries administering justiceBusiness and industrial community

6) Which of the following traits, in your opinion, can lead to good governance?Traits Please rank in order of importance [most important

= 1 and least important=10]Fear of GodOfficial AccountabilityAccessibilityEffective listeningCommitment to organizational missionComprehension of issues and problem solvingSense of responsibilityInspiring Confidence/TrustHonestyGood Executive Education

B. EXECUTIVE EDUCATION/IN SERVICE TRAINING FOR GOOD GOVERNANCE

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7) Do you think that formal education in governance should be a pre-requisite to entry into the civil service?

[Please tick __________ Yes ___________ No __________ Not sure]

8) Do you think that governance can improve through in-service training/ executive education?; ( ) Yes or ( ) No

9) Have you undergone any in-service training/executive education?; ( ) Yes or ( ) No

10) List the programs of training undergone with their duration and year of attendance.Training (Name)

Duration Year of Attendance

Was Governance Included in the

Curricula (Yes = 1No = 2)

Was Modern Management

included in the Curricula(Yes = 1No = 2)

Did this training increase your

capacity?(Yes = 1No = 2

Not sure = 3)

11) Do you think that the overall training during your career to date was adequately structured and integrated for developing your capacity for good governance?

( ) Yes or ( ) No

12) Did your training program/executive education curricula deal with the elements of governance such as transparency in decision making process and skills to introduce transparency?

( ) Yes or ( ) No

13) If yes, have these courses helped you to acquire different attitudes and skills to make a contribution to good governance in your organization?

( ) Yes or ( ) No; 14) What type of subjects could/should be incorporated in the curriculum for in

service training executive education to improve the capacity for good governance? Mention in order of priority.

1) __________________________________________________;2) ___________________________________________________;3) ___________________________________________________;4) ____________________________________________________

15) In your opinion, what training methodology should be used in the executive development programs to inculcate the capacity of good governance e.g. formal lectures, field visits, syndicate discussions etc. or a combination of these? Please List

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1)______________________________________________________;2) ______________________________________________________;3) ______________________________________________________;4) ______________________________________________________

16) In your opinion how the overall in service executive training should be structured and integrated to maximize the capacity for good governance? Please describe

____________________________________________________________________________________________________________________________________________________________________________________________________________________________

Supplementary Questions

1. Have you been imparted any training on integrity or ethics in public service?

( ) Yes or ( ) No

2. Have you undergone training or attended any awareness course about the Government Servant (Conduct) Rules, 1964?

( ) Yes or ( ) No

3. Have you undergone any awareness program about the conflict of interests?

( ) Yes or ( ) No

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ANNEX-4

NEWLY ADMINISTERED QUESTIONNAIRE

Questionnaire II: Executive Education for Good Governance

Name: _________________________ or you may choose to remain anonymousOccupation: ________________________________

These data are being collected purely for research purposes to suggest improvements through identification of key areas of executive education for good governance in view of the stakeholders. The responses will be aggregated and respondent’s identity will be guarded.

1) Do you require any executive education (assuming that you have not undergone any course on executive education to date)?

( ) Yes or ( ) No

2) In your opinion what are the key areas of executive education you would like to pursue in order to be better providers of good governance for its ‘demandeures’ (demanders) ? Please rank in order of importance:

Key areas of Executive Education Importance [Rank Most = 1and Least = 15]

Accountability and TransparencyBudgeting and AccountingCapacity BuildingCommunication skills

Concept of Good GovernanceCorruptionEthics in Public ServiceIslamic Concept of AdministrationNon Responsive BureaucracyProfessional / Technical SkillsResult-Oriented ManagementSocial, Economic and Political Problems including PovertyStructure of GovernmentSystem of Public Grievance RedressalUpgrading Technical Skills

3) Please list any other areas that you think are important for good governance.______________________________________________________________

______________________________________________________________

______________________________________________________________

4) What (in your experience have been) are the public expectations from you/your profession?

______________________________________________________________

______________________________________________________________

______________________________________________________________

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5) What are the problems you encounter from the standpoint of your profession in relation to Good Governance?

______________________________________________________________

______________________________________________________________

______________________________________________________________

6) What are the ways in which/How can you serve your clientele in a better way?

______________________________________________________________

______________________________________________________________

______________________________________________________________

7) What are the changes that you would like to see in the workings of the public functionaries?

______________________________________________________________

______________________________________________________________

______________________________________________________________

8) What should be the format (i.e. workshop, training sessions, seminars) duration, frequency and funding of training programs of better governance?

______________________________________________________________

______________________________________________________________

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ANNEX-5

IN-DEPTH INTERVIEWS: SELECTED TABLES AND GRAPHS

Qs: What Constitutes Good Governance?

Respondents were asked to rank the 8 constituents in order of importance from 1(Most important) to 8 (Least Important). For tabulation purposes, the ranking has been readjusted as follows: Most Important (Rank 1 & 2); Important (Rank 3 & 4); Less Important (Ranks 5 & 6); Least Important (Ranks 7 & 8).

What Constitutes Good Governance?(Percent of Rows)

Most Important


Least Important

Political Stability 38% 38% 12% 12% 100%Financial Stability 19% 40% 24% 17% 100%Satisfied Population 19% 12% 31% 38% 100%Peace and Tranquility 24% 29% 29% 19% 100%Rule of Law 64% 26% 7% 2% 100%Transparency 24% 17% 33% 26% 100%Responsive Bureaucracy 7% 17% 33% 43% 100%

Efficient Bureaucracy 5% 21% 31% 43% 100%

What Constitutes Good Governance?(Percent of Columns)

Most Important Important Less Important Least ImportantPolitical Stability 19% 19% 6% 6%Financial Stability 10% 20% 12% 8%Satisfied Population 10% 6% 15% 19%Peace and Tranquility 12% 14% 14% 10%Rule of Law 32% 13% 4% 1%Transparency 12% 8% 17% 13%Responsive Bureaucracy 4% 8% 17% 21%Efficient Bureaucracy 2% 11% 15% 21%

100% 100% 100% 100%

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Qs. Who Are the Important Stakeholders in Good Governance in The Country?

Respondents were asked to rank the 10 stakeholders in order of importance from 1(Most important) to 10 (Least Important). For tabulation purposes, the ranking has been readjusted as follows: Most Important (Rank 1 & 2); More Important (Rank 3 & 4); Important (Ranks 5 & 6); Less Important (Ranks 7 & 8); Least Important (Ranks 9 & 10).

Who are the Important Stakeholders in Good Governance in the Country?(Percent of Rows)

Most Important

More Important


Least Important

Civil Servants 48% 12% 21% 14% 5% 100%Management Training Institutions (Instructors, Resource Persons etc.)

7% 33% 31% 21% 7% 100%

Personnel Management Agencies (Establishment Division, etc.)

7% 14% 31% 21% 26% 100%

Political Leadership (including Ministers)

48% 21% 10% 10% 12% 100%

Legislators 36% 24% 14% 17% 10% 100%Civil Society 24% 36% 19% 12% 10% 100%Media 10% 31% 33% 17% 10% 100%Legal Profession 5% 21% 31% 40% 2% 100%Civil Servants and Army Officers (Retired)

5% 5% 2% 26% 62% 100%

Armed Forces 12% 2% 7% 21% 57% 100%

Who are the Important Stakeholders in Good Governance in the Country? (Percent of Columns)

Most Important

More Important


Least Important

Civil Servants 24% 6% 11% 7% 2%Management Training Institutions (Instructors, Resource Persons etc.)

4% 17% 15% 11% 4%

Personnel Management Agencies (Establishment Division, etc.)

4% 7% 15% 11% 13%

Political Leadership (including Ministers) 24% 11% 5% 5% 6%Legislators 18% 12% 7% 8% 5%Civil Society 12% 18% 10% 6% 5%Media 5% 15% 17% 8% 5%Legal Profession 2% 11% 15% 20% 1%Civil Servants and Army Officers (Retired) 2% 2% 1% 13% 31%Armed Forces 6% 1% 4% 11% 29% 100% 100% 100% 100% 100%

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Qs: Which Segment of the Society is Largely Responsible for Poor Governance in Pakistan?

Respondents were asked to rank the 8 categories in order of importance from 1(Mostly Responsible) to 8 (Least Important). For tabulation purposes, the ranking has been readjusted as follows: Mostly Responsible (Rank 1 & 2); Partly Responsible (Rank 3 & 4); Less Responsible (Ranks 5 & 6); Least Responsible (Ranks 7 & 8).

Which Segment of the Society is Largely Responsible for Poor Governance in Pakistan?(Percent of Rows)

Mostly Responsible

Partly Responsible

Less Responsible

Least Responsible

Civil Servants 74% 19% 0% 7% 100%Politicians 67% 24% 5% 5% 100%Armed Forces 21% 31% 10% 38% 100%Civil Society 12% 31% 36% 21% 100%Judiciary 14% 48% 29% 10% 100%Lawyers 0% 12% 55% 33% 100%Functionaries Administering Justice 5% 26% 43% 26% 100%Business and Industrial Community 7% 10% 24% 60% 100%

Which Segment of the Society is Largely Responsible for Poor Governance in Pakistan?(Percent of Columns)

Mostly Responsible

Partly Responsible

Less Responsible

Least Responsible

Civil Servants 37% 10% 0% 4%Politicians 33% 12% 2% 2%Armed Forces 11% 15% 5% 19%Civil Society 6% 15% 18% 11%Judiciary 7% 24% 14% 5%Lawyers 0% 6% 27% 17%Functionaries Administering Justice 2% 13% 21% 13%Business and Industrial Community 4% 5% 12% 30% 100% 100% 100% 100%

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Qs. Which of the Following Traits , in your opinion, can lead to good governance?

Respondents were asked to rank the 10 stakeholders in order of importance from 1(Most important) to 10 (Least Important). For tabulation purposes, the ranking has been readjusted as follows: Most Important (Rank 1 & 2); More Important (Rank 3 & 4); Important (Ranks 5 & 6); Less Important (Ranks 7 & 8); Least Important (Ranks 9 & 10).

Which Traits Can Lead to Good Governance?(Percent in Rows)

Most Important

More Important


Least Important

Fear of God 55% 2% 7% 5% 31% 100%Official Accountability 48% 21% 10% 10% 12% 100%Accessibility 10% 19% 21% 33% 17% 100%Effective Listening 5% 7% 17% 36% 36% 100%Commitment to Organizational Mission

10% 21% 26% 21% 21% 100%


7% 10% 36% 31% 17% 100%

Sense of Responsibility 17% 40% 19% 17% 7% 100%Inspiring Confidence/Trust 12% 17% 17% 24% 31% 100%Honesty 17% 40% 21% 12% 10% 100%Good Executive Education 21% 21% 26% 12% 19% 100%

Which Traits Can Lead to Good Governance?(Percent in Columns)

Most Important

More Important


Least Important

Fear of God 27% 1% 4% 2% 15%Official Accountability 24% 11% 5% 5% 6%Accessibility 5% 10% 11% 17% 8%Effective Listening 2% 4% 8% 18% 18%Commitment to Organizational Mission 5% 11% 13% 11% 11%Comprehension of Issues and Problem Solving

4% 5% 18% 15% 8%

Sense of Responsibility 8% 20% 10% 8% 4%Inspiring Confidence/Trust 6% 8% 8% 12% 15%Honesty 8% 20% 11% 6% 5%Good Executive Education 11% 11% 13% 6% 10% 100% 100% 100% 100% 100%

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ANNEX-6

SPECIALIZED GROUPS TRAINING

As part of this report, a number of individuals with wide ranging experience in training and capacity building were approached to identify the specialized areas in which government functionaries should be imparted training. Based on their observations and on the research carried out for this study, the following areas were identified.

Departments / Occupational Groups

Training Disciplines Specialized Programs/ Courses

Railways

1. Transport Economics2. Business Administration3. Technology Exploitation and

Management4. Public Policy & Administration5. Human Resource Management6. Railways Systems Engineering7. Transport Planning & Engineering

Communication in RailwaysRailway ElectrificationRail Operations and Management

Railway Technology Strategy & Economics

Income Tax Group – ITG

1. Financial & Commercial Law2. Corporate Law3. International Business Law4. International Economic Law5. Tax Law6. Taxation7. International Taxation8. Public Finance9. Professional Accounting

10. Accounting & Finance

Financial Tax PlanningInterpretation of Tax StatutesPublic Finance

Domestic Tax

District Management Group - DMG

1. Development Studies2. Economics3. Education Leadership & Innovation4. Globalization5. Government Administration6. Business Administration7. International Management8. Economic Analysis & Policy

Management9. Environment Policy & Planning

10. Public Policy & Administration11. Natural Resource Management12. Agricultural Studies13. Development Management14. Health Policy & Management15. Human Resource Management16. Road Management & Engineering17. Urban Spatial Analytics

Strategic Management

Service Delivery and Health Systems

Organizational Dynamics

Management Information Systems

Theory of Economic Policy

Customs & Excise Group – C&EG

1. Commercial Law2. International Business Law3. Public Policy & Administration4. Taxation5. Tax Law6. Financial Economics7. International Trade8. Financial Management9. Human Resource Management

10. Investment & Finance11.

Customs Brokerage

Office Management Group - OMG 1. Agriculture2. Public Health, Policy, Planning &

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Departments / Occupational Groups

Training Disciplines Specialized Programs/ Courses

Financing3. Food & Culture4. Water Management5. Demographics6. Agribusiness7. Economics8. Natural Resource Management9. Environment

10. Gender & Society11. Transport Policy12. Urban Planning

Issues in Public Health

Integral Water Management

Police Service of Pakistan - PSP

1. Law2. Law Development3. Criminology & Criminal Justice Policy4. Public Service5. Forensic Science

Counter-TerrorismSecurity & Risk ManagementQuantifying and Evaluating Forensic Evidence

Pakistan Audit & Accounts Service – PAAS

1. Accounting & Finance2. Accounting, Public Sector Financial

Management3. Finance & Development4. Finance & Financial Law5. Law & Accounting6. Public Policy

Internal Audit and Governance in the Public Sector

Information

1. Media & Communication2. Political Communication3. Global Media & Communication4. Media Comm Regulation & Policy Media Training & Fundamentals of

PR

Foreign Service of Pakistan – FSP

1. International Relations2. Development Studies3. Economics4. Globalization & Development5. Law Diplomacy6. Public Policy7. International Economic & Political

Development8. History9. Political Economy

Foreign PolicyInternational Relations

Diplomacy at International forums

Commerce & Trade Group – C&TG

1. Business Administration2. Entrepreneurship Development3. International Trade4. Intellectual Property Rights5. International Economic Law6. Development Economics7. Globalization & Development

Free/Foreign Trade Zones

International Trade Factors

Postal

1. Communication and Information Technology

2. Transport Networking3. Infrastructure Planning4. Logistics Development5. Human Resource Management

Operational Management

Secretariat Group

1. Gender & Development Studies2. Social Policy & Planning3. Agriculture4. Economics Analyzing Rural Economic Systems

and Developing Economic Plans

These are Commerce & Trade Group – C&TG, Customs & Excise Group – C&EG, District Management Group – DMG, Foreign Service of Pakistan – FSP, Income Tax Group – ITG, Information, Office Management Group – OMG, Pakistan Audit & Accounts Service – PAAS, Police Service of Pakistan – PSP, Postal, Railways and Secretariat Group

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Following is a brief description of specialized programs/courses mentioned above:

Railways

1. Communications in Railways: The advent of GSM(R) and ERTMS herald significant issues for the integration of these radio based systems into the railway infrastructure and rolling stock. Other new technologies are also impacting the railway industry, third generation mobile communications, TETRA and Wi-Fi systems accessing the internet via train-borne VSAT systems. It is therefore essential for railway engineers to understand how these systems operate and the likely impact they will have on existing infrastructure and rolling stock. Also the exposure to electromagnetic fields of both the general public and railway employees is of concern.

2. Railway Electrification: Railway electrification systems have undergone significant development in recent years due to the demands of high-speed lines, metros and light rail systems. In order to achieve safe and reliable integration of electrical/electronic systems, such as train control systems, in the railway environment, a basic understanding of railway electrification systems is required. This is an essential pre-requisite for understanding EMC issues for example. Also railway electrification is changing with moves away from traditional DC and 16 ⅔ Hz to 25kV AC and the introduction of auto-transformers on the WCRM project.

3. Rail Operations and Management: This covers the range of railway management and operations activities, from demand based railway planning through to inter-modal freight transport operations, all based on an interpretation of the special characteristics of the rail mode of transport. Areas addressed include asset maintenance and management, marketing, safety cases and rolling stock acceptance issues, freight and passenger train services, human resource management, the British railway industry structure and environmental issues, as well as operations management for the rail industry.

4. Railway Technology Strategy and Economics: The module has two primary objectives, namely, to introduce the students to the fundamental principles of economics and to develop their understanding of technology strategy issues. Economics is covered at a basic level and includes the issues of supply and demand, macro- and micro-economics and marginal costing as well as some elements of balance sheet analysis and project financing.

Income Tax Group:

1. Financial Tax Planning: integrates federal taxation with overall financial planning. The course explores tax strategies relating to the central financial tactics of wealth building, capital preservation, and estate distribution. The result is a unified explanation of tax-economics that will permit the tax professional to locate, analyze, and solve financial concerns. Designed to improve the quality of services to clients and the profitability of engagements, this program projects the accountant into the world of financial planning.

2. Interpretation of Tax Statutes: A critical analysis of judicial comments and statutory provisions dealing with the interpretation of fiscal legislation

3. Public Finance: Fiscal functions and institutions; Expenditure structure and policy; Fiscal stabilization and economics of the public debt; Taxation structure and policy; Public finance and the financial markets; International public finance trends in global government finance

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4. Domestic Tax: Capital Gains Tax, Residence basis of taxation, Deductions, Trusts, Partnerships, Contracts of sale and exchange, Leasing, Share buy backs/Dividends, Tax avoidance, Employment, Retirement Funds, Financial instruments, E-Commerce, Insurance/Four funds approach, Objection and appeal.

Customs and Excise Group C&EG:

1. Customs Brokerage: Consumption Entries, Zone Admissions, Zone Activity Permit, FTZ Entries, Temporary Importation Bond (TIB), Single Transaction Importer's Bond, Continuous Bond for Importers, Bonded Carriers, FTZ

Office Management Group (OMG):

1. Issues in Public Health: Explore the health of the population and the challenges for policy-makers. An introduction in to the ways of analyzing public health policies from different disciplinary perspectives and develop your skills in critical analysis.

2. Integral Water Management: Focus on issues like land reclamation, drinking water supply and sanitation, waste water treatment systems, water quantity and water quality management of surface and groundwater, how water is used as guiding principle in planning processes and, how we can use our water resources in a sustainable way.

Police Service of Pakistan (PSP):

1. Quantifying and Evaluating Forensic Evidence: This includes the general course of a generic investigative process from the appropriate framing of a question to the critical interpretation of data and information. The appropriate use of data in well constructed arguments will be considered in order to distinguish between fact, opinion and speculation. Intellectual rigor will be challenged, and the ability to identify weakness in argument will be developed. Data will be examined for reliability and reproducibility with a focus on the distinct features of forensically related data. Appropriate use of descriptive and hypothesis testing statistics will be practiced and the ‘prosecutor’s fallacy’ explored. Analysis of Bayes’ Theorem and reinforced through case studies.

Pakistan Audit & Accounts Service – PAAS:

1. Internal Audit and Governance in the Public Sector: This aims to enable internal auditors to function efficiently and effectively and at the same time adhering to the requirements of the relevant legislation. The Internal Audit & Governance (IAG) course of the Public Finance Management Programme provides overall training in respect of internal audit in a public sector environment. Specific attention is also given to the audit committee and the relevant statutory and other requirements.

Information:

1. Media Training and Fundamentals of PR: It covers the basics of public relations, such as how to position your organization through positive interactions with the media,

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building your profile without advertising, when to write a media release and how to structure it to optimize media interest.

Commerce and Trade Group

1. Free/Foreign Trade Zones: Zone Operator / Zone User; Minor Boundary Modifications; Zone Expansions; Manufacturing Permits; Subzones; FTZ Management; Activations / Alterations; Feasibility Analysis; Procedures Manual; Zone Schedules

2. International Trade Factors: Import/Export Consulting/Mentoring; Market Research; Auditing of various Logistics Suppliers; Trade Agreements; C-TPAT Applications - International Security Compliance

154


ANNEX-7

EIROP STUDY, GOVERNMENT OF NWFP, 2001

It is suggested that Provincial Governments draw upon this wealth of material.

Devolution Paradigm and Decentralized Functioning: The training components in this domain are awareness to LGO 2001; rules of business for district setup; local funds rules and procedures; management of local finances, funds and property; community development; women/marginalized group empowerment; and social mobilization through NGOs/CBOs.

Planning: The training contents included in this domain are participatory & gender sensitive approaches; ADP formulation; orientation to PC proformae; project authentication procedures; project cycle management; role and functions of district/public accounts committees and report writing.

Finance: The training components in this domain are budget formulation; withdrawal of money from treasury; maintenance and reconciliation of accounts; resource mobilization and tax management at district level; financial rules and procedures; roles and functions of DDOs; financial control and fraud, forgery & defalcation investigation.

Accounting and Auditing: The salient topics included herein cover standard accounting procedures; handling of cash book; settlement of audit objections/paras; and performance auditing.

Information Technology: The training components in this domain are office automation; MS windows; access and use of internet; and orientation to networking.

Management: The training themes indicated in this domain are leadership; communication/negotiation/listening skills; group dynamics; time/ stress/ crisis management; personnel management; public relationing; and procurement procedures.

Human Rights and Gender Perspectives: The training themes covered herein are human rights charter; and rights of women/ children/ minorities/ tourists/ marginalized groups.

Governance: Training in governance focuses development related local governance issues such as procurement, recruitment, absenteeism, accountability and site selection.

Although the governance training domain has been specifically segregated from the other domains, all of the training domains identified above are directly or indirectly relevant to good governance, which addresses the competent management of resources and affairs in a manner that is open, transparent, accountable, equitable and responsive to people’s needs and problems.

The needs assessment was carried out as part of the Institutional Reforms Operationalization Program (EIROP), a joint venture between GoNWFP, UNDP and SDC13. With reference to 13 The overall objective of EIROP is to enhance the well being of the people of NWFP by making the public sector more effective, efficient and responsive through decentralization, informed decision making and capacity building, working towards a system which is participatory, gender sensitive, transparent and accountable to beneficiaries. Target beneficiaries of the program include public sector institutions, policy makers, development planners, Local/District Governments and civil society organizations.

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government functionaries, the exercise identified a very significant need for training in a whole set of subjects, with finance cited as a priority training domain by most respondents (Table 7).

Table 7: Training Requirements For Government FunctionariesPriority Domain %age1 Finance 78.762 Devolution/Decentralization 76.403 Budgeting 76.404 Planning 75.145 Accounting & Auditing 68.706 Information Technology 67.047 Management 63.14

The priority areas identified by elected representatives at the district level were not much different:

Table 8: Training Requirements For Elected RepresentativesPriority Domain %age1 Finance 88.702 Devolution/Decentralization 80.533 Budgeting 79.794 Planning 79.625 Management 79.216 Accounting & Auditing 69.687 Information Technology 62.77

The overall training requirements, after combining the responses of both public representatives and government functionaries at the district level, are given below (Table 9). There is a marked prioritization for finance as an area demanding the most attention.

Table 9: Overall Training Requirements at the District LevelPriority Domain %age1 Finance 83.732 Devolution/Decentralization 78.473 Budgeting 78.094 Planning 77.385 Management 71.176 Accounting & Auditing 69.197 Information Technology 64.90

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ANNEX-8

FEDERAL EMPLOYEES BY PROVINCE

GRADE SANCTIONED POSTS

ACTUAL POSTS (FILLED IN)

DOMICILEISLAMABAD PUNJAB SINDH NWFP BALOCHISTAN AJ&K NA FATA

22 113 101 0 73 12 14 2 0 0 021 367 292 5 195 40 38 7 4 1 220 1075 859 2 527 141 122 36 8 7 1619 2864 2281 5 1284 389 338 70 44 96 5518 6369 4758 17 2693 658 636 149 57 467 8117 12244 9187 35 5020 1505 1202 275 122 862 166 23032 17478 64 9792 2745 2350 539 235 1433 32016 17049 13654 151 7961 2283 1668 338 173 885 19515 4594 4201 61 2423 477 924 105 55 93 6314 23218 20166 190 11904 3093 2948 667 238 871 25513 2582 3118 6 1895 230 908 19 20 18 2212 9821 8309 85 4477 2027 945 441 71 175 8811 17730 11618 47 5074 2971 2587 407 118 351 6310 2969 2723 45 1652 635 268 43 24 43 139 23884 21844 107 11679 3477 2711 522 299 2882 1678 7912 8713 8 4485 604 3049 282 30 245 107 51407 46158 280 21983 6080 13153 1418 334 2750 1606 36747 31016 16 16835 2837 9470 659 117 1050 325 142651 135454 168 44848 11035 64335 6927 1055 6402 6844 16291 15643 216 7275 3952 2257 1017 213 632 813 14043 12989 59 8477 1740 758 774 186 956 392 47581 46270 2900 21691 7997 5311 1544 769 5827 2311 38575 25888 138 11799 6712 5622 1050 312 189 66 457054 407764 4477 184458 56150 116914 16213 4014 23369 2169 480086 425242 4541 194250 58895 119264 16752 4249 24802 2489

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