simulation exercise on law & order in pakistan; (national school of public policy)

SIMULATION EXERCICE III: LAW & ORDERCONFIDENTIAL

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TO BE RETURNED AT THE END OF THE EXERCISECopy No:

NATIONAL INSTITUTE OF MANAGEMENT, LAHORE

10TH MID CAREER MANGEMENT COURSE

SIMULATION EXERCISE 111LAW & ORDER

PARTICIPANT GUIDE

SPONSOR DS: Mr. SALMAN CHOUDHRY


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Confidentiality of Document

Participants and Faculty Members of National Institute of Management, Lahore are authorized to use this document. Use of this document-in original or copy of it-by any person, other than the authorized persons, inside or outside National Institute of Management is STRICTLY PROHIBITED. Please DO NOT make PHOTOCOPY of this document.

Disclaimer

This document contains training material designed exclusively to promote discussion amongst the participants of 10th MCMC at NIM Lahore. It is not a prediction of the future, nor does it necessarily reflect the views of the institution.


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NATIONAL INSTITUTE OF MANAGEMENT LAHORE(MID CAREER MANAGEMENT WING)

10TH Mid Career Management CourseSIMULATION EXERCISE

1. As you must have noticed and experienced already, Simulation Exercise is an

effective method of learning as the philosophy of training is centered on “learning by

doing”. This is, by far, the most important training activity of the Course. The exercise

“Law & Order” focuses on the process of studying, analyzing and synthesizing policy

with action, systems, issues in provision of security and the present state of law & order

in Pakistan. The participants will then be applying this analysis and synthesis to the

formulation of effective policy and its implementation strategies for national

development and overall security for the masses. For the purposes of this Exercise, the

group shall be divided into smaller Syndicates and Research and Analysis Groups

(RAGs). Participants will be assigned formal roles of people in positions of executive

authority in the state, and of academic quality and experiential excellence in the society.

While playing these roles Syndicates and RAGs will be required to develop policy

implementation solutions that can take into account prospective eventualities demanding

change while simultaneously ensuring continuity in policy, where the existing policy

warrants extension. Participants will be required to interview either in person or, at least,

on phone, those persons, whose roles they play during the Exercise. Knowledge of socio-

political, socio-cultural and socio-economic environment is essential as they are inter-

related with the present state of law & order and in Pakistan. Also knowledge of the

stated policies and their implementation mechanisms in the Federal and Provincial

Government structures along with resource allocation is essential for this Exercise.

Participants’ knowledge about departmental capacity, the role of vested interests, impact

of inter and intra departmental factors and the role of all Law Enforcement Agencies

(LEAs), whether or not impinging on the law & order are necessary for policy

formulation and implementation strategies which should lead to the desired development.

Generic Aims of a Simulation Exercise:

2. To offer an opportunity to participants to apply knowledge and skills to understand the

process of policy formulation so as to work out Implementation Strategies and develop

operational plans for policy execution.


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Training Objectives of Simulation Exercise:

(1) To sift the essential from the trivial in a given scenario.

(2) To prioritize issues according to the degree of importance in a given environment.

(3) To develop leadership skills among the participants.

(4) To develop the skills of working as a team and building consensus through

effective negotiation techniques.

(5) To employ research methodology to harness primary and secondary resources.

(6) To hone presentation skills for effective communication.

(7) In doing all above, TO THINK OUT OF THE BOX - INNOVATE.

(8) Main emphasis would be on “HOW TO THINK” and not “WHAT TO THINK”.

3. While doing so the Syndicates and Research and Analysis Groups (RAGs) are required to

foresee at least one International, National and one Provincial, Local event or a development

which could have the potential to destabilize the operational plan and the process of its

implementation. Generally, governmental approach towards such issues lacks an operational

flexibility, with the result that when confronted with unforeseen hazards, mid-course corrections

are not possible. In such an eventuality, the Syndicates RAGs are required to prepare a

contingency plan (Plan B), which will enable the Government to make mid-course corrections

and ensure sustainability of the proposed operational plan. All such plans must contain an elastic

approach towards various issues. Elasticity and ability to prepare for a probable event in future is

the hallmark of a strategic manager. It is essential for working out a solution or solutions, which

can cater for unforeseen upsets, which can become “foresee-able”, to a large extent, by playing

out a simulated scenario. This is what essentially distinguishes a Simulation Exercise from other

training methods.


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SIMULATION EXERCISE III

LAW & ORDER

4. Security of person and protection of property are the fundamental rights of every citizen

as enshrined in the Constitution of Islamic Republic of Pakistan1. In furtherance of these rights

promotion of social justice and eradication of social evils are also included in the Principles of

Policy. Whenever a citizen needs justice and protection the first door he knocks at is of a public

servant. The state in this matter is duty bound to provide justice without hindrance and cost.

However the process once initiated is trying, cumbersome, complicated and often results in

corruption without any reference to justice. Resultantly there arises a trust deficit between the

citizens and the state which is not only dangerous but fatal.

5. .Since 2005 a US Think Tank “Fund for Peace”2 in collaboration with Foreign Policy

Magazine has been publishing an annual Failed State Index on the basis of twelve indicators of

state vulnerability. It has placed Pakistan at number 10 (2009), 9 (2008), 12 (2007) and 9 (2006).

Interestingly, Pakistan has been placed amongst the like of Somalia, Niger and Afghanistan. The

criterion includes four social two economic and six political indicators. The index points out that

five core institutions including Police in Pakistan are weak, whereas judiciary and civil services

have been catagorised as moderately weak. Taking a closer look of these facts it appears that

they are all related to law and order.

6. It can be argued that this index is controversial but the fact remains that Pakistan has

been unable to attain stability in core fields such politics, human resource development and

police. The problem doesn’t end here this weakness has brought Pakistan very close to food

insecurity, water shortage and energy crisis to name a few. It seems that this situation has

acquired a tone of being irreversible. No development in one sector can bring about the change

required; it has to be a multipronged strategy to achieve the target. Law and Order straddles at an

important point in the national orchestra, which needs fine tuning. Leaving aside our internal

despondency, we have to analyze the situation with rationality and propose something which is

time tested and tried. In this connection if we look at our law & order machinery; it is out dated

and lacks capacity to meet the challenges of the new millennium.

1 Article 4 Constitution of Islamic Republic of Pakistan, 1973.2 http://www.fundforpeace.org

http://www.fundforpeace.org/


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7. Order in a society is composed of three kinds; political order, economic order and social

order, breaking of order in any sector would pose a serious challenge for the state. Prudence in

good governance demands preemptive rather than remedial measures. This in turns requires that

there should be capacity of the state machinery at all level to meet the challenge. Maintain order

rests solely with operational machinery of the state in the shape of Police and other Law

Enforcement Agencies (LEAs). One must appreciate the fact that state has the sole monopoly to

use physical force within its borders to achieve order and balance in the society. The operational

efficacy of this machinery would ensure that the state maintains that monopoly3.

Quantitative:

8. The police department in Pakistan is one of the most poorly managed departments. It

suffers from internal fatigues which have penetrated at all level and made it one of the most

corrupt departments in Pakistan4. It suffers from lack of capacity, outdated training, poor

equipment, deep politicization, lack of resources and ownership. One must appreciate the fact

also that despite this bleak picture it still managed to provide the front line for the “Fight against

Terror” and also suffered huge losses5. The irony is that it has not been able to attract the

attention it deserves even after giving results.

9. The provincial police forces are nearly 325,000 strong and have a combined budget of

over Rs. 80,000 million6.

Provinces (2009-10) Sanctioned Strength Budget Rs. Million

Punjab Police 170,031 43,000.00

Sindh Police 70,133 24,900.00

KP Police 52,650 9,677.15

3 Max Weber, On Bureaucracy, Six Principles.4 Transparency International.5 Sifwat Ghayoor PSP, Commandant Frontier Constabulary, martyred August 2010 Peshawar. One of the most

decorated police officer in the long list of martyrs, to name.6 Punjab Police website, Sanctioned Strength: http://www.punjabpolice.gov.pk/page.asp?id= 195 as on 15 January 2010; Geo TV website, Budget2009-10:http://www.geo.tv/important_events/ 2009/budget2009/pages/english_news-17-06-2009.asp as on 20 January 2010; Sindh Police website, Sanctioned Strength: http://www.sindhpolice.gov.pk/sanctioned_strength.htm as on 15 January 2010; Ayub, Imran. “Over Rs24bn allocated for Sindh police,” Dawn, 16 June 2009: http:// www.dawn.com/wps/wcm/connect/dawn-content-library/dawn/the-newspaper/local/karachiover- rs24bn-allocated-for-sindh-police-669 as on 20 January 2010; Government of Khyber Pakhtunkhwa, Revenue Department; Police: http://www.nwfpfinance.gov.pk/White Paper2009- 10.pdf as on 15 January 2010; Baluchistan Police website, Annual Administration Report, at pp. 22-23: www.balochistanpolice.gov.pk/images-2/AnnualAR06.doc as on 15 January 2010; Baluchistan Police website, Annual Policing Plan 2007-08, at p. 8: http://www. balochistanpolice.gov.pk/ as on 20 January 2010.

http://www.dawn.com/wps/wcm/connect/dawn-content-library/dawn/the-newspaper/local/karachiover-

http://www.geo.tv/important_events/


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Baluchistan Police 32,119 3,500.00

Total 324,933 81,077.15

The collective strength of the various Civil Armed Forces is as follows:

Force Strength

FC Baluchistan 45,227

FC KP 48,648

Pakistan Rangers (Punjab) 19,487

Pakistan Rangers (Sindh) 24,630

Pakistan Coast Guards 4,067

Northern Area Scouts 3,679

Frontier Constabulary 22,817

Total 168,555

Qualitative:

10. In the aftermath of the War of Independence of 1857, which seriously challenged British

rule over the subcontinent, the Police Commission of 1860 recommended the abolition of the

Military Arm of the Police; the appointment of an Inspector General of Police in the Province;

and the placement of police in a district under the District Superintendent with general control

wielded by the District Magistrate. Based on the recommendations of the Commission the

Government of India submitted a bill that was passed into the Police Act of 1861. It has been

noted that the aim of the law was to keep “the natives on a tight leash” and that the police was

not organised as a “politically neutral outfit for fair and just enforcement of law”7.

11. The overall organisation of the police forces remained much the same after the

independence of Pakistan in 1947. Except for the centrally administered and tribal territories,

basic law and order responsibilities have been carried out by the four provincial governments,

who were also entitled to make rules under the Police Act, 18618. The police in the various

7 Suddle, Mohammad S., Reforming Pakistan Police: An Overview, 120th International Senior Seminar on Effective Administration of Police and the Prosecution of Criminal Justice, 2001:http://www.unafei.or.jp/english/pdf/PDF_rms/no60/ch05.pdf as on 11 March 2010.

8 See various provisions of the Police Act, 1861, specifically Section 46 which clearly provided that the provincial government could make rules for giving effect to the provisions of the Act. Article 112 of the Police Order, 2002 prescribes that the Provincial Police Officer (the highest official in the hierarchy of provincial police under the Police Order) may make rules for carrying into effect the provisions of the Order with the approval of the provincial government


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provinces and regions are established as separate establishments without any nationwide

integration of these policing bodies. However, the federal government has established a series of

specialised investigating agencies at the national level, and as part of its mandate, the federal

government asserts primacy in any matter relating to national security9. Since policing in

independent Pakistan has reflected the same deficiencies and flaws of policing as during colonial

rule, a number of reform efforts have been undertaken to improve the performance of law

enforcement agencies without any results.

12. The failure of the reform process has created serious strategic and operational challenges

for mid level Police Officers and Civil Administration. The non acceptance of the Police Order

2002 by the Provincial Government has created confusion and has jeopardized the future of

Police Reforms. The security situation of the country is another issue which demands attention

and professional approach as it cannot be solved on rhetoric or need based strategy.

Infrastructure:

13. The infrastructure of the LEAs has increased with time and so has the capacity of the

organization in terms of manpower and infrastructure. In 2009, the number of police stations in

the country was as follows:

Province Number of Police Stations

Punjab 637

Sindh 440

KP 218

Baluchistan 84

Islamabad 13

Total 1392

14. The provision of police posts has been made to enable the police to have greater and

speedier reach and to ensure that the public can access police assistance more readily. Police

posts are set up under police stations where the population and jurisdictional limits of the

policing area are quite large. Generally, provincial police establishments are under-resourced.

9 An example of this is when the Special Investigations Group of the FIA was tasked with investigating Benazir Bhutto’s assassination. See Mir, Amir. “As world awaits report”, The News,15 April 2010: http://www.thenews.com.pk/top_story_detail.asp?Id=28317 as on 23 April 2010.


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For instance, the 55,000-member police force for Khyber Pakhtunkhwa in reality means one

policeman for every 350 km10.

Knowledge/Technological:

15. Rising crime and militancy across the country has forced the government to pay more

attention to modernising the police forces and their support infrastructure. It has been repeatedly

pointed out by experts and observers that Pakistan’s police forces are “poorly managed, ill-

equipped, poorly trained, deeply politicised and chronically corrupt”. In fact, there seems to be a

growing consensus among government circles and international donors that the failure to reform

and modernise police organisations in Pakistan is one of the primary explanations for why they

are incapable of maintaining law and order or investigating crime. Effective policing is hindered

if law enforcement agencies suffer from inadequate training and investigation facilities and are

poorly equipped to properly gather evidence11. It is interesting to note that Karachi, Pakistan’s

largest city of approximately 18 million, has an antiquated forensics laboratory that was only

recently upgraded. Moreover, not one provincial police establishment has a forensic

pathologist12.

16. While the training conditions at the NPA have improved over the years, the conditions at

most police training centres are harsh. Often these training centres do not have basic facilities or

adequate accommodation. For instance, at Lahore’s Manawan Campus of Chung Police Training

School there are only twelve toilets for 800 recruits and no provision for showers. In fact, no

medical facilities are available at the training school and 30 per cent of the recruits routinely miss

their training schedules due to illness. Another problem is that the training of new recruits is

largely focused on rudimentary physical training and not on the cultivation of skills. In addition,

new equipment is rarely evident at training schools and international developments in the field of 10 The four provinces are Punjab, Sindh, Balochistan, and Khyber Pakhtunkhwa (formerly North West Frontier

Province which had its name changed per the Constitution (Eighteenth Amendment) Act, 2010). Islamabad is the Federal Capital (or Islamabad Capital Territory). The so-called Northern Areas consisting of Gilgit and Baltistan north of Kashmir have been renamed in the recently issued Gilgit-Baltistan (Empowerment and Self-Governance) Order, 2009 which gives nominal autonomy to the region spread over an area of 72,971 km2 with a population of 970,347 inhabitants. Gilgit-Baltistan is governed through the Ministry of Kashmir and Northern Areas of the Government of Pakistan. For details see the International Crisis Group’s Discord in Pakistan’s Northern Areas at http://www.crisisgroup.org /en/regions/asia/south-asia/pakistan/131-discordin-akistans-northern-areas.aspx. Also see the Gilgit-Baltistan (Empowerment and Self- Governance) Order, 2009.

11 Institute for Social Policy and Understanding, Police & Law Enforcement Reform in Pakistan: Crucial for Counterinsurgency and Counterterrorism Success, April 2009.

12 Sheikh, Abdul K., “Police & war on terror”, Dawn, 31 May 2009: http://www.dawn.com/wps/wcm/connect/dawn-content-library/dawn/news/pakistan/16-police-and-war-on-terror-hs-04 as on 1 April 2010.


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policing are not normally taught. Moreover, due to the lack of resources, the overwhelming

majority of training schools in Pakistan are without proper classrooms, libraries, forensic units,

computer equipment and arms. Out of 14 provincial police training institutions, 10 function

without proper classrooms, 13 do not possess overhead projectors, 12 lack conference rooms, 12

are without a library, 12 do not have simulation facilities, 13 are have no forensic units, and 10

are without any computers.

17. In the light of the above discussion the participants of 10 th MCMC are required to study

in detail the underlying factors contributing to the worsening law & order situation. They are

further required to apply their knowledge and skills to work out operational plans which meet

the specific requirements of this exercise.

SETTING, AIMS, LEARNING OBJECTIVES, CONDUCT AND METHODOLOGY

Setting:

18. You have by now entered into the 12th week of your training at the Mid Career

Management Course and, being a potential BS-19 officer, the focus of training at your level is

centered at the tactical and operational levels. As part of service delivery paradigm, most of you

will play the roles of operational managers under a given policy, working out actionable plans

for policy implementation by yourself and officers one or two levels junior to you.

19. As a participant of Mid Career Management Course, you are assigned roles of operational

executives, and accordingly you are expected to interact with other elements within the Federal,

Provincial and District Government, prioritizing your objectives, and taking into consideration

all the available resources (including the human resource), while also making the best use of

such resources.

20. During these past weeks, you have interacted with some prominent policy makers and

policy implementers and men of opinion in different walks of life. You have been introduced to

the essentials of research methodology, communication and presentation skills and have also

been familiarized with the process of project planning and evaluation. You have been shown

how policy is formulated at various levels, what are its various sources, and what is required for

its effective implementation. The course contents have also exposed you to the analysis of social,

economic, strategic management and governance issues, and domestic and some regional and

global contexts in which policy making and implementation take place. You have also been


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exposed to Pakistan’s socio-economic, socio-cultural, socio-political and administrative

dimensions and how they differ from province to province.

21. During the Exercise, keeping in view public interests, taking into consideration the

opportunities and resource constraints you will analyze various challenges and threats to your

action plans to actualize projects. Your analysis should lead you to determine options that

address issues and to achieve the ends at the grassroots level. You will also be required to look at

the different government departments from the perspective of the individual roles assigned to

you in your respective groups.

22. During the exercise, as members of various Syndicates and RAGS, you will be assigned

different roles. These roles have been assigned for facilitating focused research in a short time

span; it does not mean that at the time of making presentations these roles will be actually played

at stage. You will provide concrete recommendations on which projects to start first and how

best to orchestrate operational level management tools. You will thrash out management

solutions in a dynamic and demanding policy implementation environment. How well you

analyze the issues, comprehend the contest between vested interests, and deliberate both within

your own domain and with others in policy implementation arena, will determine the overall

effectiveness of your management potential in dealing with the challenge that you may face.

Aims of Simulation Exercise III:

23. The principal aim of this simulation exercise is to provide the participants an opportunity

to understand and appreciate the importance of law & order in Pakistan. To understand what are

the various criminal administration systems in operation in the country; to appreciate this

diversity, operational efficiency must be highlighted in this highly specialized and important

sector. It also aims at affording an opportunity to the participants to understand the policy

initiative and what if there are any snags at their implementation. Furthermore it also aims at

exploring the new technological vistas in this field and explores their usage in our security

system.

Learning Objectives:

1. To develop an in-depth understanding of the participants about the importance

of law & order, policy, systems, and issues in provision of justice & order to

all and their relationship with national development with a view to recommend

changes for better service delivery at grass-roots level.


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2. To undertake a strategic appraisal of the prevailing environment, scarce

resources, limited governmental capacity, and competing demands on

resources.

3. Ability to comprehend the process and methodology of evolving effective,

hands-on “Implementation Mechanism” which will ensure service delivery to

the public under a near-realistic environment.

4. To develop and propose an organizational structure with an in-built review and

monitoring mechanism.

5. To come up with specific and concrete set of action plans for sustained

execution of the Operational Strategy; ensuring sustainable public good in the

short-term (1–2 years) and medium term (3–5 years). ‘Wish-list’ type of

recommendations need to be avoided.

6. To develop presentation skills for effective communication.

Conduct:

24. The Exercise will be conducted in following phases:

Phase- I

1. Briefing on Exercise by DS 7th December 2010.

2. Issue of General Instructions 7th December 2010.

Phase -2

Planning and Consideration 7th-11th December 2010.

(Including scheduled and un-scheduled visits by the faculty)

Phase 3 – Final Presentations:

1. Presentations by Syndicates and RAGs 13th-14th December 2010.

2. Exercise Debrief 14th December 2010.

Note: Presentation schedule will be issued separately.

Methodology:

25. During the Simulation Exercise, you will be divided into 3 Syndicates and 10 Research

and Analysis Groups. While playing operational management roles in various departments /

ministries, and members of think tanks, you will come up with implementable solutions in the


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backdrop of global, regional as well as domestic environment. These solutions will reflect the

collective wisdom of each group and not individual views.

26. In the light of the foregoing, the Simulation Exercise-III is designed to focus on a limited

but focused area of research.

27. Participants will be required to interview either in person or, at least, on phone, those

persons, whose roles they play during the Exercise. As a minimum, participants must read

performance audit reports, national strategic papers, or major strategic statements by the real

incumbents of those roles/appointments.

GENERAL REQUIREMENTS

(MOST IMPORTANT- MUST READ AND APPLY)

28. You are required to carefully study all the relevant material including government

publications and relevant research and analysis journals, and other sources, for a deeper

understanding and analysis of the issues. You should visit and interview policy practitioners

whose real-life advice should provide corrective inputs to your solutions. In the course of

exercise play, in an interactive environment, you will have to develop action plans and

downstream methodologies and processes while working within your domain. Any

recommendation which involves financial implications must contain a proposal for resource

allocation in percentage terms, as well as actual figures wherever you can successfully obtain

actual data from the source.

29. During this Simulation Exercise, you will get down to the actual implementation level.

Keeping in view public interests, and taking into consideration opportunities and constraints, you

will analyze various challenges and threats to your action plans to actualize projects. Your

analysis should lead you to determining options to address the issues and to achieve the ends in

particular at the operational level. You will also avail this opportunity to look at the different

Government departments and district governments from the perspectives of the individual roles

assigned to you in your respective Syndicates and RAGs.

30. The Syndicates RAGs are required to assess the implement-ability of these policies and

should be able to pin point with clarity as to what is do-able, what is not and why it cannot be

implemented. For each option you offer, you will be required to identify the reasons for policy

implementation failure in the past and then offer a rationale as to why you think that your

options will work and how.


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31. Note that you are supposed to develop specific as opposed to general, concrete as

opposed to “wish-list” type, policy options for sustained development.

32. After having done all of the above, your proposed implementation strategy/action plan

should address most of the aspects listed below. With your service and experience you need to

explore and find relevant material according to your group’s collective wisdom / genius.

i. Identification of the Specifics of the requirement (TORs).

ii. Aims to be determined and tasks to be assigned.

iii. Analysis of the tasks assigned.

iv. What other tasks can be assigned to other stakeholders.

v. Ascertaining the funding requirements, resource mobilization and resource

allocation.

vi. Technical and technological resources, if any and how to obtain and

harness them.

vii. Other tangible, intangible and technical resources available.

viii. Institutional preparedness in terms of structure, rules and procedures. Also

job requirements, motivation level of the personnel and their level of

commitment and professional competence. (CAPACITY – INDIVIDUAL /

INSTITUTIONAL)

ix. Infrastructural needs and how to meet them.

x. The needed political will as well as administrative will (or absence of it).

xi. Our international commitments, binding under international laws, treaty

obligations, where relevant.

xii. Time frame in which the options / recommendation are to be implemented.

Short term (1-2 years), medium term (3-4 years), and long term (5-7 years).

SPECIFIC REQUIREMENTS


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Syndicate 1 FEDERAL SECRETARY INTERIOR’s STUDY GROUP ON

FORMUALTING PROPOSALS FOR REFORMS IN POLICE

ACCOUNTABILITY:

33. Since February 2008, there has been a looming question of how the new government

would be able to address the myriad problems facing Pakistan. On the matter of policing, the

question was especially relevant since the implementation of the Police Order, 20021 throughout

Pakistan has been ad hoc and erratic. A failure to appreciate the impact that inadequate and

oppressive policing can have a negative effect on politics and governance risks repeating the

mistakes that have plagued Pakistan since Independence. Democratic policing can help militate

against intrusive and politically charged misconduct perpetrated by those in power, a fact

acknowledged by numerous government-sponsored commissions that have been tasked with

studying the problems of policing in Pakistan. These various commissions have all

fundamentally concluded the same thing: better policing requires the political will to make it

happen. With a democratically elected government in place, many in Pakistan hope that there

will now be sufficient space to cultivate a culture of democratic policing. There were many

progressive elements to the Police Order, 2002 as it was originally promulgated. The new law

put in place mechanisms and processes designed to limit political interference with police

functioning and ensuring accountability for performance and misconduct. For instance, the

Provincial Police Officer (PPO) would be selected by the provincial government out of a panel

of three police officers recommended by the National Public Safety Commission (NPSC) from a

list provided by the federal government. With the 12-member NPSC composed of three from the

treasury, three from the opposition and six independent members, it was felt that personnel

suggestions put forward by the NPSC would be non-partisan since its composition was equitably

assigned.

34. Similarly, the original Police Order, 2002 also called for the creation of District Public

Safety Commissions, Provincial Public Safety Commissions and Police Complaints Authorities

(at both the provincial and federal levels). Each of these bodies was constituted in a manner that

sought to minimise political interference and provide some form of external accountability for

police conduct. However, like the duties enumerated for the NPSC, the composition of these

bodies was amended in 2004 in such a way so as to dilute their progressive nature. Immediately

after the Police Order, 2002 was promulgated it encountered considerable opposition because the


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provinces argued that they should be able to legislate on policing matters that are provincial in

nature since the Constitution of Pakistan accords them that right13. Then there was the tension

and rivalry amongst the civil administration which took its toll on other wise a workable plan. It

was clear that governance was not the priority rather power and protection of privileges was

important. The whole issue of accountability took back seat and the operational machinery was

ineffective in every way14.

35. The syndicate should study the mechanisms available for accountability and comment on

its workability. Do we need a separate set of laws for the police officers. The syndicate then

must try to comment on the service delivery of the police related with these laws. The syndicate

should try to propose a system which has the backing of the people in general. Then comes the

issue of the courts in this paradigm; the syndicate should also explore this aspect.

While working out your solutions, you are required to strictly adhere to the general requirements

in paragraphs 28-32.

Syndicate 2 FEDERAL SECRETARY INTERIOR’s FOCAL GROUP ON CHANGING

THE POLICE OCCUPATIONAL CULTURE:

13 Enforcement of law and order has been recognized as a provincial subject in Pakistan. Further, the subject of Police is not mentioned in any of the two legislative lists (Federal Legislative List and Concurrent Legislative List), thus it falls in the category of residuary powers which are understood to be in the provincial domain under Article 142(c) of the Constitution of Pakistan. Though, the tendency of the superior courts in Pakistan has been to give the entries in the legislative lists the widest possible amplitude and liberal construction. Therefore, it is quite possible that items 1 and 2 on the concurrent legislative list, namely criminal law and criminal procedure, would be interpreted to include the subject of police.

14 At the district level there has always been a long-standing rivalry between the police, local government and the bureaucracy under the District Management Group (DMG) of the Central Superior Services, the successor of the Civil Service of Pakistan (CSP). The reason for this is simple: all three stakeholders desire power and influence. The acquisition of such power usually means that it was secured at the expense of the others. Historically, the DMG has traditionally been in the driver’s seat as compared to the police and local government. This dates back to the British Raj and its dependency on the bureaucrats for the smooth administration of an unwieldy subcontinent. But the power and influence of the bureaucracy gained more prominence in Pakistan than India because immediately after Independence there was a power vacuum in Pakistan. Its founder, Muhammad Ali Jinnah, died one year after independence and his successor, Liaquat Ali Khan, was assassinated three years later. At this critical juncture in Pakistan’s political development it was the military and the bureaucracy that filled the resulting leadership deficit. Subsequently, it was the Deputy Commissioner and the Assistant Commissioner of DMG (then CSP) that wielded considerable power at the district level by having authority over executive, judicial and revenue functions.


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36. A police station occupies pivotal position in the criminal justice system that also includes

the courts, prisons and the probation service. An official styled as the Station House Officer

heads the basic unit of the police organization. This linchpin of the police organization, colonial

legacy, has been endowed fabulous powers and authority by the law of the land. Next to the

Station House Officer in importance in the police station hierarchy is the Station Clerk, who is

the first contact for the visiting public. As a matter of fact this duo, the SHO and his Clerk

control the police station realm. Thana Culture may be accepted as synonymous with the police

occupational culture. Laws, rules and regulations, customs and traditions impact the occupational

culture of every service and profession including the police. Occupational culture transcends

geographic boundaries and tribal considerations. To illustrate this point reference is made to the

Punjab police and Frontier Police. They have remarkable similarities in the performance of their

functions and conduct, though difference in regional cultures in two provinces is manifest.

37. In the modern world abundant information is generated in the media about occupational

culture, which creates an image of the profession in the minds of the people. For example,

members of the medical profession are generally perceived as Messiah. In Britain, general public

has a nickname for a police officer; he is called “bobby” out of love. In Pakistan, the police

enjoys negative image. It is a common public perception that a person of refined disposition has

no place in the country’s police set up.

38. One of the most important functions of a police station is recording First Information

Report, in common parlance FIR, after the incidence of a crime. Most of the grievances against

the police station staff pertain to FIR registration. The senior police echelon is aware of this

situation. The Superior Courts have on many occasions passed strictures on the abuse of

authority by the police station staff in the registration process. The police cite resource constraint

as the main reason for refusing free registration of crime reports. There is no country in the

world where every crime is reported to the police or taken up by the police for investigation15. In

the absence of research in the field of criminology data on the dark figure of crime is not

available in Pakistan. This sorry state of affairs doesn’t end with the thana but extends all the

way up to the highest police office; Central Police Office. Long lines of people visiting these

offices are a common sight and this has built a sense of frustration amongst the people. The top

15 This is called as the Black Crime Figure; it is accepted that the figure could be as high as three times than the actual figure quoted.


18

bosses of the police department on the other hand keep on devising various mechanisms to

address this issue but it seems that this is an exercise in futility.

39. The syndicate should take an in depth study of the composition of the police station in all

respects. The syndicate should also study the rationale behind separation of watch and ward from

investigation and comment on its non acceptance by the police department. The issu of gaining

notoriety by the department must be given top priority and elaborate the role of all the

stakeholders.



Syndicate 3 CHIEF SECRETARY PUNJAB’s TASK FORCE ON ENSURING

OPERATIONAL EFFICIENCY IN MAINTENANCE OF LAW & ORDER

AT THE DISTRICT LEVEL:

40. The problem of law and order administration at the district level has assumed

unprecedented dimensions due to multiple disruptive forces at work. These include the political

disapproval of the Police Order 2002, agitation approach adopted by various pressure groups

(lawyers & media). Furthermore various local disruptive forces garbed in local politics have also

potentially disrupted the system. Furthermore insecurity of tenure of the civil servants has also

spiced up the situation. A further snag is the disconnect that exist between the first (policy

makers) and the last (common man). The resource base and training issue are also important for

the operational efficiency.

41. The two distinct populations rural and urban have different expectations and needs which

have to be catered by the law and order system. In a rural setting preliminary relief to the citizen

is provided to him by the traditional (tribal or bradari) dispute resolution mechanism. When it

fails then the matter is taken up the LEAs and here starts the long complex legal game of ladders

and sakes. In urban setting the common man directly seeks remedy from the system. The

criminal administration is ultimately the last resort for the people in both settings but it has its

problems and snags.

42. The Syndicate is required to analyse the operational capability of the district government

for maintaining law & order in all respects. The syndicate should study the resource basse and

flexibility needed in the police department. The syndicate should also highlight the operational

failures of the district government in maintaining law & order and also highlight positive results


19

in this experience. With the current security situation the security plans also need long term

planning and rehashing; has the authorities met the task or it is just a knee jerk reaction.



Rag 1 IGP SINDH’s WORKING GROUP ON FORMULATING

STARATEGY TO REMOVE ILLEGAL WEAPONS FROM

SINDH:

43. There are nine illegal arms for every licensed weapon currently held by individuals in the

country16. According to officials at the Ministry of Interior there were approximately 18 million

illegally-held weapons in Pakistan compared to some two million weapons that were in the hands

of legally-licensed owners. The figure of two million legally authorized weapons in Pakistan is

quoted in the Small Arms Survey, 2002. In 2001, the government launched a countrywide anti-

arms drive in a bid to curb the "Kalashnikov culture" that provides easy access to illegal

weapons.

44. The campaign led to the recovery of over 210,000 illegal arms in 18 months. This is just

a small fraction of the estimated number of weapons in circulation in the country. Despite the

official ban on sale and purchase of non-licensed weapons, unauthorized arms and ammunition

remain in circulation and the illegal arms trade and gunrunning continue. In 2002, the Peshawar

police reportedly seized 3,390 weapons, which included Kalashnikovs, rifles, shotguns, stenguns,

pistols, cartridges, and rocket launchers. Baluchistan and North West Frontier provinces have

been leading in gun ownership17. The tribal town of Darra Adamkhel near Peshawar, bordering

Afghanistan, is considered the biggest manufacturer and supplier of low-cost arms in the area.

Darra arms dealers and manufacturers are reputed worldwide for their fine imitations of vintage

weapons including pistols and rifles. Interestingly, a US firm also placed Rs120 million order for

24,000 guns with these arm manufacturers18. The two-century-old gun-manufacturing market in

Darra Adamkhel still has around 900 small and big factories, all of them illegal, with some 150

arms and ammunition shops.

45. This Rag must appreciate that in every violent crime there is a firearm used and in many

cases it results in fatal injuries. What possible facilitation processes have occurred which has

16 Dawn, January 14, 2003.17 Dawn, January 14, 2003.18 Dawn, January 14, 2003.


20

made these weapons so freely available. Is it possible to combat this issue? The Rag must look at

the other side of the picture where these weapons are produced and study it in-depth.



Rag 2 CCPO KARACHI’s WORKING GROUP ON FORMULATING A

STRATEGY TO STEM THE RISING TREND OF KIDNAPPING FOR

RANSOM IN KARACHI:

46. The number of cases related to kidnapping for ransom in Pakistan's biggest metropolitan

city, Karachi, has risen to over 100 this year, an all-time high since the past 20 years19. The

police records and data compiled by the Citizen Police Liaison Committee (CPLC), reports that

'103 cases of kidnapping for ransom were reported in Karachi since January 2010 and only 18 of

these could be tracked down. The month-wise breakdown of the reported cases in 2010 reads 14

kidnappings in January, four in February, seven in March, nine in April, seven in May, 14 in

June, 10 in July, 16 in August, 10 in September and 12 cases in October,' the report says adding

that 'the trend shows an upsurge with each passing month.

47. The total number of cases of kidnapping for ransom reported during the last 20 years has

reached 763, of which around 390 or 52 percent have been solved by the authorities. A total of

209 gangs involved in kidnappings have been busted, including 18 in 2010. However, more than

354 cases (48 percent) still remain unsolved.

48. This rag is required to carry out a detailed analysis of the trend of kidnapping for ransom

in the city in retrospective. Shifts in the pattern must be highlighted and explained. The rag

should also look into the possible causes for a sudden rise in this crime. What could be done or

what were the best practices forgotten in this specific crime.



Rag 3 IGP PUNJAB’s WORKING GROUP ON MAKING PROPOSAL FOR

REFORMING MADARIS IN PUNJAB:

19 Express Tribune, November 4, 2010.


21

49. More than five years after last government declared its intention to crack down on violent

sectarian and jihadi groups and to regulate the network of madrasas (religious schools) on which

they depend, the government’s reform program is in shambles. Banned sectarian and jihadi

groups, supported by networks of mosques and madrasas, continue to operate openly in

Pakistan’s largest province Punjab and elsewhere.

50. The recent acts of violent terrorism in Punjab are the direct result of the involvement of

Madaris in Punjab20. The government has yet to take any of the overdue and necessary steps to

control religious extremism in Punjab and the rest of the country. The government’s periodic

declarations of tough action, given in response to international events and pressure, are

invariably followed by retreat. As a result, madrasas remain either unregistered or registered

under laws that have no effective implementation. The sectarian, jihadi content of the madrasa

curriculum is untouched, and there is no meaningful control over money flows into and through

madrasas and other religious institutions. The absence of a single agency, under parliamentary

control and with the requisite authority to regulate the madrasa sector, has empowered opponents

of reform. Powers are scattered among multiple ministries and levels of government. Attempts to

“mainstream” madrasa curricula through introduction of a range of non-religious classes have

also proved futile, with most madrasas refusing to cooperate with very modest government

reforms. In any case, the introduction of secular courses would only be of slight value unless

there were also deep changes in the religious curriculum to end the promotion of violent

sectarianism and jihad.

51. The rag is required to comment on the quality of data available with the operational

machinery. Any gaps in the data should be analysed and it is required to formulate a strategy on

how to standardize the data. The subject matter is very wide but what could be the law & order

dimension to otherwise an educational institution. What was the government’s rationale in

bringing various laws for this purpose. Coordination amongst the government also needs to be

explored.

While working out your solutions, you are required to strictly adhere to the general

requirements in paragraphs 28-32.

20 International Crisis Group www.icg.org.


22

Rag 4 CHIEF SECRETARY PUNJAB’s WORKING GROUP ON

FORMULATING A STRATEGY TO COMBAT BONDED LABOUR IN

PUNJAB:

52. Combined pressure from local trade unions, the judiciary and the ILO laid the foundation

for the first bonded labour laws in Pakistan. Throughout the 1980s, in one of the few instances in

which trade unions have acted on behalf of bonded labourers, Pakistani trade unions supported

the bonded labourers’ liberation movements, primarily by bringing cases to the Supreme Court.

In 1989, the Supreme Court recognised the existence of bonded labour in Pakistan for the first

time21.It declared loan advances illegal and directed the government to define forced labour. A

Bonded Labour System (Abolition) Act was adopted in 1992.

53. According to research published by PILER in 2000, there were over 2.8 million bonded

labourers in Pakistan in brick kilns and sharecropping alone22. Yet, between 1989 and 2006, a

mere 8,530 bonded labourers were released. Of these, only 563 were released directly by the

government, 722 were released as a result of by joint action between the judiciary and NGOs,

and the rest through individual escapes and NGO collaboration with bonded labourers23.

54. These startling figures clearly demonstrate the inadequacy of the Government of

Pakistan’s response to bonded labour. There has been a widespread failure to identify bonded

labourers; only a minority of bonded labourers has been released; rehabilitation attempts have

been deeply flawed; government efforts have been undermined by corruption; and few

employers of bonded labourers have been brought to justice. Land reform which could have

addressed some of the root causes has been woefully inadequate. To date, the identification and

release of bonded labourers has largely only been as a result of petitions made by individuals or

small groups of bonded labourers with the support of NGOs and/or other civil society

organisations. Government identification and release programmes have been almost wholly

ineffective. While courts in Punjab have fined brick-kiln employers, few employers of bonded

labourers are known to have been brought to justice. In one case, which received considerable

attention both within and outside Pakistan, a powerful landlord, Abdul Rehaman Mari, was

detained on 26 July 2006; he was prosecuted and jailed for the abduction of family members of 21 Pakistan Supreme Court Gazette, 1989, Islamabad. Petition 01/1988 quoted in Pakistan Institute of Labour

Education Research (PILER), Analysis of effectiveness of interventions for the release and rehabilitation of bonded labourers in Pakistan, Karachi, 2007.

22 PILER, Bonded labour in Pakistan, Pakistan, 200023 PILER, Pakistan Consolidated Report, 2009.


23

an escaped bonded labourer, Manu Bheel. The effectiveness of state interventions are reportedly

undermined in part due to personal connections between officials and employers and landlords;

many bureaucrats come from industrial or landlord families and directly benefit from the system

of bondage24.

55. The rag is required to study the legal framework for invoking the action to identify,

recognize and free a bonded labour. What could be the security concerns of the LEAs in this

area? What has been the response of all the stakeholders in this specific area.



Rag 5 IGP BALUCHISTAN’s TASK GROUP ON IDENTIFYING THE

REASONS FOR DISMAL PERFORMNCE OF FORENSIC CAPABILITY

OF BALUCHISTAN POLICE:

56. It’s now established fact that for any modern Police Force the investigation has to be

evidence based. However for this heavy reliance is placed on a forensic laboratory having a

liaison with hospitals, university laboratories and even independent research association.

Investigations in Pakistan is based more on testimony than on evidence and this is one of the

reason that the cases when put on trial have a difficult time in convincing the judge to decide in

the prosecution’s favour. It must be appreciated that the crime pattern has also changed over time

like suicide bombings and kidnapping for ransom which need technology and forensic

machination to get solved. The police officer across the board has also resorted to an easy way

out by simply turning off the forensic capacity they had.

57. It’s a matter for further research that how many investigators are capable to even lifting a

finger print. The forensic science is now a specialized science which has become important

bedrock for the police detectives25. There are so many techniques now on the field like finger

print, DNA sampling and chemicals snuffed out of clothes26. The crime scene is an important

battle field for a forensic expert who may take up hours or even weeks27.

24 PILER, Analysis of effectiveness of interventions for the release and rehabilitation of bonded labourers in Pakistan, Karachi,2007

25 International Associations of Chiefs of Police, www.iacp.org, 2009.26 The recent incarceration of a Pakistani Male in Chile has been due to the fact his clothes showed that he had been

exposed to chemicals used for bomb making.27 Very recently some police officers have been implicated in washing away the crime of Benazir Bhutto,

assassination. UN 2010.

http://www.iacp.org/


24

58. The rag should highlight the importance of this aspect through facts and figures. The rag

must also discuss the existing capacity of the police and what are the underlying reasons of this

neglected area. What could be done to enhance the capacity of the investigators? The rag must

also highlight steps taken by the government in this regard28. There have been another initiative

on finger print collection29 what is its fate and why.



Rag 6 GOVERNOR STATE BANK’s WORKING GROUP ON ENHACING THE

CAPACITY OF THE INVESTIGATORS FOR CONDUCTING

INVESTIGATION ON MONEY LAUNDERING:

59. The government has passed the Anti Money Laundering Bill 2009 and it’s an

improvement on the earlier law of AML 200730. It’s in continuation of the acceptance of

International Obligations31. This law aims at addressing the issue of white collar crime and terror

financing in general. The primary responsibility of monitoring, investigation and prosecution

rests with the State Bank and FIA. The issue of money laundering came onto the forefront with

Operation Zarco32. There was a crackdown on various money exchange houses with arrests. It

was believed that over 1 billion US Dollars had left the country.

60. Another important fact which was also highlighted was the existence of the informal

“hawala system” through this huge amounts of money can be moved by passing the legal routes.

The US FBI has labeled this system as the scourge on the normal banking system and major

28 With this idea in mind, National Forensic Science Agency (NFSA): The government project for the National Forensic Science Agency was initially approved at a cost of Rs. 1292.45 million. Headquarters and the DNA laboratory of the Agency have been established at Islamabad since 31 March 2006 and work for setting up a Forensic Training Institute is in progress. Chinese experts have trained two Pakistani scientists as part of the assistance programme.158 The NFSA project is aimed at improving the quality of police investigation techniques and the capacity of law enforcement agencies to have an evidence-based prosecution. However, the project was put in the “discontinued category” in 2009 due to diversion of funds.

29 Interestingly Indian Police before partition had been the pioneers in this field. The science was developed at Fort William College, Calcutta.

30 The Nation, January 28, 2010.31 United Nation Security Council Resolution 1617, passed under Chapter VII of the UN Charter and therefore

binding on all member countries, 'Strongly urges all Member States to implement the comprehensive, international standards embodied in the FATF Forty Recommendations on Money Laundering and the FATF Nine Special Recommendations on Terrorist Financing'.

32 Case Fir No 09/2009 Dated 21-02-2009 U/S 4/5/8(1) FERACT 1947, 420/468/471/109/409 PPC 7/8/9 PECO 2007 RW"5(2)47 PCA of FIA.


25

financier for terrorism world over. The complexity of the international finance system would

always keep the investigators on the edge and laws need to be periodically updated.

61. The rag is required to undertake a critical appraisal of the enforcement mechanism of the

anti money laundering regime in Pakistan. It should also discuss the core issue of money

laundering and its ill effects on the health of the national economy. The rag should also discuss

the terrorism issue and the informal system of finance. The rag must also discuss the drug money

and should come up with operational difficulties and present their solutions. The rag should then

discuss the operational capacity of the enforcers and comment on the investigative abilities of the

detectives. It should also highlight the coordination issue with banks.



Rag 7 DG FIA’s WORKING GROUP TO ASSESS THE PERFORMANCE OF

THE CYBER CRIME UNIT:

62. From their modest beginnings some 20 years ago33, computer networks have become a

critical element of modern society. These networks not only have global reach but they also have

impact on virtually every aspect of human endeavor. Networked systems are principal enabling

agents in business, industry, government, and defense. Major economic sectors, including

defense, energy, transportation, telecommunications, manufacturing, financial services, health

care, and education, all depend on a vast array of networks operating on local, national, and

global scales.

63. Internet has changed the very perceptions of mankind. Internet today represents and

embodies the single most important development in the history of civilization. On-line culture

has become an integral part of modern existence. The first recorded cyber crime took place in the

year 182034. In 1820, Joseph-Marie Jacquard, a textile manufacturer in France, produced the

loom. This device allowed the repetition of a series of steps in the weaving of special fabrics.

This resulted in a fear amongst Jacquard's employees that their traditional employment and

livelihood were being threatened. They committed acts of sabotage to discourage Jacquard from

further use of the new technology. This is the first recorded cyber crime35. Cyber crime is an evil

33 CERT® Coordination Center Software Engineering Institute Carnegie Mellon University Pittsburgh, PA 15213- 3890.

34 Asian School of Cyber Laws http://www.asianlaws.org/cyberlaw/library.htm.35 Asian School of Cyber Laws Owned Resource.

http://www.asianlaws.org/cyberlaw/library.htm


26

having its origin in the growing dependence on computers in modern life. In a day and age when

everything from microwave ovens and refrigerators to nuclear power plants are being run on

computers, cyber crime has assumed rather sinister implications.

64. The Pakistani market has now grown manifolds with the largest majority of internet users

in Karachi and then Lahore and Islamabad. These three cities jointly provide over 90% of the

customer base and expansion in activity is also likely to remain primarily confined to these cities

because of the concentration of economic activity in these cities36. It is no surprise that Pakistan

is not free from the cyber space dilemma. The availability of computers and Internet connections

provides unprecedented opportunities to communicate and learn in Pakistan. However, certain

individuals do exploit the power of the Internet for criminal purposes as well.

65. The rag should start by discussing the various forms of cyber activities and why some

activities are called as crime. What are the core issues which makes cyber crime not only

immoral but dangerous. The rag must also comment on the dangers faced by innocent users of

internet. The rag must also touch upon the technological aspects of cyber crime like internet and

mobile phones. What are the implications for a country like Pakistan. The rag is required to study

the legal mechanism and discuss its operational viability. The rag should also comment on the

capacity of LEAs in this regards.



Rag 8 ADDITIONAL IGP INVESTIGATION’s FOCAL GROUP ON

ANALYSING AND PROPOSING STEPS FOR COMMUNITY POLICING

IN FAISALABAD & GUJRANWALA DIVISION:

66. Any effective police reform effort must focus on reducing the trust deficit between the

force and the public by adopting community policing procedures and techniques. With a

democratically-elected government now in place, the police force should be encouraged to

respect fundamental freedoms while enforcing the law. It should also be encouraged to make

communities equal partners in the fight against terrorism and crime. Community policing

consists of two complementary core components: partnership and problem solving. To develop

community partnership, the police must build positive relations with the community, involve the

36 20 Internet Service Providers Association of Pakistan (ISPAK) Internet Service Providers Association of Pakistan (ISPAK)


27

community in the quest for better crime control and prevention and pool their resources with

those of the community to address the community’s most urgent concerns37.

67. Problem solving is the process through which the specific concerns of communities are

identified and the most appropriate remedies devised. Community policing does not undermine

police authority or subordinate its primary duty to preserve law and order. Rather, it allows the

police to tap into the expertise and resources of communities, thereby reducing some of their

own load. Local government officials, social agencies, student unions, labour unions, business

and trading interests, in short, all who live in the community and have a direct stake in its

development and progress, can share responsibility with police to find solutions to the problems

that threaten safety and security. Under the Police Order 2002, the government was authorised to

establish Citizen Police Liaison Committees (CPLCs) as voluntary, self-financing and

autonomous bodies to develop, among other objectives, “a mechanism for liaison between

aggrieved citizens and the police for providing relief”38. The committees could have fostered

greater trust had they been given adequate funding, autonomy and importance, but they were not.

68. The rag should start with the analysis of half hearted attempts of creating community

policing models established in Punjab and analyse their dismal performance39. The rag should

analyse why the public participation was not there and what possible motivational factors were

missing at the operational levels. The rag must also analyse the issue of ownership of community

policing. The rag must also analyse and comment the membership and objectives of these

models. The issue of financing should also be discussed by the rag. What possible steps could be

taken at the operational levels to keep this arrangement apolitical; also needs a mention from the

rag.


in paragraphs28-32

37 “Understanding Community Policing: A Framework for Action”, U.S. justice department, NCJ 148457, August 1994

38 Police Order 2002, Article 168 (2).39 There was a half hearted attempt to establish CPLCs in major cities like Lahore and Faisalabad, but they have

hardly any authority and have consequently achieved nothing of significance thus far.


28

Rag 9 FEDERAL SECRETARY NARCOTICS’s WORKING GROUP ON

PROPOSING EFFECTIVE OPERATIONAL AND COORDINATION

MECHANISM FOR ANTI NARCOTICS DRIVE IN PAKISTAN:

69. Pakistan’s cultivation of opium poppy largely declined during the 1990’s to near zero

levels in 1999 and 200040. The commitment of the Government of Pakistan (GOP) to measures

for eliminating opium poppy cultivation, together with alternative development projects funded

by the international community, led to a decrease in poppy cultivation from approximately 9,441

hectares in 1992 to some 213 ha. in 2001. However, there was a reemergence of poppy

cultivation, probably as a result of high opium prices following the Taliban’s prohibition of

poppy cultivation in Afghanistan in 2001. In 2003 poppy cultivation was reported at 6,703

hectares including for the first time cultivation in the Baluchistan Province. The total area

cultivated declined to 2,306 hectares by May 2007 as a result of concerted eradication efforts.

Control over cannabis production and its eradication and seizure has a lower priority within drug

control authorities and hence information on this is limited. However, it is accepted that cannabis

is widely grown, freely available and consumed at relatively low prices.

70. Pakistan is one of the primary transit countries for drugs from Afghanistan and hence

knowledge of new routes and evolving methods of drug trafficking is essential for successful

interdiction. In 2007, law enforcement agencies seized 13,736 kg of heroin/morphine base,

101,069 kg of cannabis and 15,362 kg of opium (down from the 2006 seizures of 35,478 kg of

heroin heroin/morphine base and 115,443 kg of cannabis and up from the 2006 opium seizures of

8,907 kg)41. Intelligence on groups involved in drug trafficking and their links to other crime

groups is also key to controlling drug trafficking. Several changes in the Pakistan penal code

have had positive implications for the prosecution of drug related cases. ANF’s conviction rate

has improved over the last few years and stood at 8 percent in 2006. The joint Government of

Pakistan / UNODC Report ‘Problem Drug Use in Pakistan: Results from the 2006 National

Assessment’, states that the number of opiate users has reached a plateau.

71. The 2006 Assessment Report identifies an emerging shift from traditional plant based

drugs to synthetic drugs commonly termed ‘Amphetamine Type Stimulants (ATS)’. Abuse of

this new wave of drugs is not yet widespread and is largely restricted to young people from more

40 The Anti Narcotics Force Yearly Digest 2004-05,41 The Anti Narcotic Force Annual Reports.


29

prosperous families. However, easy availability and falling prices could result in usage spilling

over to the general population in the future. The report has also indicated an increasing use of

benzodiazepines which underscores the importance of a prescription system with appropriate

checks and balances. Furthermore, there is evidence of a trend of injecting benzodiazepines.

These recent developments in the abuse of synthetic drugs make the necessity of controlling their

production and trafficking an immediate challenge for Pakistan.

72. The rag must analyse the multilayered anti narcotics regime in Pakistan. It should identify

the weak areas in their operational capability. The rag must also identify the problem of

coordination between various agencies and LEAs. The rag should then identify the trends

prevalent in the narcotic industry in Pakistan42. How is possible that these chemicals are being

imported in the country and then being used to manufacture these drugs. The rag should also

touch upon the new policy of the government43.



Rag 10 IGP KP’s FOCAL GROUP TO ASSESS AND EVALUATE THE IMPACT

OF WAR ON TERROR ON THE LAW & ORDER SITUATION OF

PESHAWAR DIVISION:

73. Peshawar has long been strategically important place due to its proximity with Khyber

Pass and Afghanistan. Its population was 2,982,816 in 1998 with a growth rate of 3.92% pa. The

area originally belonged to Gandhara and Scythian Tribes which later on became part of greater

Kushan Empire. It is now officially recognized as one of the oldest living cities of Asia.

74. In the backdrop of Afghan war and refugee situation for the last 30 years, the security

situation in the division has deteriorated considerably. This has resulted in rearranging the social

and political dynamics of the province as well as the country. The latest wave of suicide attacks

on key targets, attacks on NATO convoys, target killings and kidnapping for ransom has also

increased pressure on the security situation of the division. Even in this bleak situation there has

been some success and failures.

75. The rag is required to carry out a strategic appraisal of the law & order situation in

Peshawar Division. The rag must highlight the internal strengths and weaknesses experienced by

42 Recently cocaine has also been detected to be used in Pakistan especially in high society.43 Anti Narcotic Policy 2010.


30

the personnel of LEAs in this division. The rag should critically examine the resource base of the

LEAs and match it with the requirements to face the critical security situations. It must highlight

lessons learnt and what good are they in counter insurgency. The rag must also highlight the

weaknesses at the operational level which has resulted in collateral damage and loss of

personnel.



MISCELLANEOUS INSTRUCTIONS

Submission of Written Reports:

76. The written submission will be in the proper form of a research paper as outlined for an

Individual Research Paper (IRP). The deadline for the written submission by the Syndicates and

RAGs is 11th December 2010 1400 hr. Eleven (11) copies of each written submission should be

delivered to the Sponsor DS. In addition, Twelve (12) copies of each presentation should be

prepared as Handouts (Black and White), with four slides per page and submitted to the DS T&C

on 12th December 2010 at 1100 hours.

Text:

77. Text and notes should be between 18-20 typed pages

(Font: Times New Roman—size 12, line spacing 1.5)

Time for Presentations:

Syndicates RAGs

Presentation time - 40 minutes 35 minutes

Q&A - 30 minutes 25 minutes

Schedule and Venue of Presentations:

78. Schedule of presentations of Syndicates and RAGs will be communicated separately. The

venue shall be NIM Hall. All participants will attend all sessions. Presentations by the Syndicates

and RAGs will be followed by question-answer session by the Faculty/Review Panelists.

Security and Safe Custody of Exercise Documents:

79. The leaders of Syndicates and RAGs will be responsible for the safe custody and security

of all documents issued in connection with the exercise. No Exercise paper will be taken out of

the premises. All papers, when not in use, will be kept under lock and key. Photocopying of

exercise papers is not allowed without permission of Sponsor DS.


31

EXERCISE DEBRIEF

80. After the conclusion of the exercise, there will be an Exercise Debrief Session.

Chairpersons of Syndicates and Leaders of RAGs will provide inputs on their respective groups

to help the faculty in their efforts in the future development of the exercise. Exercise Debrief is

an after-action review (AAR) which will discuss from various perspectives the following:

i. What happened, what was successful, what went wrong, and why?

ii. What important management related lessons were learnt?

iii. What important methodology related lessons were learnt?

iv. How did the Review Panelist input help you in refining your approach, and enhancing

your knowledge?

v. Were the aims and objectives of the Exercise achieved?

vi. Comments regarding support services, including typing, reproduction, mess, etc.

vii. Any suggestions?

Time Allocated for Debrief

81. Five minutes for each Syndicate Chairperson and 4 minutes for each RAG leader.


32

SUGGESTED READINGS

REFORMING PAKISTAN’S POLICE Asia Report N°157 – 14 July 2008 International Crisis Group.

Political Dimensions of Police Reform in Pakistan Frédéric Grare July 14, 2010. PAKISTAN RULE OF LAW ASSESSMENT – FINAL REPORT USAID 2008. Police Reforms: New Legal Framework and Issues in Implementation Results of Public

Consultations. Consumer Rights Commission of Pakistan, Islamabad, Pakistan www.crcp.org.pk in collaboration with ADB Asian Development Bank

FEUDAL FORCES: REFORM DELAYED Moving from Force to Service in South Asian Policing Researched and Written by Sanjay Patil Commonwealth Human Rights Initiative 2008.

REFORMING PAKISTAN POLICE: AN OVERVIEW Muhammad Shoaib Suddle. THE STATE OF SECTARIANISM IN PAKISTAN Asia Report Nº9518 Apr 2005

International Crisis Group. Pakistan: The Militant Jihadi Challenge Asia Report N°164 International Crisis Group13

Mar 2009. Pakistan: Karachi’s Madrasas and Violent Extremism Asia Report N°13164 International

Crisis Group Mar 2007. Pakistan Security Report 2008 Pak Institute of Peace Studies. CORRUPTION AND ITS DEEP IMPACT ON GOOD GOVERNANCE IN PAKISTAN

Umbreen Javaid, Pakistan Economic and Social Review Volume 48, No. 1 (Summer 2010), pp. 123-134.

Government of Pakistan Law, Justice and Human Rights Division Access to Justice Program Management Unit Police Reforms in Pakistan: Opportunities for Citizens A Training Module 2006.

NBR Special Report 20, December 2009 Narco-Jihad: Drug Trafficking and Security in Afghanistan and Pakistan.

GOVERNMENT OF PAKISTAN MINISTRY OF INTERIOR: COMBATING HUMAN TRAFFICKING 2010.

CYBER LAWS IN PAKISTAN; A SITUATIONAL ANALYSIS AND WAY FORWARD, Zibber Mohiuddin June 24, 2006.

Narcotics and Pakistan March 2010 www.pildat.org. Contextualising Corruption in Pakistan*By Asad Sayeed Social Science and Policy

Bulletin, Volume 2, No. 1 Summer 2010. Bonded labour in agriculture: A rapid assessment in Sindh and Baluchistan, Pakistan by

Maliha H. Hussein, Abdul Razzaq Saleemi, Saira Malik, Shazreh Hussain. International Labour Office Geneva March 2004.

Unfree labour in Pakistan: Work, debt and bondage in brick kilns Pakistan. Institute of Labour Education & Research International Labour Office Geneva March 2004.

The Suggested Reading materials are available on the LAN. For technical assistance please contact the IT Personnel.

http://www.pildat.org/

http://www.crcp.org.pk/