study for reforms in bureucracy

8/3/2019 Study for Reforms in Bureucracy

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STUDIES FOR REFORMS

IN THE BUREAUCRACY

MIAN KHUDA BAKHSHMIAN KHUDA BAKHSH(Rtd) ACS Punjab And Member(Rtd) ACS Punjab And Member

Punjab Public Service CommissionPunjab Public Service Commission


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Since after independence, reformatory studies haveSince after independence, reformatory studies havecontinued to be made, briefly stated as under:continued to be made, briefly stated as under:--

i.i. In 1953,In 1953, Prof. Rowland EggerProf. Rowland Eggerof USA made a report.of USA made a report.

ii.ii. In 1955,In 1955, Mr.Barnard GladieuxMr.Barnard Gladieux, also from USA as a, also from USA as aConsultant on Public Administration, made a report.Consultant on Public Administration, made a report.

iii.iii. In 1962, Pay and Services Commission, headed by Mr.In 1962, Pay and Services Commission, headed by Mr.Justice A.R. Cornelius submitted its report.Justice A.R. Cornelius submitted its report.

iv.iv. In 1969, a mixed working group of CSP and non CSPIn 1969, a mixed working group of CSP and non CSPofficers studied theofficers studied the Fulton Committee ReportFulton Committee Reportpublished in UK. In that report the Fulton Committee hadpublished in UK. In that report the Fulton Committee had

not recommended the kind of civil service for UK as thenot recommended the kind of civil service for UK as theBritish rulers had introduced in the Indian subBritish rulers had introduced in the Indian sub--continent.continent.The reportThe report had, therefore, become of vital interesthad, therefore, become of vital interestfor Pakistan.for Pakistan.


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Observations andObservations and

similaritiessimilaritiesThe observations of identical & similar natureThe observations of identical & similar naturemade in these reports could be briefly statedmade in these reports could be briefly statedas under:as under:--

A.A. a)Superiority of the generalists (in terms ofa)Superiority of the generalists (in terms oftheir fasttheir fast--track promotions against the federaltrack promotions against the federaland provincial as well asand provincial as well as autaut. bodies and other. bodies and otherexex--cadre listed or uncadre listed or un--listed posts and theirlisted posts and theirdominance over the provincial services anddominance over the provincial services andthethe other technical/professionalother technical/professional functionaries)functionaries)was criticized. The services structure was toowas criticized. The services structure was toosubservient to mere academic notions ofsubservient to mere academic notions ofintelligence and ability with little care forintelligence and ability with little care forother factors.other factors.


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B.B. Recruitment standards were archaic.Recruitment standards were archaic.

C.C. System bound into cadres and servicesSystem bound into cadres and servicesfortifications; Officers tend to befortifications; Officers tend to beobsessed with service membership,obsessed with service membership,title, class and rank and too littletitle, class and rank and too little

concerned with particular jobconcerned with particular jobresponsibilities. An officer ought to haveresponsibilities. An officer ought to havesome pride of service and even pride ofsome pride of service and even pride ofplace, but he ought to be even moreplace, but he ought to be even more

proud of the work in which he isproud of the work in which he iscooperating and the Government whichcooperating and the Government whichhe is serving.he is serving.


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D.D. In the generalists, one particular serviceIn the generalists, one particular servicegroup (i.e. the CSP) were ruling over allgroup (i.e. the CSP) were ruling over all

others and would occupy higher posts inothers and would occupy higher posts in

the Secretariat, (Federal and Provincial);the Secretariat, (Federal and Provincial);

outside the Secretariats, in the Provinces,outside the Secretariats, in the Provinces,Civil Divisions, Districts, subCivil Divisions, Districts, sub--districts anddistricts and

exex--cadre posts also.cadre posts also.

E.E. Promotions for the members of thePromotions for the members of the

technical, specialists, and Professionaltechnical, specialists, and Professionalservice groups were very slow, tardy andservice groups were very slow, tardy and

chances of their exchances of their ex--cadre postings werecadre postings were

also very poor.also very poor.


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RECOMMENDATIONS MADE IN

THESE STUDIES

a)a) Unification of entire group of employees into aUnification of entire group of employees into asingle civil service of Pakistan with internalsingle civil service of Pakistan with internalgroupings solely for administrativegroupings solely for administrativeconvenience.convenience.

b)b) Standardized Pay Scales based onStandardized Pay Scales based oncomprehensive job analysis. ssscomprehensive job analysis. sss

c)c) InIn thethe FirstFirst FiveFive Year Year Plan(Plan(19551955--6060),the),thedominancedominance ofof thethe generalistsgeneralists cadrecadre ofof civilcivil

serviceservice overover thethe otherother cadrescadres waswas resentedresented andanditit waswas recommendedrecommended thatthat nonnon--technicaltechnical centralcentralsuperiorsuperior servicesservices shouldshould bebe combinedcombined intointo aasinglesingle civilcivil serviceservice thethe (then)(then) existingexisting servicesservicesshouldshould bebe convertedconverted intointo branchesbranches ofof thisthis

combinedcombined civilcivil serviceservice..


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d)d) About the role of a CSP officer as DeputyAbout the role of a CSP officer as DeputyCommissioner or Commissioner, it wasCommissioner or Commissioner, it wasobserved to be more of a Coordinator. Theobserved to be more of a Coordinator. Theposition of Coordinator at district level andposition of Coordinator at district level anddivisional level should be laid open todivisional level should be laid open to

members of all superior services, to bemembers of all superior services, to beachieved purely by selection, proof of talentachieved purely by selection, proof of talentshown and of possession of managerialshown and of possession of managerialcapacities which have been or can becapacities which have been or can beimproved by courses of training.improved by courses of training.

e)e) Various functions of special nature whichVarious functions of special nature whichare at present concentrated in the person orare at present concentrated in the person orposts of the Deputy Commissioner may beposts of the Deputy Commissioner may beseparated and placed under their ownseparated and placed under their owndistrict heads.district heads.


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f)f) This working group which made a criticalThis working group which made a critical

study of the Fulton Report recommendedstudy of the Fulton Report recommendedthat the existing classthat the existing class--I services of theI services of the

central govt. and other identifiable groups ofcentral govt. and other identifiable groups of

classclass--I officers should become branches ofI officers should become branches of

a combined service to be known as thea combined service to be known as thecentral public service; all branches shouldcentral public service; all branches should

have uniform status and grades of pay,have uniform status and grades of pay,

though they should retain their identity asthough they should retain their identity as

separate occupational groups. The presentseparate occupational groups. The presentuse of labels at the end of the namesuse of labels at the end of the names

should be discarded.should be discarded.


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g)g) On the same lines, at the provincial level, all existingOn the same lines, at the provincial level, all existing

classclass--I services and identifiable groups shouldI services and identifiable groups shouldbecome branches of a combined provincial publicbecome branches of a combined provincial publicservice (for each province) which should have theservice (for each province) which should have thesame status as the Central Public Service and, in duesame status as the Central Public Service and, in duecourse, similar grade of pay.course, similar grade of pay.

h)h) The present CSP will continue as a branch but itsThe present CSP will continue as a branch but itsregular field should be specified as magisterialregular field should be specified as magisterialfunctions and land revenue collection and its ownfunctions and land revenue collection and its owncadre should include only the relevant posts in thecadre should include only the relevant posts in thedistricts, divisions and Provincial Board of Revenues.districts, divisions and Provincial Board of Revenues.

For exFor ex--cadre posts, they should be eligible on thecadre posts, they should be eligible on thesame and equal basis as officers of other branches.same and equal basis as officers of other branches.

i)i) The above majority view of the group was, how ever,The above majority view of the group was, how ever,not supported by some of its CSP members.not supported by some of its CSP members.


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ACTION ON THE RECOMMENDATIONS

InIn 19721972,, thethe GovernmentGovernment of of PakistanPakistanappointedappointed anan AdministrativeAdministrative ReformsReformsCommittee,Committee, paralleledparalleled byby similarsimilar CommitteesCommitteesinin thethe ProvincesProvinces toto studystudy allall previousprevious reportsreports

/ / recommendationsrecommendations andand comecome outout withwithconcreteconcrete proposalsproposals.. OnOn receiptreceipt ofof thethe finalfinalproposalsproposals andand afterafter duedue considerationconsideration byby thetheGovernment,Government, thethe PrimePrime MinisterMinister onon 2020thth

AugustAugust;; 19731973 announcedannounced thethe AdministrativeAdministrativeReformsReforms inin thethe civilcivil servicesservices.. TheThe mainmainfeaturesfeatures ofof thethe reformsreforms andand thethe statusstatus ofofactionaction takentaken couldcould bebe summarizedsummarized asas underunder::--


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A.A. All services and cadres merged intoAll services and cadres merged into

a unified graded structure with equala unified graded structure with equal

opportunities of upward movementopportunities of upward movement

to all entrants!to all entrants!

B.B. Occupational groups formed andOccupational groups formed and

service/recruitment rules on uniformservice/recruitment rules on uniform

pattern framed for each group.pattern framed for each group.

Selection for initial appointment atSelection for initial appointment at

BSBS--17 for these group centralized17 for these group centralized

and harmonized.and harmonized.


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C.C. Classes of Government Servants abolishedClasses of Government Servants abolished

and replaced by a unified graded structureand replaced by a unified graded structure

from BSfrom BS--1 to 22 and 22 plus.1 to 22 and 22 plus.

D.D. Use of service labels discontinued RulesUse of service labels discontinued Rules

made.made.E.E. Promotions assured and horizontalPromotions assured and horizontal

movements ( including movement of techmovements ( including movement of tech

personnel to the cadre of general managementpersonnel to the cadre of general management

carrying post of executive nature made easy).carrying post of executive nature made easy).F.F. Out of turn or accelerated promotion madeOut of turn or accelerated promotion made

possible for extraordinary performance.possible for extraordinary performance.


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G.G. Job description, jobJob description, job--evaluation, professionalismevaluation, professionalismand specialization to be the determinant factorsand specialization to be the determinant factorsfor gradation.for gradation.

H.H. Lateral entry from private sector such asLateral entry from private sector such as

insurance, banking, industry , trade and otherinsurance, banking, industry , trade and otherprofessions at appropriate levels in the Federalprofessions at appropriate levels in the Federaland Provincial services made possible.and Provincial services made possible.

I.I. Nearly 600 grades or scales of pay ofNearly 600 grades or scales of pay of

government servants reduced to 22 or 23.government servants reduced to 22 or 23.J.J. Nearly 15 occupational groups formed asNearly 15 occupational groups formed asbranches of the Unified Graded Structure.branches of the Unified Graded Structure.

K.K. Max. age limit fixed.Max. age limit fixed.


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L.L. Posts divided into selection and nonPosts divided into selection and non--selection in order to give greater recognition toselection in order to give greater recognition tomerit and due regard to seniority.merit and due regard to seniority.

M.M. Concepts of selection grades and movesConcepts of selection grades and moves

over retained or introduced. Concept ofover retained or introduced. Concept ofcrossing E.B.discontinued.crossing E.B.discontinued.

N.N. Common training programme introduced for allCommon training programme introduced for allthe occupational groups +group wisethe occupational groups +group wise

specializedspecialized trg. Rules made.trg. Rules made.O.O. Role of the FPSC & PSCs reRole of the FPSC & PSCs re--determined.determined.

Commissions reconstituted in accordance withCommissions reconstituted in accordance withthe Constitution of 1973.the Constitution of 1973.


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P.P. The CSP Composition and Cadre Rules 1954The CSP Composition and Cadre Rules 1954suitably amendedsuitably amended

Q.Q. E&D Rules Remade in the Center and in theE&D Rules Remade in the Center and in theProvinces.Provinces.

R.R. Above all, new laws titled as Civil ServantsAbove all, new laws titled as Civil ServantsActs made by the Federal Parliament andActs made by the Federal Parliament andProvincial Assemblies to meet theProvincial Assemblies to meet therequirement of Article 240 of the Constitution,requirement of Article 240 of the Constitution,1973.1973.

S.S. For any breach of the conditions of theFor any breach of the conditions of theservice and for matters ancilliary thereto, aservice and for matters ancilliary thereto, acivil servant made to take recourse to thecivil servant made to take recourse to theservice tribunals constituted in terms ofservice tribunals constituted in terms of

Article 212 of the Constitution in the CenterArticle 212 of the Constitution in the Center

and Provinces.and Provinces.


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T.T. Although the classification of posts intoAlthough the classification of posts into gazettedgazetted

and nonand non gazettedgazetted abolished, however, theabolished, however, thenecessity and practice of notifying allnecessity and practice of notifying allappointments etc to grade 16 and above in theappointments etc to grade 16 and above in theGovt. gazette of the Govt. concerned allowed toGovt. gazette of the Govt. concerned allowed to

be followed.be followed.U.U. Distinctions made in the terms of Grade, Scale ,Distinctions made in the terms of Grade, Scale ,

Post and Rank for the purposes of makingPost and Rank for the purposes of makinggazette notifications and determining pays andgazette notifications and determining pays and

allowances etc on appointments, promotion,allowances etc on appointments, promotion,movesmoves over and selection grads etc.over and selection grads etc.


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T.T. Although the classification of posts intoAlthough the classification of posts into gazettedgazetted

and nonand non gazettedgazetted abolished, however, theabolished, however, thenecessity and practice of notifying allnecessity and practice of notifying allappointments etc to grade 16 and above in theappointments etc to grade 16 and above in theGovt. gazette of the Govt. concerned allowed toGovt. gazette of the Govt. concerned allowed to

be followed.be followed.U.U. Distinctions made in the terms of Grade, Scale ,Distinctions made in the terms of Grade, Scale ,

Post and Rank for the purposes of makingPost and Rank for the purposes of makinggazette notifications and determining pays andgazette notifications and determining pays and

allowances etc on appointments, promotion,allowances etc on appointments, promotion,movesmoves over and selection grads etc.over and selection grads etc.

V.V. Opening ofOpening of DMG,CustumsDMG,Custums andand ForeginForegin ServiceServicecadres to women.cadres to women.

study for reforms in bureucracy

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