PUBLIC POLICY

Policy has been defined as a set of decision taken by a political leader or group
(commanding authority of implementation) concerning the selection of goals and the methods of
attaining them within a specified situation. Frequently-cited definition of policy is given by
political scientist Carl J. Fredrick who regards policy as a proposed course of action of a persons,
group, or government within a given environment providing obstacles and opportunities which
the policy was proposed to overcome and utilize in an effort to reach a goal or realize an
objective or a purpose.
1
On the other hand, the simplest definition of public policy is whatever
government chooses to do or not to do.
2
Public Policies are policies developed by governmental
bodies and officials. Non-governmental actors and factors may influence policy development but
they cannot formulate public policies. Policy is interpreted and implemented by public and
private actors.
Public policy, like a complex decision may be compared to a great river, drawing from its
many tributaries, the innumerable component parts of which it is constituted
3
. The success of a
policy may often hinge upon the administrative implications involved, and the capability of the
administrative machinery and personnel. Public policy involves a large number of persons and
institutions- ministers, public servants, parliamentarians, politicians, interest and pressure groups,
professionals and experts, foreign countries and their interests etc.The formulation and
implementation of public policy is the prime task of the executive branch of the state
(government).
4
The electoral system provides the citizens with representatives and they create an
executive to rule and make policy.
5
Notwithstanding the primary of the executive branch in
policy making, the significance of the legislative branch cannot be ignored in public policy.
PRINCIPLES OF PUBLIC POLICY IN PAKISTAN
The Principles of Policy contained in Chapter 2 of the Constitution of Pakistan 1973
might be regarded as the charter of the aspirations of the people and the State. These principles

1
Carl J. Fredrick, Man and His Government (New York: McGraw-Hill, 1963)
2
Thomas R. Dye, Understanding Public Policy, 7
th
Ed. (Englewood Cliffs, New Jersey: Prentice-Hall, 1992)
3
Hassan Habib, Public Policy- Formulation and Review ( Lahore WAJIDALIS, 1976),v, 3.
4
Mark turner and David Hulme, Governance, Administration and Development: Making the State Work (London:
Palgrave, 1997)
5
Mark Considine. Making Public Policy: Institutions, Actors and Strategies (Malden: Policy Press, 2005)
lay great emphasis on promotion of social justice and eradication of social evil, on the promotion
of the social and economic well-being of the people; on promoting international peace; on the
protection of family; on the full participation of women in national life; on the protection of
minorities. The Constitution requires an annual report on observance and implementation of the
Principles of Policy before the National and Provincial Assemblies. This provides opportunity
to elected representatives to contribute on public policy issues. It also can serve as accountability
mechanism for policy defects and poor implementation. These provisions have never been
followed for policy corrections and accountability. Despite various amendments in the
Constitution, it is primarily the prime minister and his/ her cabinet which is the helm of public
policy decision-making in Pakistan and not the president.Statutory framework for public policy
decision-making in Pakistan, as governed by the Rules of Business, 1973, provides that prime
minister is the ultimate authority to approve or amend any policy framework.
FACTORS INFLUENCING POLICY FORMULATION IN PAKISTAN
CONSTITUTION 1973 AND POLICY MAKING
The specific provisions have been made regarding the Principles of Policy in the
Constitution of Pakistan. Article 29 of Chapter-2 describes these Principles. It is the
responsibility of each organ and authority of the State, and of each person performing functions
on behalf of an organ or authority of the State, to act in accordance with those Principles in so far
as they relate to the functions of the organ or authority. In so far as the observance of any
particular Principle of Policy may be dependent upon resources being available for the purpose,
the Principles shall be regarded as being subject to the availability of resources. In respect of
each year, the President in relation to the affairs of the Federation, and the Governor of each
Province prepare and laid before the National Assembly or the Provincial Assembly, a report on
the observance and implementation of the Principles of Policy. A study conducted in 2004
reveals that only nine reports have so far been submitted to the National Assembly.
6
These
reports provide a significant opportunity to elected representatives to highlight debate and firm
up recommendations on a wide range of public policy issues in the country.
PARLIAMENT (MAJLIS-E-SHURA)

6
Nazeer Ahmad, Constitution and Peoples Rights in Pakistan. (Islamabad: The Network Publications, 2004)
Article 50 of Constitution, 1973 provides for formation of a Parliament, legislative
procedure (Art. 70), procedure for money bills (Art. 73), the financial procedure (Art. 78). It is
observed that due institutional framework has been provided to scrutinize and control
expenditure of the government through the Assembly but experience over the years shows that
the budget as presented by the Finance Minister before the Assembly is by and large approved as
there is hardly any contribution from the treasury or even the opposition benches to modify it.
Similarly, on the legislative issues, there is hardly any debate that is witnessed. If the proposal
suits majority of members, it is approved even if it is not in the national interest.
CABINET
Article 39 of the Constitution 1973, provides that there will be a Cabinet of Ministers,
headed by the Prime Ministers. It is a body at the highest level to take and approve decisions.
The bureaucracy formulates the proposals in the form of summaries reports etc. to be approved
by it. The budget is approved by the Cabinet before being placed before the Assembly. However,
quite a few policies, like the Trade Policy, Investment Policy, Industrial Policy and Agricultural
Policy are approved and the ratification of International Agreements/ Conventions are done by it.
As such important policy decision which may not have been debated in the Assembly or any
broad forum, and may even be, in deviation from the consensus in the Assembly and even the
general public demand, are approved or modified by the Cabinet and its various committees
through issuance of SROs and as such the spirit in which the Parliament had taken the decision is
seriously compromised.
POLITICAL PARTIES
Man is a political animal, so said Aristotle. Therefore in a society where man lives
there has got to be politics and political parties even if it is just one in a country, according to the
political system of that country. Political environment has also pointed out the existence of not
only the formal but also that of the informal political groups as well. The political environment
in our country resembles more with this model. Political parties in our country are not organized,
with the exception of few and in that sense not very formal institution. They are created on the
basis of following of some individuals, instead of being formed for some well-defined
objectives, cause or agenda. Notwithstanding all this, the fact remains that political parties and
political groups do exist in our society. They get into the government or become the voice of the
opposition, they have their views on the issues, and hence exert influence on the policy making
process in either capacity, when in power they (with the bureaucracy) are the formulators of
policies and in the opposition their critics.
BUREAUCRACY
If political leadership is the edifice, bureaucracy is the whole structure of the government,
from pillar to its roof. It is the institutional framework for conducting all the work of the
government. It is there to plan, organize, manage, execute, implement, and to advise the political
leadership in power, be it the civil or the military bureaucracy. In the international and national
context, the countrys bureaucracy is the premier institutional framework for its policy framing.
It has set rules, laid down principles and is well established institution for this purpose. The
Constitution provides for conducting business of the government according to the Rules of
Business, which allocates various functions of the government to the several Ministries,
Divisions, Departments etc, and requires that on an issue, any proposal should have to be duly
examined and concurrence/ views of the Ministry/ Department/ Authority having jurisdiction be
sought over it.
JUDICIARY: THE BENCH AND THE BAR
The judiciary can play a pivotal role by exerting its influence on the policy making and
especially its implementation, if it is made independently, and is neutral. Policy makers and its
implementers would always have the fear of having to face the court, should anything be found
to have been done by them in contravention of law. As such, role of the judiciary as watchdog
would be very effective. In Pakistan, the judiciary has been independent, as much as it has
wanted itself to be independent. Pendulum of its neutrality has swung on matters related to
military takeover to other issues. If need be, the judiciary brought into existence the doctrine of
necessity for the necessity of their existence. In contrast, the role of bar as the watchdog has been
more prominent, on national policy issues, although at times their activism is predominantly
politicized. Yet they have never hesitated to lodge protests to express their point of view through
resolution of their bodies, meetings, processions, and even agitating them in the court of law by
filing suites.
MEDIA
Media plays the most important role in communication between the different segments of
the society and the state, and for formation of the public opinion. Media can affect politics and
culture, support institutional change and market development. Open information flows can
promote institutional reform by affecting peoples incentives and by sharing ideas and
knowledge. Greater access to all media, including the foreign and the vernacular, can provide a
voice for social groups to press for changes in institutions and norms of behavior.
In Pakistan, media is spread over both the print and the electronic modes. Pakistan is a
smaller market, where a small portion of population reads newspapers. On the other hand,
production costs of press & publications are very high and the expenses can hardly be met out of
circulation. Print media, therefore, has to heavily depend upon advertisements which do not
come without due influence. In this situation, the question arises, as to what extent the print
media propagates the interests of the vested interests and to what extent that of the public, the
national interest. Nevertheless, there are newspapers, and especially the news magazines, which
have reflected public opinion objectively, have criticized government policies, when they are not
in national interest, exposed corruption, mal-practices, misuse of power, atrocities, conspiracies,
and mismanagements at the costs of suffering of various natures both from the government as
well as the effected persons/ groups etc. In these circumstances, the press has been able to
influence the policy framing and implementation, though not ideally, in its own little way
effectively, especially on crisis occasions and on core issues.
PUBLIC OPINION
Public, the major mass of the society for whom most of the policies are framed, are living
entities. It is, therefore, necessary that the policies are made for their benefit, and not to be
detriment of their large opinion, nor at their cost, to appease a section of elite. Their opinion,
therefore, is of prime importance in the policy formulation process, which should have their
acceptance for its acceptance. Their opinion is formed mostly from the information gathered
from the media i.e. print and electronic or in the case of media not being able to furnish such
information due to censor or some other reason, from other sources in the society. Mostly, it is
effective enough to get the policies modified according to its wish. The constant example of its
expression is the elections which in other word is the acceptance or rejection of the policies of
the contestants.
VESTED INTEREST GROUPS
Groups are after all formed with common interests. It is, therefore, natural that they strive
to protect and pursue that common interest. This interest could vary from self interest with
ulterior motives, on one hand, to the collective interest for the larger benefit of the society on the
other hand. These groups are as follow:-
i) THE TRADE BODIES
In Pakistan trade bodies are fairly well organized. Almost all manufacturing sectors have
their own Associations/ Unions. In every large industrial and commercial city, there is a chamber
of commerce and industry which in turn have formed the Federation of Pakistan Chambers of
Commerce and Industry. These trade bodies play an important participatory role in the policy
formulation process in the policies relating to their areas of interest. Government very often
involves them in the consultative process for formulation of trade policy and import and export
policies.
ii) THE NGOS
The NGOs are the voluntary organizations in the society rendering services in one or
more areas of societys welfare or common interests. In Pakistan, there are a large number of
such organizations in different walks of life and fields. They not only exert influence on policy
formulation but also render a very valuable support to the government in policy implementation
process, especially in the fields of health education, poverty alleviation, gender issues etc.
iii) SECTARIAN ORGANIZATIONS
On the other extreme are the sectarian organizations due to whose recent activities,
government has to devise, and modify its policies on law and order, and functioning of
madaris. This naturally would have affected the governments financial policy, subjecting it to
re-adjustment to absorb expenditure on such measures.
GEOGRAPHIC/ DEMOGRAPHY AND NATURAL RESOURCES
Status of the infrastructure in a country to a large extent influences the policy formulation
process of the country, through the availability and adequacy of these facilities, like road, rail,
sea and air transport services, port facilities, telecommunications, water, electricity and gas, and
their costs, as they play a very important role in the development process. These facilities have
great impact on the investment, industrial, and the agricultural policies. Geography has a very
basic impact on the policy framing as well as on its implementation. Geography provides
constants to a country and some variables. Having Port (s) provides opportunity of facilitating
trade, exploitation of exclusive economic zone, sea foods, off shore drilling etc. rivers, water
resources and land help to produce agricultural products- climate also depends largely on
geography and so do the rains weather etc. Demographic factors also play an important role in
policy framing and implementation. Programs like poverty alleviation, Health, education,
utilities, infrastructure development depend upon size of the population. Rate of growth of
population has direct bearing on commerce development/ GDP.
ETHNICAL ISSUES
Not only that the integrity as such sets in the reputation of the product produced in and
exported from a country, but also the trust and confidence in agreements reached and their
fulfillment, largely affects the dealing with other states/ multinational organizations. Government
accordingly has to make more rigid policies to ensure compliances of standard, honoring
agreements, maintenance and improvement of quality etc. Within the society in itself the ethical
values of the society have a strong bearing. This affects policies like production, export, and
trade of liquor, film literature, entertainment business, tourism policies etc.
LAW & ORDER
Law and order situation has a direct bearing on our investment, tourism, industrial and
trading activity. These policies, therefore, are directly affected by the law and order situation, but
not entirely dependent on it. Besides law and order, there are other factors such as the economic
factors, which predominantly effect the investment in the country. Law and order if deteriorating
has an adverse effect on investment but no proportion can be drawn in quantum of its effects on
investment.
EXTERNAL THREAT
In the shape of India, Pakistan has a neighborhood extremely hostile to it. Its borders
being insecure, Pakistan has to maintain an army proportionate to its threat. The situation affects
more than one aspect of Pakistans policies. On the fiscal front, Pakistan has to spend a huge
portion of its resources for defense purposes. Huge expenditure on defense affects the entire
economic system, its tariff requirements, and development programs etc. On the other front of
foreign policy, Pakistan has to make an extra effort to minimize the threat and resolve the issue
through diplomatic means. The conditions at the borders intensively affects our defense, fiscal,
foreign and trade policies.
INTERNATIONAL RELATIONS
Relations of a state with the rest of the world community play an extremely important
role in policy formulation. Pakistan is an active actor of the international community. It is a
member of the United Nations, Common Wealth, SAARC and the ECO. It has signed many
International Conventions, and Agreements etc. Its policies have, therefore, got to be framed in
light of these obligations.
THE GLOBAL ENVIRONMENT- THE IFIs
The continuous dependence on loans and funding from IMF, World Bank and other
lending agencies for development programmes under different government has badly affected
the policy formulation and implementation in Pakistan. These loans have never been coming
unattached but with the tags of the series of their conditional ties to seek and get formulated our
economic fiscal, trade, tariff and various other policies according to the donors desires. Even to
the extent that structural reforms ranging from tariff structures to service reforms, downsizing,
privatization and project designing, has been done to suit donors instructions. The core budget
proposals seek their concurrence. Pakistans dependence on foreign capital inflows to finance
investments, balance of payments deficit and budget deficits has made it vulnerable to the wishes
of the donors. Therefore, due to the interaction of the IFIs with the Pakistans policy formation
process, the public administration and the bureaucracy in Pakistan have also acquired a global
dimension whereby decision making is not an isolated action and compromises on the economic
sovereignty are to be made proportionate to the conditionalities of the donor agencies.

SECTION-2
ROLE OF STATE INSTITUTIONS IN PAKISTAN
In todays modern democratic State the important institutions are:
1. Legislature
2. Judiciary
3. Bureaucracy
4. Army
a) State Institutions in Pakistan
In a modern democratic state the cabinet form of government is practiced and it is the
cabinet that exercises the right to choose out of available policy proposals/ options prepared by
the bureaucracy.
In case of Pakistan, over the past 63 years the role of various state institutions can be
summarized as under:
1947-51 Periods of turmoil and turbulence, but major decisions regarding foreign policy,
economic development, fiscal arrangements, internal security, etc. were being
made by the bureaucrats.
1951-58 Democratic governments in name but the shots were called by the bureaucrats
while the military was supporting them as a junior partner.
1958-69 Bureaucratic rule
1969-71 Bureaucratic rule
Military - senior partner
Bureaucracy - junior partner
Feudal politicians supporting the system from the outside.
1971-77 Populist autocracy, military and bureaucracy playing second fiddle because of the
debacle in East Pakistan, but biding their time.
1977-85 Bureaucratic rule once again
Military - senior partner
Bureaucracy - junior partner
A motley crowd of religious leaders, discredited feudal politicians and
opportunistic professional groups supporting the system from the periphery.
1985-88 Repetition of 1951-58
1988-99 Feudal democracy with marked autocratic bias supported by a strong army and a
weak bureaucracy.
1999-08 Military rule, democratic government in name only, shots were called by the
military, weak bureaucracy.
2008-10 Democracy (weak), shots are called by the military, bureaucracy at its weakest
(politicized).
Judicial activism / constitutionalism coming to the fore.

b. STRENGTHS AND WEAKNESSES OF INSTITUTIONS
Institutions Strength Weaknesses
Legislature Custodian of the constitution Coalition governments
Representative body
Elected house
Parliamentary oversight
Law giving body
Outcome of person- centric
political parties
Feudal/ autocratic rule
Rubberstamp usage
Capacity issue
Bureaucracy Properly organized
Structured in form
Merit based
Neutral
Red-tapism
Corruption
Inefficiency
Politicization
Military Organized
Command driven
Loyal
Disciplined
Power hungry
Corporatized
Politicized
Arrogant
Judiciary Independent
Judicial oversight
Constitutional Interpreter
Subservient to Executive
Corruption
Politicized
Introvert


c. ROLE OF MILITARY AND BUREAUCRACY IN PAKISTAN
The roles of military and bureaucracy have been highlighted by Mr. Tasneem Ahmad
Siddiqui in his book Towards Good Governance as already discussed above. In modern
democracies, the governments role is minimal and a lean government is considered to be a good
government. The private sector, community groups and local councils take care of most of the
day to day problems of the people. But in Pakistan, governance is excessive and for very small
problems, the citizen has to go to the government offices. In the early days, the role of policy
making and its implementation was played by the bureaucrats while in 50s there were so called
democratic governments and the policy making and its implementation remained with the
bureaucracy. Military supported the setup as a junior partner. The same arrangement continued
in 60s & 70s with military increasing its role gradually at the cost of bureaucracy which was
consequently reduced to a junior partner.
In 70s populist autocracy led by Mr. Zulfiqar Ali Bhutto played the leading role and both
military and bureaucracy played the role of second fiddle. However, during Zia-ul-Haq days, the
old pattern of bureaucratic rule once again re-emerged where military played the role of senior
partner and bureaucracy became the junior partner. In 80s & 90s, the feudal democracy prevailed
which had the support of the strong army and a weak bureaucracy. In Musharraf days, the army
virtually controlled the country in all domains. Some kinds of sham democracies were brought in
for showcasing purposes but the real power remained with the army while bureaucracy was
further weakened.
d. POLITICIZATION OF BUREAUCRACY
Since its birth, Pakistan has been governed by its elites, mainly bureaucratic, military,
and political. The bureaucratic elite who had formed an important element in the power structure
since the very creation of Pakistan gradually became more assertive, frequently gaining their
steadily increasing power at the expense of the political elite. An important contributory factor in
this development was the fact that at an early stage in Pakistans history some erstwhile
bureaucrats were able to occupy the political positions of Governor General and Prime Minister.
They brought with them the traditions, outlook, and attitudes typical of the bureaucrats and their
sympathies were slanted more towards the bureaucracy than towards the political institutions.
The military coups of 1958, 1969, and 1977 further strengthened the power and prestige of civil
bureaucracy. It can be maintained that during the greater part of Pakistans history, higher
bureaucracy has ruled the country; in fact Pakistan can be described as a bureaucratic polity.
7

With the murder of Prime Minister Liaquat Ali Khan, a close associate of Quaid-e-Azam,
Ghulam Muhammad, assumed the position of Governor-General in 1951 and abrogated the
Constituent Assembly in 1954. Bureaucratic supremacy over political institutions was thus
publicly demonstrated. The militarys complete support and involvement was also symbolized by
General Ayubs presence in the so-called cabinet of talents under a non-elected prime minister,
Muhammad Ali Bogra from 1951 to 1955. Therefore, four persons- Chaudhry Muhammad Ali,

7
Forward written by Hashmi, S.H., Dean, Faculty of Social Sciences, Quaid-e-Azam University, Bureaucracy in Pakistan, by
Charles H. Kennedy, Oxford University Press
Ghulam Muhammad, Iskandar Mirza, and General Ayub Khan- were freely operating on the
chessboard of Pakistani politics.
8

At independence, Pakistan inherited an administrative system designed for maintenance
of law & order and collection of revenue at the provincial level. There was no federal
government and at the local government level, the district boards headed by elected chairman
under the control of Deputy Commissioner/ Commissioner existed at the gross root level. The
system was not accountable to the people. In the post independence era, the bureaucracy was
required to be accountable to the people by making them responsive to the political control of
elected representatives and to focus their priorities towards development. Owing to weak
political governments, the powers of bureaucracy were not clipped during the first 20 years and it
kept on ruling the country in collusion with the military. However, in 1969 during second martial
law, 303 senior civil officers were dismissed and bureaucracy was reduced to the status of junior
partner to the military. Again in PPP government at the end of 1971 about 1400 civil officers
were dismissed which was a major shock for the bureaucracy. The worst to follow was 1973
administrative reforms, whereby, constitutional guarantees were removed and the cadre i.e. Civil
Service of Pakistan was abolished and replaced by various administrative groups coupled with
large scale lateral entries at all levels not through Public Service Commission. Thus, the
bureaucracy became very much responsive to the control of the Prime Minister and the PPP
government.
During Zia-ul-Haq regime lateral entries were gradually stopped but induction of
substantial number of armed forces officers at top and middle levels of bureaucracy started. After
1985 and up to October 1999 the politicians replaced the military high command as senior policy
making partner in relationship with the bureaucracy while after October 1999, it was again the
military high command which had been the senior partner in this setup. About 600 senior level
posts at the federal and provincial governments level were held by retired and serving military
officers. At the local government level, devolution plan brought a fundamental change. With
commissioners gone, DCs gone, DIGs gone SPs not gone but back again as DPOs. DCO now
subordinate to District Nazim, (who is supposed to initiate his ACR) and thus bureaucracy has
been thoroughly politicized.

8
Sheikh, Riaz Ahmad, A State of Transition: Authoritarianism and Democratization in Pakistan, Asian Journal of
Global Studies Vol 3, No.1 (2009), 04-21
Removal of constitutional guarantees and abolition of separate services contributed to
politicization because in the post 1973 period under Bhutto and Zia-ul-Haq and later under
Benazir Bhutto and Nawaz Sharif bureaucrats realized that they needed high political or military
connections to obtain choice postings or promotions. Politicians and senior military officers were
in their own interest only too happy and this I scratch you back you scratch mine relationship
continues to this day.
JUDICIAL ACTIVISM / CONSTITUTIONALISM IN PAKISTAN
A modern democratic state is built on the principle of tri-chotomy of powers, i.e. the
judiciary, executive and legislature have to perform their own designed functions. However, it
has been observed that even in developed polities, the functioning of the legislature and
executive leave a lot to be desired. Instead of being vigilant and acting as a check on executive
persecution, the legislature becomes its hand-maiden. In addition, it is slack in enacting laws. To
fill the vacuum resulting from this legislative-executive mal-functioning, the judiciary has to
assert itself by providing relief to the sufferers of tyranny and by interpreting laws, which are
either deficient or vague.
The advent of parliamentary democracy in 1985 marks a water-shed in Pakistans
political development. The renewal and strengthening of the political process has also brought to
the fore the concomitant advantages associated with such a process. The most significant
blessing of the strengthening of the democratic process has been the assertive stance being
exhibited by Pakistans superior judiciary. Judicial activism has never been a feature of
Pakistans polity. Instead, our judicial history is replete with landmark decisions which
legitimized executive arbitrariness and extra-constitutional adventures. Our higher judiciary has
condoned, at various times, the dissolution of the first Constituent Assembly and the
proclamation of martial laws in 1958, 1969, 1977 and 1999. It would be short-sighted to put all
the blame for the above on the judiciary alone. A free and assertive judiciary does not grow in a
vacuum. It needs a free and democratic dispensation to nurture it. Thus, the much talked about
judicial activism is a result of Pakistans return to constitutional government.
Right now the country is embroiled in a rather destabilizing controversial tussle between
increasingly hyperactive judiciary and Government. Judiciary is actively pursuing a policy of
activism as compared to judicial restraint. The Judiciary is increasingly confrontational with
the Government. If this worsens, it would harden the judiciarys stance on several issues.
Furthermore, increase in confrontation with the Government will also ultimately result in
government not honoring the Judiciarys decision and thus weakening the later. All the three
major stakeholders: Legislature; Judiciary; and Government need to show maturity. The
mediation between Government and Judiciary is extremely essential.
POLITICAL INSTITUTIONS & POLITICAL PARTIES
Before the creation of Pakistan, the main aim of the All India Muslim Leagues political
program had been the achievement of Pakistan without spelling out very clearly what that meant
and what it should be like. After coming into existence of Pakistan the Pakistan Muslim League
was in dire need of a new program and direction which it found difficult to develop (until
today!). Quaid-e-Azam, the intellectual and factual leader of the Muslim League was busy in
tackling the daily emergencies of the first months of Pakistans existence. Besides, his failing
health might have been another reason for his inadequate attention to the re-organization and re-
adjustment of the Muslim League to the demands of Pakistani reality. No other leader came to
the rescue of the founder political party i.e., Muslim League. It was torn between the ongoing
power struggles between different Punjabi feudal families after the demise of Jinnah in 1948 and
Liaqat Ali Khans assassination in 1951. Regional parties with nationalist ideologies were
perceived as enemies rather than a new feature in a growing independent party system of
Pakistan.
This vividly shows that the reorganization and development of political institutions in
Pakistan met with many obstacles which kept them extremely weak from the very beginning.
This created a power vacuum in the political set-up which was filled with ongoing quarrels of
individual contenders for power. The only institution which was functional at that time and was
re-organized at a quick pace was the Pakistan army. The Kashmir war and the (real or perceived)
Indian military threat for Pakistan were two powerful factors which made the civilian
governments concede overall priority to the army and its needs. Because the army was a well
established and functioning body and had the aura of being straightforward and void of
corruption. With the coming down of the military to day-to-day political, administrative and
economic involvement this became something like a self-fulfilling prophecy: theories about the
capacity to modernize society were introduced and gained plausibility among the army itself and
also among a part of the public. This entrance of the military into politics proved to be a
development which by now has made it a full-fledged player in Pakistans politics and economy.
The weakness of the political institutions and political parties in Pakistan is one of the
major reasons for the weakness of democracy. This weakness gave the possibility and may be the
compulsion to the army to step in at certain points in the history of the Pakistan state when in a
crisis situation the political government turned out to be not strong enough to deal with a
situation or when a government tried to encroach upon the power of the army.
PUBLIC CONSULTATION / PARTICIPATION IN POLICY MAKING
Generally public participation seeks and facilitates the involvement of those potentially
affected by or interested in a decision. The principle of public participation holds that those who
are affected by a decision have a right to be involved in the decision-making process. It implies
that the public's contribution will influence the decision. Public participation may be regarded as
a way of empowerment and as vital part of democratic governance. In the context of knowledge
management, the establishment of ongoing participatory processes is seen in the facilitator of
collective intelligence and inclusiveness, shaped by the desire for the participation of the whole
community or society.
Effective public participation depends on the public having access to accurate and
comprehensive information. Hence laws regarding public participation often deal with the issue
of the right to know, access of information and information. The underlying assumption by
political theorists, social commentators, and even politicians is that public participation increase
public trust in authorities, improving citizen political efficacy, enhancing democratic ideals and
even improving the quality of policy decisions. However, the assumed benefits of public
participation are yet to be confirmed.
In developing countries, the level of popular participation in policy making has generally
been much less than in developed nations. The official channels for participation are restricted.
This is not uniform across developing countries. Zambia, known for its backward and
underdeveloped political institutions has a history of parliamentary debate on public policy.
9

Bureaucracy generally leads policymaking process in developing countries. Their involvement
varies from country to country. In Bangladesh with absence of an effective power structure,
bureaucratic power is extensive and pervades the entire social fabric. Bureaucrats have taken

9
Mark Turner and David Hulme. Governance, Administration and Development: Making the State Work (London:
Palgrave, 1997)
upon themselves the responsibility of public decision- making and there is no efficacious means
of making them accountable for their actions.
10

In case of Pakistan, it has been argued that over the decades all public policy decisions
have been taken by unrepresentative institutions without a real political debate.
11
Best, the
political process has been used to legitimize the extra-parliamentary public policy decision
making process.
12
As a result, there is a divorce between public policy and public opinion in
Pakistan. Much of the unhappiness among citizens emanates from this policy drift away from
what the people at large would like to see happening.
13

Ensuring Public Participation in the Decision Making Process
Bureaucrats are public servants and bureaucracies are meant to serve the public. But as
soon as a bureaucracy is established it tends to become independent and comes to regard the
public as its enemy. Unfortunately most third world governments are plagued with this menace.
The more the independence that it gains the less answerable is it to the public and the more
corrupt does it become.
14

Public participation aims at bridging of the gap between the government, civil society,
private sector and the general public, building a common understanding about the local situation,
priorities and programmes. Public participation encourages openness, accountability and
transparency, and is thus at the heart of inclusive decision-making. The level and the nature of
public participation in local governance issues are often used as indicators of a healthy civil
culture.
15

Public participation is important for our democracy and to our ability as a society to make
sound decisions related to the pressing challenges of our time. Participatory democracy creates
opportunities to involve stakeholders potentially affected by a decision. Public participation is
important for all sectors of society interested in creating accountability and transparency in the
decision making process. Public involvement is critical to developing more effective public
service programs and successful solutions to tough societal problems.
16
Citizens are the potential
victims and benefactors of proposed planning measures, they are the best judge to evaluate the

10
M M Khan and H M Zafarullah, Politics of Bureaucracy in Bangladesh (New York: Marcel Dekker 2001)
11
Javed Hasan Aly. Public Policy and Political Process (Daily Dawn, Islamabad, April 28, 2008)
12
Ibid
13
Public Policy versus Public Good, (Editorial, Daily Times, Lahore. March 16, 2005).
14
Ensuring Transparency and Public Participation in Public Procurement in Pakistan, Transparency International - Pakistan
15
www.unhabitat.org/cdrom/transparency/html/2b_8.html
16
www.scerp.org/bi/bi_x/papers
different options available. It has also been argued that those most affected by a decision should
have the most say while those least affected should have the least say.
17

In Pakistan while preparing any policy proposal, the department concerned is required to
hold brainstorming sessions with all the stakeholders. The proposal including the options so
developed is placed before the cabinet which is the representative body of the Parliament.
However, history shows that very good and sound policies in the past failed on account of poor
implementation or lack of will on the part of both political and bureaucratic elite.




17
www.springerlink.com
SECTION-3
PRIORITIZED LIST OF NATIONAL AIMS & OBJECTIVES
National Aims &
Objectives
Problem areas Reasons for Policy Failure in the
Past
1. Internal
Security
a) Terrorism
b) Delays in prosecution and disposal by courts
c) Over expensive litigations
d) Overall police performance and capacity
i) Absence of national security policy
ii) Lack of coordination among law
enforcement agencies, defense
apparatus, stakeholders and general
public
iii) Promotion of concept of Jihadism
in occupied Kashmir and
Afghanistan
iv) Failure of state institutions
specially judiciary and police in
administration of criminal justice
system
v) Rising unemployment and poverty
attracted youth towards anti-state
activities
vi) Reforms introduced in the shape of
Devolution of Power Plan 2001
failed to change the thana and tehsil
cultures
vii) Politicization of administrative
machinery
2. Economic
Stabilization
a) Resources Constraints i.e. Tax debate
b) Energy crisis
c) Water scarcity for agriculture purpose
d) Expensive inputs for industry
e) Trust deficit failure to maximize donor
assistance in flood affected areas
f) Inflation
i) Absence of tax- paying culture
resulting low tax to GDP ratio
ii) Lack of planning and continuity of
economic policies
iii) Lack of political will to implement
big projects and plans i.e.
Kalabagh Dam & Thar Coal
Project
iv) Corruption and mal-administration
v) Over dependence on foreign
assistance/ donors in economic
planning and policy making
3. Equity / Social
Justice
i) Education
ii) Non-creation of decent employment
opportunity
iii) Absence of basic health services
iv) Ineffective/ inefficient skills dissemination
program
v) Absence of self-reliant incentive for informal
sector
i) Concentration of wealth in the
hands of haves and exclusion of
have-nots
ii) Failure of state machinery to
provide goods and services to poor
masses equitably
iii) Low investment/ allocation in
health and education sectors
iv) In different attitude towards
private sectors involvement and
participation in social sectors
v) Governments negligence and low
priority towards technical/
vocational education
4. Good
Governance
a. Non-responsive and inaccessible state
institutions to common man
b. No public participation in decision making
c. Existence of master / subject relationship in
service delivery
d. Lack of merit and transparency in decision
making
e. Red-tapism and corruption
f. Lack of speedy justice system
i) Continuation of colonial mindset
in government institutions
ii) Existence of credibility gap
between people and the state
iii) Lack of effective monitoring
mechanism
iv) Inefficient and ineffective
accountability system

PROPOSED POLICY OPTION
Aims & Objectives Proposed Policies
1. Internal Security a. Police and administrative reforms at Thana, Tehsil and District level
b. Legislation to introduce judicial reforms for ensuring conciliation / arbitration and
time bound justice/ accountability system
c. De-politicization of law enforcement agencies
2. Economic
Stabilization
a. Resource Generation through Fiscal Reforms
b. Development of export- oriented industrial base and exploration of new markets
in Africa and Central Asia
c. Generation of energy by Development of Thar Coal Project and Construction of
big dams
3. Equity and Social
Justice
a. Free education for all up till matriculation level with uniform curriculum of
international standards with emphasis on skill development and technical
education
b. Provision of basic health services and family planning
c. Empowerment of women , minorities and marginalized segment of the society
4. Good Governance a. Development of effective, impartial, transparent and accountable
administrative system
b. Stable political system by giving general public a sense of participation in
decision making
c. De-politicization of state institutions



WAY FORWARD
NATIONAL POLICY DIRECTIVE FOR THE CABINET
1. INTERNAL SECURITY
Police and Administrative Reforms at Thana, Tehsil and District level
Directive to be Issued Agencies Responsible
Cost / Resources & Time -
Frame
i) Restoration of Executive
Magistracy by amending CrPC/
Police Order / Local and Special
Laws and PPC in offenses up to
three years RI along with summary
trial powers
1. Ministry of Law and
Parliamentary Affairs
2. Ministry of Interior
No additional cost is involved.
This is a Short-Term Plan for 1-2
years
ii) Enforcement of Alternative
Dispute Resolution System at state
expenses by institutionalizing
CPLC in the big cities, restoring
the courts of honorary magistrate
for local and special laws and
punchayst system in the villages for
petty crimes
1. Provincial Government
a) Home Departments of the
provinces
b) Inspectors Generals of
Police
2. Local Chamber of
Commerce, Trade &
Industry
Financial cost of establishing
CPLC will be borne by respective
CC&IT
iii) Number of judges / judicial
magistrate be increased by posting
one judicial officer on the
population of two lacs or @ 500
cases per judge
1. Supreme Court of Pakistan
2. High Courts of the
Provinces
3. Provincial Governments
It is Medium- Term Plan ranges
from 3-5 years. It will cost Rs. ___
per year
iv) Enforcement of national judicial
policy for ensuring disposal of
criminal cases within time limits
with proper monitoring and
evolution mechanism for
accountability
1. Supreme Court of Pakistan
2. High Courts of the
Provinces
No additional expenditure is
involved as the existing judges/
magistrates will be assigned the
task
v) Establishment of special courts for
women and children and
prosecution on the basis of
complaints of the aggrieved
1. Provincial Governments
2. High Courts of the
Provinces
Its a Short- Term Plan for 1-2
years. It will cost approximately
Rs. 200 million per annum
vi) Recruitment of the law
enforcement agency personnel on
the basis of merit, performance
based posting transfer and
regular monitoring and evaluation
mechanism
1. Provincial Governments
2. Inspectors Generals of
Police
This policy decision requires the
WILL of political leadership.

2. ECONOMIC STABILIZATION
RESOURCE GENERATION THROUGH FISCAL REFORMS
Directive to be Issued Agencies Responsible
Cost / Resources & Time -
Frame
i) Increasing the number of items to
be included in the sales tax net
ii) Imposition of agriculture tax
across the board without any
exceptions on the basis of crops
1. Ministry of Finance
2. Federal Board of Revenue
3. Provincial Board of
Revenues
Generation of Rs. 100 billion is
expected. It is a Short-Term Plan
for 1-2 years.
iii) Creation of special industrial zones
through public-private partnership
and provision of industrial inputs
i.e. electricity, gas. raw material at
subsidized rates to boost industrial
growth
Provincial governments
through:
a) Planning and Development
Board
b) Industries Department
It is the Medium- Term plan
between 3-5 years .
These zones will be developed
with public- private partnership.
Investments will be sought from
local and foreign investors.
iv) Granting tax and duty reliefs to
highly advanced capital goods and
machinery imports for creating
competitiveness and quality
products
Federal Board of Revenue No expenditure is involved
v) Creation of crops based
agricultural zone in the fertile
areas according to the suitability of
the crops by promoting cooperative
farming on the state land through
its distribution among the small
land holders
1. Ministry of Food,
Agriculture and Live Stock
2. Provincial Board of
Revenues
3. Agricultural Departments
No expenditure is involved. It is a
Medium-Term Plan for 3-5 years
of the Provinces
vi) vi. Provision of subsidized
agriculture input i.e. fertilizer
seeds pesticides etc and un-
interrupted electricity supply to
agriculture zones
1. Zarai Taraqiati Bank of
Pakistan
2. All Commercial Banks
3. Provincial Cooperative
Banks
Government of Pakistan will bear
the subsidy @ 10% on these
agriculture inputs which may be
Rs. 1.000 billion per annum. It is a
Short-Term Plan for 1-2 years.

3. EQUITY AND SOCIAL JUSTICE
FREE EDUCATION FOR ALL
Directive to be Issued Agencies Responsible
Cost / Resources & Time-
Frame
i) Emphasis on skills development
and technical education at higher
secondary level by imparting
market need- oriented skills
1. Ministry of Education
2. Ministry of Industries
3. NAVTEC
4. Provincial Education
Departments
5. Provincial TEVTAs
Rs. 100 Billion Approximately.
It is a Medium- Term Plan
ranging from 3-5 years
ii) Removal of mismatch between
demand and supply through
development of labor market
information system in Pakistan
1. Ministry of Labour and
Manpower
2. Provincial Labour
Departments
3. Provincial TEVTAs
4. PVTC
An expenditure of Rs. 100 million
as initial cost is involved. It is a
Short-Term Plan for 1-2 years
iii) Development of human resource
standards matching with
international standards and
development of accreditation
system for technical education
1. Ministry of Labour and
Manpower
2. Provincial Labour
Departments
3. NAVTEC
4. Provincial TEVTAs
No additional cost is required.
iv) Conversion of at least half higher
secondary schools into technical
1. Ministry of Education
2. Provincial Education
The conversion will involve an
expenditure of Rs. 500 million
with Rs. 100 million recurring
and vocational colleges
v) Privatization and outsourcing of
monitoring and evolution system in
education and health
Departments
3. Provincial TEVTAs
4. Ministries of Health and
Education.
5. Provincial Departments of
Health & Education
cost. It is Short-Term Plan for 1-2
years.
The outsourcing will involve Rs.
100 million. It is a Short-Term
Plan for 1-2 years.
vi) Provision of microfinance by
transferring money directly to the
families for income generation
vii) Government should bear the half
cost of lending microfinance to the
poor families to reduce financial
burden
viii) Financing should be preferred
to the families for the development
of entrepreneurship and service -
oriented jobs
1. Khushali Bank
2. NRSP/ PRSP
3. Akhuwat
Government will bear the interest/
markup involved for 1
st
year of
lending. An allocation of Rs. 500
million be made. It is a Medium-
Term Plan for 3-5 years.

4. GOOD GOVERNANCE
DEVELOPMENT OF EFFECTIVE, IMPARTIAL, TRANSPARENT AND
ACCOUNTABLE ADMINISTRATIVE SYSTEM
Directive to be Issued Agencies Responsible
Cost / Resources & Time -
Frame
i) Granting of new mandate to state
functionaries through provision of
constitutional guarantees by
making them servants of the state
rather than of government
1. Ministry of Law and
Parliamentary Affairs
2. Establishment Division
3. Organization and
Management Wing
No financial expenditure is
involved. It is a Short- Term Plan
from 1-2 years.
ii) Restructuring of government
functions through development of
Key Performance Indicators and
work breakdown structures
1. S&GAD Departments of
All Provincial Governments
2. All Public Sector
Autonomous Bodies and
Institutions

iii) Development of effective
monitoring and evaluation system
at each tier of the government
institutions
1. Govt. of Pakistan
a) Establishment Division,
b) Organization &
Management Wing
c) Finance Division
2. Provincial Governments
S&GAD and Regulation
Departments
3. All Autonomous & Public
Sector Organizations
No additional expenditure is
involved. It is a Short-Term Plan
for 1-2 years.
iv) Enforcement of efficiency and
accountability laws
indiscriminately
v) Introduction of effective client-
based feedback mechanism
1. Govt. of Pakistan
a) Establishment Division,
b) Organization &
Management Wing
c) Finance Division
2. Provincial Governments
S&GAD and Regulation
Departments
3. All Autonomous & Public
Sector Organizations
No additional expenditure is
involved. It is a Short-Term Plan
for 1-2 years.


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