2004年-世界发展银行全球_Devolution_in_Pakistan___Annex_2_Technical_Considerations_74页_5mb

Pakistan Devolution Summary

Core Content

This document, titled Pakistan Devolution in Pakistan (Report No. 29912-PK, Vol. 3), is part of a three-volume study conducted by the World Bank, Asian Development Bank (ADB), and the U.K. Department for International Development (DfID) to assess the progress of devolution in Pakistan and provide actionable recommendations. The study focuses on the financial and administrative implications of devolution, particularly in the context of district-level service delivery and fiscal transfers.

Main Topics and Key Findings

1. Reducing the Throw-Forward of Ongoing ADP Schemes

• Definition: Throw-forward refers to the unspent funds from past Annual Development Programs (ADPs) that districts inherit, which must be used to complete existing projects.
• Concern: District governments are constrained in allocating funds to their own priorities due to the high proportion of their budgets being spent on completing throw-forward projects.
• Data Limitations: Only four out of six study districts had complete data available.
• Key Observations:
  • In 2001/02, districts inherited a total of about Rs. 2,943.5 million in throw-forward.
  • By 2003/04, this amount had reduced to Rs. 2,127.3 million, a 28% decrease.
  • Karachi City Government accounted for over two-thirds of the throw-forward, highlighting its significant burden.
  • Faisalabad had the smallest throw-forward and was expected to complete its ongoing schemes by FY04, while Karachi would take until FY06.

2. Developments in District-Level Monitoring Data

• Key Indicators:

  • CWIQ (Core Welfare Indicators Questionnaire): Measures household satisfaction with public services.
  • CIET (Community Information Empowerment and Training): A social audit tool.
  • MICS (Multi-Indicator Cluster Survey): A comprehensive survey of household conditions.

• Findings: The data showed mixed results, with some districts experiencing improved satisfaction, while others faced challenges in implementation and oversight.

3. Provincial-Local Fiscal Transfers

• Provincial Finance Commission (PFC) Awards:
  • The study analyzed PFC awards for Punjab, Sindh, Balochistan, and NWFP.
  • It highlighted the weightings used in the distribution of funds and the implications for local governance.
  • Key Insight: The provincial consolidated fund plays a crucial role in funding local development.

4. Vertical Fiscal Imbalances

• Background: Vertical fiscal imbalances refer to the mismatch between revenue and expenditure responsibilities at different levels of government.
• Key Points:
  • The National Finance Commission (NFC) award is central to addressing these imbalances.
  • A change in the NFC award could significantly affect the fiscal capacity of districts.
  • The study emphasizes the need for predictable and equitable fiscal transfers.

5. Reforming Access to Justice under Devolution

• Key Reforms:

  • Separation of Judicial and Executive Powers: To ensure independence and efficiency.
  • Independent Prosecution Service: To enhance accountability.
  • Police and Criminal Justice Reforms: Including the establishment of Citizen Police Liaison Committees (CPLC).
  • Administrative Justice Reforms: Focused on reconfiguring key relationships between local authorities and the judiciary.

• Challenges:

  • Coordination between police and judiciary remains a challenge.
  • Nazim (mayors) and local officials need clear accountability structures.
  • Dispute resolution outside courts is encouraged to reduce judicial burdens.

Key Considerations and Recommendations

• Administrative Decentralization:

  • The goal is to improve local governance and service delivery.
  • A decentralized staffing model is proposed to increase local autonomy.
  • The Paths Decentralizers Have Followed show the importance of pragmatic reforms and incremental changes.

• Lessons for Action Strategy:

  • The study emphasizes the necessity of compromises between different stakeholders.
  • It recommends robust data collection, transparent fiscal transfers, and institutional reforms to support the devolution process.

Conclusion

Despite the challenges posed by the throw-forward of ongoing schemes, district governments in Pakistan have shown reasonable management of these constraints. The study concludes that while there is a need for fiscal and institutional reforms, the devolution process is well advanced and practical recommendations are essential to ensure its success. The focus should remain on improving service delivery and enhancing local governance through accountability structures and decentralized staffing models.