2004年-世界发展银行全球_Devolution_in_Pakistan___An_Assessment_and_Recommendations_for_Action_126页_10mb

Pakistan Devolution in Pakistan: Summary

Core Content

This report, titled "Pakistan Devolution in Pakistan", is part of a three-volume study conducted by the World Bank, Asian Development Bank (ADB), and the UK Department for International Development (DfID). It was commissioned by the Government of Pakistan to assess the progress and impact of the devolution process on service delivery at the district and tehsil levels. The study aims to provide practical, feasible recommendations for improving the effectiveness of devolution in enhancing public services such as health, education, water and sanitation, and access to justice.

The devolution process in Pakistan was initiated with the goal of improving service delivery, increasing citizen participation, and enhancing accountability. The report evaluates the institutional changes, fiscal arrangements, and political reforms that have taken place since the implementation of the devolution framework.

Main Report Overview

Context

The devolution initiative in Pakistan is aimed at:

• Injecting new political energy into a system dominated by entrenched interests.
• Empowering marginalized groups, such as women and workers, to access formal politics.
• Introducing stability by establishing stronger accountability mechanisms between local politicians and citizens.

The report also highlights technical objectives such as improving social service delivery, property and labor rights, and access to justice through local institutions and increased awareness of human rights.

Key Findings

• Significant progress has been made in establishing new local institutions and governance structures.
• New electoral arrangements have been implemented, with 6,458 new union councils created.
• Citizen Community Boards (CCBs) have been introduced with a governance mandate.
• 25% of reserved women seats have been filled in union councils.
• Challenges remain, including slow progress in oversight bodies, inequity between provinces, and revenue management issues.

Assessment

The report identifies both visible wins and visible losses in the devolution process. Wins include improved service delivery in some areas and the establishment of new accountability mechanisms. Losses include civil servant morale, law and order issues, and persistent administrative inefficiencies.

Recommendations

The report proposes a strategy for strengthening devolution and improving service delivery, with the following key elements:

1. Enforce Core Principles and accommodate local differences.
2. Transmit National Policy Priorities more effectively to local governments.
3. Demonstrate Federal Government Commitment to the strengthened role of provinces.
4. Demonstrate Provincial Government Commitment to strengthening local government.
5. Local Governments Must Demonstrate Merit to gain confidence.
6. Judicious Selection of Conditional Grants to support local initiatives.
7. Hold Local Governments Accountable for their performance.

These recommendations are structured around seven strategic goals, which include:

• Strengthening local governance.
• Enhancing service delivery.
• Improving fiscal transfers.
• Increasing citizen participation.
• Ensuring equity between and within provinces.
• Strengthening legal and judicial frameworks.
• Promoting transparency and accountability.

Key Areas of Devolution

Service Delivery and Devolution

• Service delivery improvements are essential for the success of devolution.
• Devolution can help by decentralizing decision-making, increasing local ownership, and enhancing responsiveness.
• A framework for analyzing the impact of devolution on service delivery is provided, focusing on incentives, resource allocation, and institutional performance.

New Incentives

• New incentives for nazimeen and senior staff include greater autonomy, better pay structures, and clearer roles.
• New incentives for service providers involve performance-based funding, capacity building, and greater local control over budgets and programs.

Impact of Changed Incentives

• The report assesses the impact of new incentives on service delivery in the following sectors:
  • Health: Improved local governance and accountability have led to better performance.
  • Education: School-based management and local involvement have had a positive effect.
  • Water and Sanitation: Local authorities have taken more responsibility, though capacity remains a challenge.
  • Access to Justice: Judicial reforms and local police oversight have improved, but inconsistencies and inefficiencies persist.

Supporting Material

• The study draws on extensive qualitative and quantitative data from six districts (Bahawalpur, Faisalabad, Karachi, Khairpur, Bannu, and Killa Saifullah).
• A comprehensive fiscal model is used to analyze the flows of funds and the impact of devolution on revenue and expenditure.
• Tables and figures are used to illustrate the progress made, the challenges faced, and the potential for future improvements.
• The data sources and methodology are detailed in the appendices and supporting documents.

Conclusion

The report concludes that devolution has made significant strides, but further reforms are needed to ensure equity, efficiency, and sustainability. It emphasizes the importance of accountability, capacity building, and clear policy transmission to make the devolution process more effective. The NFC Award (National Finance Commission) is highlighted as a key opportunity to increase local resources and support the devolution process.