Abstract

A long history of poor management, rampant corruption, and politicization of civil service has left Pakistan in an economic quagmire, inequitable growth, and political instability. Pakistan’s civil service, by all parameters, has failed to provide effective service delivery and other basic services of public welfare. In the public eye, the country’s civil service officers are seen as non-compliant and least responsive, and uncompassionate behavior coupled with bureaucratic hurdles further aggravate the exploitation of the common masses. The lack of transparency and the military's ability to interfere in the public domain have raised concerns about the state's ability to maintain order. The government should prioritize reforms to transform the Armed Forces into a more effective and efficient organization. Since its inception in 1947, Pakistan has made many attempts to reform civil services, but no real change on the ground calls for turning the elusive dream of civil service delivery into reality. If the flaws of an unreformed bureaucracy remain unaddressed, the government may risk its chances of gaining public support.

Key Words

Services, Civil, Public, Government

Introduction

In any democracy, the ministers or political executives are responsible for formulating the country's administrative policies. The civil servants are the ones who implement those policies and procedures. Through an open competitive examination, candidates are selected for the civil service positions most likely to excel in the job. Pakistan's public service commission, known as the FPSC, is the authority that oversees the selection of the country's civil servants. This process is based on the Indian Civil Service. In Pakistan, the authority to make decisions lies with the people, who are the main source of power. On the other hand, civil service is considered the key component of a state's operation, which is responsible for moving the country's various departments and agencies.

The civil service helps the elected representatives carry out their duties and implement policies that are beneficial to the common masses. Unfortunately, Pakistan's civil service has been plagued by various issues, such as poor management and corruption. This has resulted in the country's instability and economic decline. The country's civil servants are often regarded as incompetent and uncompassionate, which has raised concerns about their ability to effectively address modern-day issues. This issue has allowed the military to intervene in the country's operations. Despite numerous attempts to improve the country's civil service, the implementation of reforms has not been successful. This could threaten the government's chances of winning the public's support.




Background of Civil Services Reform

After becoming an independent nation on August 14, 1947, Pakistan's civil service became the main institution that serves the country. This structure is the successor of the Indian Civil Service. The British East India Company was one of the major companies operating in India. During its operation, the company had two categories of employees. These divisions were then abolished following the Atchison Commission's recommendations. The new structure would be called the Imperial Civil Service of India. 

In 1912, a class difference was established to distinguish the different levels of civil servants in different services. For instance, those working in the executive branch were classified as class 1st officers while those in the operational division were classified as class 2nd officers. After the partition of India, the Indian civil service was redesignated as the Pakistan Administration Services and the Civil Services of Pakistan. During the time of the partition, only 82 civil servants were working in Pakistan, which was less than the number needed to meet the country's administrative needs. During the partition, Pakistan maintained the existing structure of the civil service in India. Two categories of services were also maintained. The country's civil service is composed of 13 central services. These include the police and the Civil Services of Pakistan.

I. Pakistan Foreign Service PFS.

II. Account Service.

III. Pakistan Customs and Excise Service.

IV. Pakistan Taxation Service.

V. Pakistan Military Land and Cantonment Service.

VI. Pakistan Postal Service.

VII. Telegraph Engineering Service.

VIII. Central Engineering Service.

IX. Information Services of Pakistan.

X. Central Secretariat Service.

XI. General Administrative Service.

XII. Economic Pool.




Research Questions

1. What is the evaluation of the history of civil services reform?

2. Why Civil services reforms are imperative for effective service delivery, transparent government, and equitable socio-economic growth of the general masses?




Research Objectives

1. To review the history of civil services reforms

2. To observes the impact of civil services reforms on effective service delivery and transparent government 

3. To analyze the impact of the better civil services reforms on the equitable socio-economic growth of the general masses

Literature Review

In any democracy, the ministers or political executives are responsible for formulating the country's administrative policies. The civil servants are the ones who implement those policies and procedures. Through an open competitive examination, candidates are selected for the civil service positions most likely to excel in the job. Pakistan's public service commission, known as the FPSC, is the authority that oversees the selection of the country's civil servants. This process is based on the Indian Civil Service. In Pakistan, the authority to make decisions lies with the people, who are the main source of power. On the other hand, civil service is considered the key component of a state's operation, which is responsible for moving the country's various departments and agencies.

The civil service helps the elected representatives carry out their duties and implement policies that are beneficial to the common masses. Unfortunately, Pakistan's civil service has been plagued by various issues, such as poor management and corruption. This has resulted in the country's instability and economic decline. The country's civil servants are often regarded as incompetent and uncompassionate, which has raised concerns about their ability to effectively address modern-day issues. This issue has allowed the military to intervene in the country's operations. Despite numerous attempts to improve the country's civil service, the implementation of reforms has not been successful. This could threaten the government's chances of winning the public's support.




Background of Civil Services Reform

After becoming an independent nation on August 14, 1947, Pakistan's civil service became the main institution that serves the country. This structure is the successor of the Indian Civil Service. The British East India Company was one of the major companies operating in India. During its operation, the company had two categories of employees. These divisions were then abolished following the Atchison Commission's recommendations. The new structure would be called the Imperial Civil Service of India. 

In 1912, a class difference was established to distinguish the different levels of civil servants in different services. For instance, those working in the executive branch were classified as class 1st officers while those in the operational division were classified as class 2nd officers. After the partition of India, the Indian civil service was redesignated as the Pakistan Administration Services and the Civil Services of Pakistan. During the time of the partition, only 82 civil servants were working in Pakistan, which was less than the number needed to meet the country's administrative needs. During the partition, Pakistan maintained the existing structure of the civil service in India. Two categories of services were also maintained. The country's civil service is composed of 13 central services. These include the police and the Civil Services of Pakistan.

I. Pakistan Foreign Service PFS.

II. Account Service.

III. Pakistan Customs and Excise Service.

IV. Pakistan Taxation Service.

V. Pakistan Military Land and Cantonment Service.

VI. Pakistan Postal Service.

VII. Telegraph Engineering Service.

VIII. Central Engineering Service.

IX. Information Services of Pakistan.

X. Central Secretariat Service.

XI. General Administrative Service.

XII. Economic Pool.




Research Questions

1. What is the evaluation of the history of civil services reform?

2. Why Civil services reforms are imperative for effective service delivery, transparent government, and equitable socio-economic growth of the general masses?




Research Objectives

1. To review the history of civil services reforms

2. To observes the impact of civil services reforms on effective service delivery and transparent government 

3. To analyze the impact of the better civil services reforms on the equitable socio-economic growth of the general masses

National Reconstruction Bureau

The NRB was headed by Lt. Gen. Tanvir Naqvi, who was the architect of the 2001 devolution reform. The DOPP is a new initiative that aims to bring about a change in the governance of districts, which are the political units that are responsible for carrying out various tasks and activities in Pakistan. DOPP has been regarded as the most radical administrative reform in Pakistan's history. Its implementation was partly aided by the military's ability to carry out the plan. The international support provided by the World Bank and the International Monetary Fund also helped in its implementation. It was also advantageous for Pakistan when the country's reform agenda was supported by international organizations.

The Devolution Plan aims to implement various measures designed to improve the efficiency and effectiveness of the government.

1. The abolition of Executive Magistracy led to the restructuring of the office of the Deputy Commissioner. The new title of the DCO was changed from Deputy Commissioner to District Coordination Officer.

2. Under DOPP, the elected Zila Nazim was given additional powers, which were previously exercised by the former Deputy Commissioner.

3. For the first time, revenue collection was not handled by the district administration as it was delegated to other local public services such as health, education, and law enforcement.

4. The various functions and responsibilities of the central and provincial governments were devolved to the district governments.

5. The district administration was also under the scrutiny of local representatives and the public. It was also responsible for addressing the complaints of citizens.

6. In 2002, a comprehensive package of reforms was introduced for the police, which replaced the 1861 Police Act. This was the first time that the police had a developmental orientation. The relationship between the district police and the elected mayor was also changed. The Police Order 2002, which was enacted following the abolition of Executive Magistracy, gave the police complete control over the local law enforcement units.

7. The goal of the police reforms was to make the service more accountable to the people and to provide them with a professional and service-oriented environment. Some of the features of the reforms that have contributed to the country's governance are listed below.

8. The public accountability of the police through the establishment of local, provincial, and national public safety commissions.

9. The district police was also made accountable to the elected mayor. Despite this, there are still provisions in the law that allow the police to ignore lawful orders of political operatives.

10. Under the new system, the superintendent of police became the district police officer. He or she was also responsible for overseeing the operations of the local and provincial police forces.

11. The police force was also restructured on a functional basis. The prosecution service was also separated from the police through an independent organization.

Despite the various reforms, the implementation of these was not as successful as expected. The lack of fiscal decentralization and the limited administrative powers were also factors that affected the implementation of the reforms. The implementation of new accountability structures also fell short.

A number of studies conducted on the reforms concluded that the public's preference was not reversed. In 2010, a study conducted by the Urban Institute stated that the public did not support the idea of giving the provinces more power over local government units. The chosen local government system could not deliver on its promise in 2008. The failure of the system was largely attributed to the lack of legitimacy that was present in the country's parenting regime. The reforms that were supposed to be implemented as part of the local government package were not carried out.

National Commission for Government Reform (Ncgr) 2008

1n 2006, the national commission for government reform (NCGR) was formulated under the chairmanship of Dr. Ishrat Hussain and published a report in 2008. Following are the key objective of (NCGR) formulation

• Revaluation of the existent occupational group of civil service at the federal and provincial level and proposed the new structure of the civil service including policies and composition relevant to training and development, recruitment, performance appraisal system, career development, disciplinary action, code of ethics, retirement, and benefits, promotion, benefits, and compensation

• Abolition of the groups/service

• Review the composition and size of civil service

• Division of work

• Review the Responsibilities of civil service officers

Recommendation of the Dr. Ishrat Hussain report (2008)

1. Abolition of timely-based promotion (mean promotion based on seniority) and recommended Performance-based promotion (performance appraisal is a method that helps the government to evaluate the performance of civil service officers.

2. Recommended OTM-R system (open, transparent, and merit-based recruitment) means to hire the best person for the job.

3. Following Mandatory training required for the promotion to the next grade 

• Post induction level 

• Mid-career level 

• Senior management level

4. A separate civil service department that is composed of regular civil servants at all levels of government in Pakistan.

5. Abolishment of fresh recruitment through the CSS examination in   the following occupational groups

• Office management group

• Pakistan military lands and cantonment services

• Pakistan railway service

• Pakistan postal service

• Information group

• Commerce and trade group




Recommended Four-Tier Civil Service Structure

All Pakistan Services

I. For senior management positions in government, the National Executive Service is a competitive examination that can be used for all civil servants. Pakistan administrative service previously (DMG) (occupational group BS 17-22)

II. Police service of Pakistan (occupational group BS 17-22)




Federal Civil Service (BS 17 TO 22)

I. Pakistan foreign services

II. Pakistan audit and account service

III. Pakistan taxation service with two cadres for custom and inland revenue




Provincial Civil Service (BS 17 TO 22)

I. Provincial management service

II. Provincial executive service

III. Provincial technical and professional service

IV. Provincial judicial service




District Civil Service (1TO 16)

The government's changing apparatus is regarded as a dynamic process that has been under the spotlight since it was established in 2006. The NCGR was established by the military regime in 2006 to carry out comprehensive reforms.




Fair Recruitment

It generally stresses transparent merit-based recruitment to all levels and grades of public services while protecting regional representation as laid down in the constitution.




Performance Management and Appraisals

Performance evaluation is a process that involves assessing and measuring the effectiveness of an individual's performance. This evaluation is usually carried out in order to establish a set of measurable objectives and develop key performance indicators.




Equality

The system of mixed approaches for different factions in a different was an enigma so to prevent being stretched out, equality of opportunity for career advancement to all the employees was suggested.




Replacement

The replacement of the concept of superior service and to form a single service for all the cadres irrespective of the Federal and Provincial Civil Services, professionals, and generalists.




Compensation and Benefits

A wide range of compensation and benefits plan for the employees of all the services 




Separate Cadre 

A separate cadre of regular Civil Services at the Federal, Provincial, and District levels co-existing with contractual appointments and lateral movement.

1. Creation of separate National Executive Service (NES) to fill highest executive positions through competitive examinations.

2. The formation of three new Cadres namely economic management, social management followed a general cadre.

3. A specific mechanism for seeing the responsiveness through a score formation by citizen surveys and scores. 




Dr. Ishrat Hussain’s Commission 2019

After the 2018 general election, the Imran Khan-led government formed a task force under the supervision of Dr. Ishrat Hussain

The task force on institutional reforms was established to review the existing training system to make it more relevant to the needs of public service delivery and governance. The 3-6 month post-induction training aims to build comprehensive skills inter alia communication and inter-personal skills for those entering the federal government in various cadres. The training would be organized by the National School of Public Policy (NSPP). This training should also focus on the indulgence of the individual in the organization’s culture, rules, and procedures.

I. The National School of Public Policy (NSPP) would be the highest body for quality assurance in terms of monitoring and standard settings for maximum enhancement of the quality delivery whereas the course and contents would largely be dependent on the training institution itself.

II. To bring in highly qualified officers having integrity, behavior, and competence, the overall mechanism of staffing and structure of incentives should be brought in line with the NSPP along with the training institutes. 

III. All the training institutes shall be made autonomous with their boards of governors drawn from academia, practitioners, retired civil servants, etc. Linkages with leading universities and research organizations shall be established.




The Current Structure of the Civil Services

The public service commission of Pakistan conducts the CSS examinations for various occupational groups. Some of these include the customs service of Pakistan, the police service of Pakistan, the inland revenue service of the country, and the office management and secretariat.

Present Criteria for Recruitment

Conclusion

Civil services reforms are imperative for effective service delivery, transparent government, and the socio-economic well-being of the general masses. Reforms stressing on implementing policies of the government should be backed by a sound system of checks and balances. A vibrant and proactive civil service is in dire need of the hour to combat challenges on hand. Such a vigilant civil service can lead Pakistan towards quality democracy. 

References

• Hussain, I. (2018). Governing the Ungovernable. Karachi: Oxford University Press.
• International Crisis Group. (2010). Reforming Pakistan's Civil Service, Asia Report N0 185
• Iqbal, F. (2014) 'An analysis of administrative reforms in Pakistan's public sector'. PhD thesis. University of Bedfordshire.
• Javaid, U. & Ramzan, M. (2013). Police Order 2002: A critique. Journal of Political Studies, 20(2), 141-160.
• Kennedy, C. (1987). Bureaucracy in Pakistan. Karachi: Oxford University Press
• Khan, J. R. (2017). Government and administration in Pakistan. Lahore, [Pakistan] : Peace Publications
• Khan, S. (2005). Public Administration with Special Reference to Pakistan. Adfo Books.
• NCGR. (2008). National Commission For Government Reforms On Reforming The Government In Pakistan. https://www.pc.gov.pk/uploads/report/NC GR_Vol_I-1.pdf
• Reforming Pakistan's Civil Service. (2016, August 19). Crisis Group. https://www.crisisgroup.org/asia/south- asia/pakistan/reforming-pakistan-s-civil- service
• Mehboob, S. R. (2018, September 16). Civil Service Reform - learning from the past. Daily Times. https://dailytimes.com.pk/298576/civil- service-reform-learning-from-the-past/
• Shafqat, S. & Wahla, S. (2021). Experimenting with Democratic Governance: The Impact of the 2001 Local Government Ordinance on Pakistan's Bureaucracy. Oxford University Press
• UNDP, UNOPS. (2012). Voices of the unheard: Legal Empowerment of the Poor in Pakistan.
• Wilder, A. (2010). The Politics of Civil Service Reform in Pakistan. Columbia Journal of International Affairs. https://jia.sipa.columbia.edu/politics-civil- service-reform-pakistan