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.Chapter 7PUBLIC ADMINISTRATION

INTRODUCTORY

1. Public administration is the instrument through which a government discharges its responsibilities.

The scope of governmental responsibilities has been expanding all over the world, but nowhere more than 5fi "the sphere of social and economic development in under-developed countries. Initiative and institutional fa& ylities are generally lacking in the private sector. Trained manpower in both the administrative and technicalategories tends to be concentrated in the, Government. The people are accustomed to look to the Govern-

ment for initiative and leadership in all spheres, and expect high standards of integrity, efficiency, and perfor-

mance. The prestige and authority of the public services in spite of inadequacies is high, and successful enter-J

prise in the private sector is difficult without their active support. There are large and important tasks, many

of them of a basic character, which are totally beyond the resources of private initiative, finance, or skill. Pakistan

has embarked on a programme of social and economic development, and its. public services are assuming new

responsibilities which will rapidly increase in scope and magnitude as development expands and acquires tempo.\

The expansion, improvement, and development .of its administrative machinery is, therefore, one of the primary

tasks which the Government has to undertake.

2. The defects as well as the merits of the existing administrative system stem largely from the fact that itis a heritage from a coloniaj power, which reared upon certain indigenous institutions a super-structure adapted

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to the needs of ruling a subject country. The combination yielded a system of public administration admirablyksuited to the requirements of a government engaged largely in the primary functions of collection of revenue,

of justice, and maintenance of law and order! Under the stress of social and economic change,

some alterations were made in this system from time to time, but, fundamentally and broadly, the methods and

outlook of the public services, the tasks they performed, and the procedures they followed remained unchanged.d

The inevitable result has been that, with the attainment of independence and the shift of emphasis from regulat-

ing the life of the cpmunity to positive action for promoting its welfare, the system has become outdated and

seriously inadequate. So far as law and order, administration of justice, and collection of revenues are concerned,

the system continues to serve the country reasonably well. However, its e f f i i e n _ y ~ ~ e s s e n t i a lields tends w

to invest it with a fictitious appearance of adequacy for all purposes, including the new and supremely important

task of planned' development. This, on the one hand, creates a psychological atmosphere of complacency un-

favourable to reform, and, on the other, increases the inertia of the system, its power of resisting change. The

' %sult,isan inner conflict in &cbusiness of_govergm,est.- (%file government policies have a clear and definite/

-_-ganisation and procedures, tends to pull in a different direction. ,

- 1iasin favdur of/d&elopment, the administrative system, wedded as it is to the status quo in its approach, or-

/ /--3. The administrative machinery needs to be geared to the tasks of development and social advance. I t

needs to be reformed in quality and organisation and strengthened in size. Its outlook has to undergo a change

so that economic and social progress become its main purpose. Such a re-orientation of attitude is necessary

to bring the people and the administration closer to each other, to develop identity of outlook and purpose, and

to create faith in the country's ability to achieve its goals. Unless there is movement in this direction, the gulf1/which existed between the people and the Government under foreign rule will not be bridged, and even the carry-

ing out of the basic tasks of law and order will be confronted with increasing difficulties. We are aware that such .a change has begun, and for many officers, particularly those directly associated with development programmes,

their work is acquiring a new purpose. But the pace has to be accelerated, and administrative eaders can per-

form a great service by setting examples which will influence the 'attitudes of younger officers towards their duties.

4. We are of the view that in the period immediately ahead the inadequacies of Pakistan's administrativemachinery will operate as the most serious single impediment to the maximum economical use of the country's

financial and material resources. The popular belief is that the rate of progress will be primarily regulated by

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the magnitude ~f resources, in terms of internal finance and foreign exchange. This is true, but only partly

true. In actual fact, the pace of the implementation of economic and social programmes is likely to be governed

even more by the capabilities of the nation's administrative and technical organisation. This view is supported

by the fact that the various Central and Provincial agencies responsible for development are expkriencing diffi

culty in utilising fully the budget allotments sanctioned for their programmes. ~ c t h a lxpenditures often

fall short of the allocated grants. This phenomenon is attributable to a variety of administrative and technica

shortcomings. It is the duty of the administration to organise resources and to activate and use them so as to

chieve maximum results in the shortest possible time at minimum expense. It must further, by its integrity

and efficiency, inspire confidence among the people and secure their whole-hearted co-operation, without whichdevelopment cannot serve its full purpose in a democratic society, nor can it acquire speed. /

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Public administration requisites for development

5. Some of the public administration requisites for thq purposes of national development maybe summarised

as follows :-

(a) A streamlined organisation, both at the Centre and in the Provinces, dividing the business of develop-

ment into clearly demarcated and self-contained areas of responsibility and at the same time ensuring

the fulfilment of the development mission as a whole.

(b ) Central planning machinery responsible for (i) assessing the human and material resources of the

country; (ii) in collaboration with the various agencies responsible for development both at theCentre and in the Provinces, formulating national plans of development covering all social and

economic fields ; iii) assessing and reviewing progress periodically ; nd (iv) assisting the developmen

agencies in removing their difficulties and accelerating progress.

(c) Organisations in the Provinces to perform similar functions at the provincial level and to work in

close collaboration with the central planning machinery and with the provincial departments in

volved in development.

IC1Where necessary, statutory public corporations and authorities charged with implementing specia

'L programmes requiring a commercial approach, or a multi-purpose approach in which the needed

degree of co-ordination can be secured only under a special authority.

e) A revitalised district administration directed to development.

9f) Democratically constituted local self-government institutions in both urban and rural areas, working

in close co-operation with governmental planning and development agencies.

(g) A rational system of financial administration which ensures the wise utilisation of the country's finan

cial resources, and functions in such a manner as to promote development activities.

(h ) Public service policies designed to maintain an efficient corps of workers.'(i) A progressive outlook on the part of the public service.

Basic requirements of organisstion

6 . Administrative organisation involves the division of the business of administration among a number of

units, each performing specified functions and all working together to achieve common objectives. Amongthe principal requisites of this process are the following :-

(a) A number of self-contained working units assigned clearly defined and functionally inter-related res-

ponsibilities with sufficient authority to discharge them ;

\ (b ) The horizontal arrangement of such units into homogeneous groups looking after clearly demarcated

\ and sizeable areas of administration, ki th no gaps and a minimum of over-lapping ;



(c) Vertjcal arrangement of the units and groups on a pyramidal scale of descending responsibility, witha straight line of command extending throughout, and with maximum delegation of authority to

enable decisions to be taken within the frame-work of approved policy without' constant referencem. / 7.-to higher levels2 and

( d ) &?angeztmit$ at the higher levels, especially at the top level, to ensure adequate co-ordination, both

horizontally and vertically, and the fulfilment of the mission of the administration as a whole.

Organisational defects

7. Judged in the light of the requisites outlined above, it is generally agreed that the present administrativemachinery for development both at the Centre and in the Provinces suffers from a number of shortcomings, of

which some may be briefly mentioned as follows :-(a) Inadequacies of personnel.-The development departments in the Provinces are, generally speaking,

inadequately staffed, which restricts the expansion of their activities and the scope of the developmentwork they can do. They are especially lacking in staff to prepare surveys and plans. In manycases the shortages are attributable t o inadequate appreciation of the importance of development

/ u11ctions. Development departments are still given a relatively sybordinate status, and their re-

quirements receive insufficient recognition. The deyelopment departme& at the Centre also suffer

from shortages of staff and a serious lack of planning personnel.

(b) Inadeqecacies of organisational structure.-Both in the Provinces and at the Centre, the allocationsof functions among operative departments, and the grouping of the departments for purposes of

administrative control, are for the8 most part haphazard, being either survivals from the past or a

result of political or administrative accidents.* Wifferent aspects of one subject are often dealt

with in different departkents, and unrelated deve lop~ en t activities are often lumped together

under one secretariat department or ministry. Anomalous combinations of this kind create un-

necessary strains and stresses and inner conflicts.

(c) Unplanned changes.-Frequent and unplanned changes in organisational combinations are made

in the interest of political or administrative expediency. These changes are not a reflection of the

need for flexibility in keeping with the dynamic nature of development, but are generally mere super-

ficial changes in the superstructure which leave the basic structure unaffected. The organisation isin fact quite rigid.

(d) Disparities of size.-The ill-planned arrangements noted above often result in an inequitable distribu-

tion of burdens among ministries and secretariat departments, and in vast differences in size.

(e) Attitude towards development.-The unavowed attitude which regards development work as being

of secondary importance is still relatively widespread. This attitude, which is irreconcilablewith declared public policies, reflects itself in the secondary position often accorded to develop-ment departments. They are treated as poor relations in the family of government organisations.

This is a legacy from the past and tends to be perpetuated by the comparatively less advantageous

emoluments and conditions of service of the personnel serving in some development departments,

and is betokened by the fact that junior officers are often appointed in the secretariat to deal withthese departments. There are notable except~ons.

(f)'Absence or inadequacy of administrative organisations for certain development subjects.-For some im-

portant development subjects either there is no administrative organisation or it is very inaaequate.Some outstanding examples are : minerals development, inland water transport, survey and invkti-

gations for water and power development, and housing and settlements planning.

*No~Ji-The word c c department " s used here to describe what is known as an excutive department as distin-

guished from a policy-making department, the latter 'being referred to as a " ministry " n the case of Central Govern-

ment dnd as a " secretariat department "' in the case of Provincial Government.



(g) Defective organisation aggravates problems of control ana' delegation.-The fragmentation of responsi-

bilities and proliferation of units aggravate the problems of control and delegation. The lines of

commahd are seldom clear and straight, and the locus of control is often confused. The liberal

delegation of authority which is necessary in order to impart mobility and effectiveness to operative

organs is made aifEcult by the unwillingness at higher levels to part with power, and by the unwilling

ness of those at lower levels to use the powers delegated. The result is over-centralisation;'------__,

(h) Defective co-ordination.-This over-centralisation is an ineffective and in fact a spurious f o p of co-

ordination. It exhibits itself in time-consuming, energy-wasting, and patience-exhausting check

and counter-checks, references and cross-references, conferences ana consultations, often at the

. wrong levels and about unimportant matters. Co-ordination in the true sense of unified adminis

trative leadership at vital points is generally lacking. Apart from pervasive financial controls

which often have co-ordinative implications of a negative character, and the intrinsic responsibility

of the Cabinet, such agencies as exist for general co-ordination do not perform this function in a

comprehensive manner.

Same suggested improvements

8. It is'essential to overcome these defects and to improve the ability of the Government to carry out de

velopment work if the Plan is to succeed. We have not studied the general problem of governmenre-organisation, which is outside our terms of reference. In this and in other Chapters, however, k e propose

number of specific organisational improvements which we consider necessary for the implementation of the Plan

9. Some of the more important organisational problems aiscussed in other chapters are :-

%.9(a) Organisational arrangements for range management, soil conservation, colonisation, and agricultura

research, in the Chapter on Agriculture.;/

(6 ) Establishment of organisations for general surveys and investigations of water and power develop

ment, and of water and power development authorities, in the Chapter on " Power, Irrigation an

Reclamation Programmes and Policies";(c) Organisational improvements in the fiela of minerals development, in the Chapter on Fuels an

'Minerals ;

(d) Organisational improvements in the field of industrial development, including an organisation fo

assisting the fulfilment of plans for private industry, in the Chapters on Industrial Develoment, Large

Scale Industry, and Small-Scale and Cottage Industry ;

(e) Establishment of organisations for ocean shipping and for inland water transport, in the Chapte

on Transport ;

(f) evelopment of housing and settlements planning agencies, in the Chapter on Housing and Settlements

(g) Improvements in the organisation of education, in the Chapter on Education and Training ;

(h) Improvement of organisations for labour welfare and the enforcement of labour legislation, in th

Chapter on Labour m a Employment ; and(i) Organisation of social welfare, in the Chapter on Social Welfare.

Tb ollowing paragraphs contain some additional proposals for re-organisation which in our view a

important for development.

10. At the Centre we recommend the amalgamation of the subjects of Commerce and Industry in on

Ministry. Under the new Constitution, the Ministry of Industries will be relieved by the Provinces of

umber of its functions. Some of the 'departments now attached to the Ministry of Commerce can &o

transferred to other Ministries, such as Shipping to the Ministry of Co~lamunications,asd hwaae to th



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Ministry of Finance. The implementation of the Plan in the field of industry, including the planned Utilisatim

of industrial capacity, will gieatly depend on import licensing policies and procedures. The division o

commerce and industry in two ~ k s t r i e sresents difficult problems of co-ordination, which would be bes

resolved by their amalgamation in one Ministry.

The principles and objectives to be kept in mind in re-organiskg ministries

Centre and the Provinces. It is not our function to attempt to prescribe the pattern

Governments under the large measure of autonomy

to which we would like to draw particular attention is that

In the past the subject of local self-government has usually been attached to a secretariat department mncerne

/ith some other subject which was regarded as its main responsibility. Local sel&government has theref

had a subordinate position, selaom receiving sufficient attention, and has suffered from n e g l e c ~ l l & $ t ~

appears to be beginning to change for the better, and we strongly support the concept of establishing in the Pro

vincial Governments full-fledged Secretariat Departments of Local Self-Government.

NATIONAL PLANNING' ORGANISATION

12. The planning and execution of a national development programme is a process to which nearly ever

unit of government must contribute. Schemes and prowsals should be prepared at every level of govermen

from the village to the Centre and in every department and Ministry concerned with development. These scheme

and proposals should be reviewed and co-ordinated into district, provincial, and national plans. Decision

must be reached and sanctions given for the execution of plans by operating organisations, ana their work mu

be co-ordinates to achieve maximum results. The organisational arrangements for accomplishing these pur

poses will involve several elements : planning units in ministries and dg-gtments ; central and provinci-.- - . ___----. ----.--.

planning organisations for review and co-ordination ; arrangements for reaching decisions and giving sanctions

and systematic procedures for co-ordinating execution, observing progress, and measuring results.

Simplification of sanctioning procedures.

13. Later paragraphs discuss at some length the establishment of central and provincial planningorgani

sations. We do not discuss at length problems involved in the sanctioning of schemes and programmes and i

co-ordinating and expediting their execution. It is obvious, however, that the sanctioning process shoul

be and kept as simple as possible, consistent with the necessity for some co-ordination and technical an

fisancial review, and that definite organisational arrangements will need to be made for co-ordinating and ex

pediting scheme and\programme execution./

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14. The first necessity, if the sanctioning process is to be kept simple, will be departmental competence ithe initial preparation of schemes. Many of the delays complained of at present seem to be directly attributab

to poor scheme preparation and presentation. Each central and provincial department resp nsible for an

sizeable segment of the development programme should have a small complement of technic i qu&ed pe

sonnel competent to ensure the technical and financial soundness of proposed schemes and the adequacy of the. presentation. This would save much timegow spent in referring schemes back for further work or informatio--------. Revie*g agencies should slmply refuse to accept for consideration schemesprimafacie incomplete or defectiv

15. ~t will also be necessary to hold the number of review agencies and the scope of review-to he practicab

&urn, and to telescope as much as possible the steps involved in the review process. The present syste

is too it, b takesabou year for the average provincial scheme r e q w

review to emerge from the sanctioning machinery. It may or may not be possible to cut out entirely somesf h

ohawe equired ; cafeful and objective study should be made of this, and no step in the process h d d b

retained wGch experience has not demonstrated to be truly essential. In the meahtime, it should bepos~*-- -I--



sljeed up sanctioning considerably by more use of the conference method for ironing-out conflicts and difficul-

ties, in lieu of " noting " back and forth' ; nd by providing wherever possible for the simultaneous review of

schemes by clearance agancies, in lieu of the present practice; of having each scheme consideied separately bysuch agencies in turn. Review by finance department should be conked to financial considerations.

Progressing of schemes and programmes,

16. It will also be essential, as indicated, if Plan implementation is to proceed with the necessary efficiency

and despatch, to make definite organisational arrangements at both the central and the provincial levels for over-,eeing and expeditihg the progress of scheme and 'programme execution. Each department responsible for any

sizeable' segment of the overall development programme will need G c progress " officers or a " progressing "

unit, and there should be overhead units of this type in'both the Central and the Provincial Governments. It

would be the task of such officers and units constantly to watch over and evaluate progress on the basis of both

mitten reports and field observations ; to co-ordinate progress reporting and to prepare overall reports ; nd

generally to aid in scheme and programme execution by spotting and helping to solve problems ana difficulties.

National and Provincial planning,-

17. The essential purpose of national planning is to measure total resources in relation to total needs, t o

assess relative priorities, and to propose targets and allocations of resources which will bring about the largest

and most rapid results possible. A national plan is composed of subordinate plans to be fulfilled by various

- government and private agencies. But these subordinate plans cannot result in the most rapid possible

progress for the country, unless they are harmonised and fitted together by national planning. A series of

unco-ordinated individual plans, no matter how carefully prepared, must result in serious conflicts, gaps,

and delays. ..18. National and provincial planning are both necessary ; each complements and strengthens the other.

Clearly, no national plan can be effective unless it takes account of the desires and capabilities of the ProvincialGovernments and unless their plans are integrated with the national plan. Equally clear, the Provinces need

national planning in order that the maximum progress can be made for all the people of the country. Provin-

cial resources-financial, material, and human-are unevenly distributed. It is one of the functions of national

planning to redress imbalances in resources by distributing them all over the country and among different pur-

poses in a rational manner, so as not to concentrate the benefits of development in one area or among one group,

but instead to spread them widely and provide for the maximum possible progress for everyone. Furthermore,

h o v i n c i a l resources are only a part of the total national resources. There are many resources which cannot1 be attributed to a Province and belong to the nation as a whole; Foreign loans and aid are an outstanding exam-1ple, but are only one of many. Moreover, the country's resources cannot be brought fully into use without action

in the cential field. The Central Government controls several subjects of vital importance in mobiising and .using resources, such as currency, foreign loans, banking, exports and imports, shipping, and insurance. Deve-lopment has to be planned with reference to available markets, and sectional planning would be based on smaller

producing and consuming areas, and would render many projects uneconomic. For all these reasons provincial

plans must be integral parts of a national plan and must conform with its objectives, techniques, and priorities,in order to achieve maximum results in the shortest time in terms of the welfare of all the people of the country.Ii

19. The necessity for a central agency for planning seems to be beyond question, and has been recognised .in all countries where national policies are directed towards a rapid and balanced development of resources. This. agency cannot be a department, because no department could have a status adequate to the overriding import-

ance of the assignment. Similarly, an administrative ministry is out of question by reason of its preoccupation

with i ts own duties, and the danger of conscious or unconscious partisanship to which it must be exposed. Even

a spacial ministry responsible solely for planning would not be in a strong position to co-ordinate ecpnomic poli-

cies and development. It would be burdened with administrative and executive responsibilities and would there-

fore not be wholly free to perform its essential functions of research* analysis, advice, and co-ordi- As- - .



a it would tend to be drawn into current political controversies, which would impair its utility and effec

tiveness as a body of-echnical expecs, particularly in the context of a federal structure of government.-

20. The Central planning agency should, in short, be an agency consisting of experts without responsibilifor executing policies or programmes but enjoying a high prestige by virtue of its competence and impartial pos

tion and outlook. It should be accorded a high position in the counsels of government in order t'o make its advic

effective. ~t would then be in an effective position to enable the Government to co-ordinate economic policie

and to direct planning and development activities.-- - -r"--

- -/21. Planning is a continuing process and does not come to an end with the formulation and r o d e o

of a five-year 1Cmust go on continuously to take account of unforeseen circumstances, unfimed expetations~nToreseen hortages and surpluses, new and more complete information and statistics, and a host o

forces, some released by the plan itself and so e lying outside it. Subject to the priorities and objectives of thi'lan being preserved, a reasonable measure 0 flexibility is necessary. Amendmey, adjustments, and improve

ments must be made to achieve the purposes of the plan where facts have altered. But changes in the plan shoul- - --not be made by the implementing agencies on their own responsibility or in a ha-ard - - way.. Theyshoul

be made on the advice of the planning agency aftv full consideration. Also thefirst five-year plan will merg

into a second plan and the second into a third ; he nation has to think in terms of a continuing series of dev

lopment plans. All countries which have embarked on development have found it necessary to maintain a centraplanning agency on a permanent basis. This need has now been recognised in Pakistan, and the Planning Boar

has been accorded permanent status.

22. The Board, which consists at present of the Prime Minister as Chairman, a Deputy Chairman, an

two other Members, has been assigned the following functions :-

(a ) To prepare future Five-Year Plans of economic and social development.

(b ) To make additions to and alterations in the existing Five-Year Plan consistent with the changing eco

nomic conditions of the country.

(c) To tender such technical advice and offer such comments on financial matters bearing on developmen

plans as may be requested by the Ministries of Government.(d) To stimulate and, where necessary, to initiate the preparation of schemes required. to achieve nationa

objectives in the economic and social fields.

(e) To examine development schemes, programmes and proposals with a view to their inclusion in th

plans of development.

Cf) To maintain a continuous and constant review of the progress of development, the benefits realised

and the diEculties experienced.

(g ) To maintain a continuous review of the economic conditions of the country so far as these have a bear

ing on the development plans.

(h) To submit such periodic reports as the Government may desire from time to time.

( i ) To encourage the improvement and expansion of research (in particular economic research), statistica

surveys and inyestigations, and evaluation needed to support effective planning atld developmen

in the country.

(j) enerally to advise the Government on economic policies and problems in various fields so far as thes

have a bearing on the development plans.

23. Close and co-operative relations between the central planning agency and the Ministry of Finance

are obviously essential for the success of the planning effort. This is true especially in connection with the pre

paration of the annual development budget, which in effect is a statement of the public sector development pro

gramme for the ensuing year. Both the planning agency and the Ministry are concerned that the developmen



programme should be as largeland as effective as possible. In general, the planning agency wiU be concerned

with the objectives, priorities, and expected benefits of proposed expenditures, and the Ministry with adminis-

trative feasibility, cost estimates, and availability of funds, but the important point is that the two agencies must

work together for best results. We should not be"interpreted as suggesting that co:ordination between the p~&-

ning agency and the Ministry of Finance is necessary only on certain occasions during a year. Close and con-

tinuous collaboration is essential not only in preparing budgets but also in helping to formulate programmes

for the use of foreign aid and loans, in appraising the progress of development, and in many other matters.

.24. The preparation of programmes and schemes in the different social fields is and should

be the responsibility of the administrative ministries concerned ; or ministry should have a

Jplaming unit free to devote its whole time to the task The central planning agency should endeavour to en-

courage effective planning in the ministries, and where required, to give them help and guidance. The planning

agency should aim at reaching a point where its own effortswill be mainly directed towards correlating the minis-

tries' plans, scrutinising them for consistency with each other and with the national plan, and relating them to

the total resources available.

25. Planning development being a co-operative nation-wide activity, both the Central and Provincial

Governments must endeavour to enlist the fullest support and co-operation of the people. The central planning

agency can assist in the following ways :-(a) By donstituting committees representative of business, industrial, and financial institutions, the tech-

nical professions, universities, the co-operative movement, social welfare organisations and the like,

and of eminent individuals in different fields for consultation on different aspects of the national

plan ;

(b) By circulating draft plans and programmes widely among representative organisations and associa-

tions, including the press, for comment ;

(c) By publishing popular versions of the plan, in Urdu and Bengali as well as in English, and making

them available at a low price to encourage wide circulation ; nd

(d) By publishing progress and appraisal reports on the implementation of the plan from time to time.

PROVINCIAL PLANNING ORGANISATIONS

26. Each Province must have an organisation for the co-ordination of planning and development. It is

not essential that these organisations be uniform in the two Provinces. It is essential, however, that they be

properly located in the Provincial Government structure and strong internally in terms of both organisation and

personnel. /J

27 East Pakistan has recently revamped its planning and development organisation. It now consists of

a Planning Board, with the Chief Minister as Chairman, and a Planning Department headed by a Development

Commissioner. The Development Commissioner also serves ex-oflcio as a member of the Planning Board.

We understand that the Planning Board will be primarily responsible for resource assessment, the fixing of priori-

t.ies, and the formulation of co-ordinated plans and programmes within the framework of the national Five Year

Plan. The Planning Department under the Development Commissioner will be pr h r i l y concerned with over-

seeing, co-ordinating, evaluating, and facilitating programme implementation. The previously existing Develop-

ment Board, made up of departmental secretaries with the Chief Secretary serving as Chairman, has see&ngy

been relegated to a consultative and advisory role. It appears that schemes and programmes will go for sanction

directly from the Planning Board to a Cabinet Development Committee.

28. There is nothing inherently illogical about such arrangements, though the name of the Planning De-

partment should probably be changed to avoid confusion in nomenclature. It is yet much too early to tell how

new system will work in practice. Much will depend on the quality of leadership and staff.



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29. In West Pakistan, the designated co-ordinating agency for development schemes and programmes is ,

the Department of Development and Irrigation, headed-_-----y a Secretary. There is also a Development Com-mittee, ~nSi3ingofih~secretariest 2Fpro.lincial -bepartmats except Home and Law, and a Development

Council consisting of the Ministers representing the Provincial Government on the National Economic Council,

including the Chief Minister. The Development Council is the_--!cheme-sanc6oning authority ; chemes put

up to it are supposed previously to have cleared the secretariat department concerned,Th=ce Department,

the development wing of the Department of Development and Irrigation, and the Development Committee.

Tho greatest weakness of this set of arrangements would seem clearly to be the mixture of responsibilities vested_- - - -- --,-/

in the Department of Development and Irrigation. It is, on the one hand, supposed to evaluate and co-ordnateschemes emanating from all other departments, and to produce balanced overall development programmes ;

at the same time, it bears direct administrative responsibility for two of the most important development fields-

viz,, irrigation and electric power. This places it inevitably in a somewhat anomalous position in its dealings

with other departments and must affect significantly their willingness to accept its efforts to achieve balance and

co-ordination. It also places an impossible burden on the Development Secretary, who should be able to de-

vote his full attention to the department's planning and co-ordinating functions. He is compelled at present ta

devote a very large proportion of his time and energies to water and power problems.

30. We recommend, therefore, that if West Pakistan wishes to retain the present type of organisational

arrangements for planning and the co-ordination of development activities, the Development Department should

be made unifunctional-that is, relieved of all administrative responsibility for specific subject-matter fields.~t should be free to concentrate its efforts and energies entirely on the=o_rdinatio_n_pf planning and develop- .ment.

31. The secretary of this department should have a status and authority signifying to all ranks and braaches

of the administration and to the public the overriaing importance of development. The post should carry the

rank of additional Chief Secretary, and the Development Secretary should definitely have a voice in all postings,

transfers, promotions, etc., of provincial officers, so that the needs of development will not be overlooked.

32. A prime weakness of the planning and development organisations of both Provinces up to now has

been lack of technioally qualilied staff. These organisations are different from ordinary secretariat departments

in that their staffs have to consist largely of experts. It will not be easy to Iiuild up such staffs, considering the

nationwide shortage of experienced technical personnel, but a beginning must be made. Among the " experts "

needed will be economists and agricultural economists, statisticians, engineers, and a few specialists in social

problems and education. The provincial statistical oEce should be attached to the planning and development

organisation.

33. The provincial planning and development organisations should maintain the closest relations with the

central planning agency, and should act as the economic staffs of the Provincial Governments. Subject to neces-

sary modifications, their planning duties in relation to the Provinces would be basically similar to those of the

central planning agency in relation to the Central Government.

34. The initial formulation of development schemes and programmes must remain the responsibility of

the operating departments. Each such department should therefore build a-

mall planning staff defkitelyset apart for this purpose.

Vfflage AID35. While it is not in principle desirable to assign any direct opetatting responsibilities to a Planning or De-- _-- - - -- .

velopm6nt Department since such an arrangement would interfere with its essentially neutral " taff" functions,

an exception may be warranted in the case of the Village AID programme, in view of the fact that it is a co-ordinc

tion programme in itself and cuts across departmental frontiers. It must therefore itself be in a neutral position

a& wtW n a t e d by any one department. fn ts earlier years at least, Village AID has to face seriousproblems



Jof departmental adjustment and co-ordination. Moreover, it is multi-purpose in character and is aimed to

effect a synthesis of all mral development and welfare programs. It is therefore particularly fitted for being

placed in a neutral position. We accordingly recommend that administrative responsibility for the Village AXD

programme should vest in the Planning or Development Department. This can best be done by appo hing the

Director of Village AID as Deputy Development Commissioner with the status of Joint Secretary in that capacity.

By this means it will be possible to ensure day-to-day co-ordination between policy and execution in an activity

which is a representative cross-section of the whole field of planned development, ana from which many lessons

likely to be useful in other spheres can be learned.

PUBLIC CORPORATIONS AND AUTHORITIES

36. There has been everywhere evident in recent years a tendency in favour of employhg semi-autono-

mous statutory public corporations for special tasks. While the use of the corporate device is certainly no pana-

cea for administrative or other problems, it may have definite advantages for the management of commercial

under-takings, or where a high degree of co-ordinated management under a multi-purpose authority is needed,

as for example in the development of water and power resources.

Gdvemmental 'control

37. The Government cannot divest itself of responsibility for such corporations and authorities ; he mainproblem is how to exercise control sufficient to ensure public accountability and conformity with public policies,

without affecting the operational flexibility essential to successful business management. In general, the re-

lationship between the statutory bodies and the Government should be established on the analogy of that between

the management of a joint-stock company and the general body of its sh'areholders, the responsibilities of the

shareholders being interpreted in an active sense and in their fullest scope. The Minister should have the

power :

(a) To appoint the Chairman and key officersat the top, as well as Directors, except to the extent they are

elected ;

(b) TO give general directions in matters affecting the national interest and on broad questions of

policy ;

(c) To accord previous approval to al l capital programmes, market borrowings, and allocations of

profits ;

(d ) To appoint auditors ; nd

(e) To call for periodical or special reports, and to order an inquiry into the affairsof a statutory body in

special circumstances.

38. The Legislature should have ah opportunity to discuss the working of a statutory body at @Wof :

(a) Making budget grants, whether original or supplementary ;

(b) Considering the annual accounts ; nd(c) Considering the statutory body's annual report, which should be submitted formally to the Legis-

lature.

39. The Board of Directors should consist of persons selected for their personal qualifications, such as

broad business or administrative experiencs, who are capable of acting independently in their individug capaci-

ties. In order to avoid overlapping of responsibilities, divided loyalties, and extraneous influences, ex-oficio

departmental representatives, ministers, members of the legislature, representatives of interests and persons

having an interest in m y connectea business should be excluded. We recognise that, due to the paucity of.elig.i-

ble men, he condition concerning ex-omio departmental representatives and personshavia6 ;tnm t n any



comechi business may be d i B d t to fulfil. It must, however, be kept as a goal, and exceptions should be made

only in unavoidable circumstances. The Government would be well advised to consider the organisation of. a

s m ~ ~f specially qua1m6d and trained men who would specialise in business management and act ..as

directors in the various concerns in which the Government are interested. The number and.the operational fields

of such concerns will extend as the economic programme expands, and the Government may consequently find

it increasingly difficult to arrange for a satisfactory discharge of its responsibilities for the efficient management

of such concerns. The development of a special body of experts q&ed in business management, some of---- ---.- -.---

them specialising in particular branches, is therefore deserving of consideration.

40. Boards of Directors generally operate in one of two ways :either (a) as policy boards, consisting mostly

of part-time members dealing collectively with the business of the statutory body, mostly in the sphere of policy ;

or (b) as functional boards, consisting of whole-time members, who individually take executive charge of parti-

cuIar branches of the business. R

J41. Subject to availability, whole-time directors should be appointed in preference to part-time ones. In

the case of f unc t iona l lds , all directors have to be whole-time ; ut even in the case of policy boards there

should be a suitable proportion of whole-time directors. The chairman or managing director in either case must

be whole-time. The salaries of directors, especially those working whole-time, shoula be high enough to attract

the best qualified persons from different walks of life. Their initial tenure should be from three to five years.Their appointments should be phased--- o-s -o p u r e continuity of policy and administration.

--

42. The internal management of statutory bodies should be left entirely in the hands of their Boards of

Directors. Government intervention is warranted only when a Board of Directors fail to function properly and

efficiently. The Government are responsible for ensuring that abuse and maladministration do not occur, and

that the operations of the corporation are in conformity with approved policies and programmes. The cor-

poration will fail if the Government neglect to exercise the necessary supervision, or allow unwarranted inter-

ference by their own officials in its working. The powers which we have suggested for retention by the Govern-

ment are adequate to enable them to carry out their responsibilities, but their full exercise without overstepp-

ing the limitswill be a matter for constant watchfulness and careful judgment.

RE-ORGANISATION OF DISTRICT ADMINISTRATION

43. The basic geographical unit of administration in Pakistan is the revenue district, and the district officer

is the Government's principal representative in his area in the eyes of the people, not only because he embodies

in himself the Government's authority in the spheres of law and order, and revenue, but also because he is re-

garded as generally responsible for the people's well-being. It is through him that the Government maintains

contacts with the people. His effectiveness began to decline long before Independence, but he still enjoys a great

deal of prestige and authority. He is directly or indirectly connected with all activities of government in his dis-

trict, and is available to all departments of the Government. One of his principal responsibilities, besides law

and order and revenue, is the supervision, and at times administration, of local self-government institutions.He is the most important link in the long official chain stretching from the villager to the Central Cabinet. The

institution of district officer is important from the point of view of unity of administration, public relations, and

local self-government, and has large potentialities in the realm of development. The district officer must conti-

nue to perform his important traditional functions, but he must also increasingly reflect the role of responsibility

for the welfare of the people which the Government has assumed.

44. Barring a few outstanding exceptions, there has been a noticeable detaicration in the quality of district

personnel in recent years, owing to the general shortage of mature and experienced administrators, made-more

acute by withdrawals to the secretariat. There have been too frequent transfers of district officers, with con-

sequent lack of continuity of administration.



102

45. A tendency has been growing to b ring the district officer less and less into development planning, as a

result of development departments becoming more and more independen t and conscious of their own impor

tance. It is only when the district officer's in terven tion becomes unavoidab le th at he is approach ed. The effec

tiveness of district officers and th e unity of district adm inistration have been impaired by the growing size and

importance of individual departments, each anxious to emphasise its own entity.

46, I t s imperative to m ake full use of the district officer as the chief agent of the Government inits relation

with the people. The activities ofa l l

development depa rtments need to be co-ordinated to achieve the desiredresults. Co-ordination at provincial headquarters can be effective only if it leads t o co-ordination a t the field

level. The first step to be taken in this direction is to suppo rt the district officer by relieving him of form al and

routine functions. He should be able to function as the head of district administration 'with n overall respon

sibility extending to the entire area of the relations of the Governm ent with the people. In some districts ad

ditional district magistrates and revenue assistants are a recognised part of the district machinery. This should

become a universal practice. In the larger districts, in addition to these officers, the appointm ent of an addim

tiopal depu ty comm issioner or additional collector who can share the district officer's general responsibilit

may also be warranted.

47. On the positive side it is necessary to invest the district officer with a measure of author ity over th

units of the various development departments in his district. We suggest that the various anits, while remainingfully unde rthe administrative and technical control of their respective departments, should be placed under som

sor t of supervisory contro l of the district officer. This arrangeme& would not undermine or curtail the author ity

of individual departments, bu t would ensure the active prom otion and successful fulfilment of their respectiv

programm es as a unified whole for the maximum benefit of the people. Thus, in service matters, e.g., recruit

ment, posting, transfer, prom otion, and leave, the officers serving in these units would remain under their own

departments. The district officer should, however, be consulted before any orders are passed, at least in regard

to gazetted officers. Siliailarly in technical matters-such as work techniques and program me approval-tha

officers would remain under their own departments. The district officer would be responsible for directing

assisting and supervising them to the extent necessary for implem enting the sanc tioned programm es accordin

t o schedule. He should also be required to record in the annual confidentialrepor ts of gazetted officers of deve

lopm ent departments his opinion a s to their efficiency in implementing programmes.

48. The adm inistrative pattern we are suggesting would not be easy to realise, but it can be achieved b

a consistent effort over a period of years, as officers acqu ire experience and understandin g grows. Fo r som

years itwill probably be difficult to find experienced officers in a ll cases, either as dis trict officers or a s their assis

tants. But above all, a high degree of understanding and co-ordination is needed among the various departmen

operating in the district for the welfare of the people. Much will depend on the man ner in which the distri

officer acquits himself in using his authority. His duty will be to provide leadership, guidance and help, instea

of imposing authority in an arbitrary manner.

villageAm

49. One of the principal concerns of the district officer in the development fields will be th e Village AIDprogramme. Organisationalarrangements or implementing this programm e have been suggested in the Chapte

o n V illageAIDand Rural Development. It will be necessary to link them in with the rest of the district offimr

development co-ordination activities. I n fact, they can very well serve as the basic framework. In particulathe advisory bodies a t different levels suggested for the Village AID programm e can be useful as agencies fo

general development co-ordination.

BisMct der~lopmeatoffiwr

50. For the due performance of the development co-ordination functions described above, the distri

&eer should have a whole-time assistant in addition to the-officers suggested in paragraph 46. This assista



. l o 3

should be designated District Development (Micer, should have the status of an additional district magistrate

should no t be recruited from any particular service, and should b e chosen by virtue of special qualifications an d

aopmen work.

Divisional commissioners

51. The divisional commissioner is intended to exercise wide powers of supervision an d control oye

the working of all departments in his division. H e will thus perform co-ordinating functions a

a higher level and over a larger geographical area. This is likely to strengthen district adm inistration in thperformance of its development functions, besides contributing towards the translation of provincial plans int

regional ones, into which district plans can be fitted. The implication s of this new arrang ement will be reveale

fully in the course of time, but there seems no do ubt tha t it will tend t o strengthen district administration, an

help in establishing and m aintaining he relations of the administration with the people on a basis of understandin

an d co-operation.

Inculcating a development bias

52. Ahigh degree of development-mindedness is obviously essential to the success of a planned developmen\ _ _ _

programme. Consciousness of the urgency and impo&nce of the goals sought must permeate the nationa

mentality and especially the m inds of governm ent officials at all levels.

53. In order to enhance development-mindedness a t the divisional and district levels, divisional commisR sioners and their key assistants, and district officers and their principal assistants, should be brought frequ entl

into special institutes, conferences and short courses on development subjects and problems. The projected

Village-AID academ ies shou ld be particu larly useful for Chis purpose. More effort should also be mad e t o

create a dev dopment bias in its trainees by the Civil Service Academy in Lahore.-

Decentralisation of planning /

54. At present there is a tendency for plans of development to be prepared a t the Provincial and Centra

headquarters, and nearly all decisions are taken a t these levels, especially a t the latter. We consider tha t the

Government should visualise n active process of decentralisation. Instead of being prepa red and imposedL/a

from above, programmes, m particular .n the sphere of rural development, should originate in the villages and2 ---.

proceed upward, so that their 'aggregate represents the needs, aspirations, and t h i n w g of the p eo p le .J v er ----centralised direction of planning is inconsistent with the requirements of a demo cratic society. Planning in a

free society must be based on a general consciousness of social purpose, so th at th e people treat the p lan a s thei

own, intended for their benefit. T hey should be able t o have a sense of participation, an d t o extend their fu

support an d co-operation in its fulfilment. Without th e whole-hearted participation of the people, the deve

lopment programme will not achieve its full proportions; progress will be slow ; nd its benefitswill remain ope

to question.

1 55. It should be one of the primary functions of district administration to promote the participation oi/ villagers in the process of planning. Their wishes and aspirations should have increasing f l u e & An ogporl '!

I 1 tunity has.been provided by the Village AID programme. Progress in &is direction shou ld be mad e rapidl

)/ so a s to enable the Government to m ake subsequent plans on this secure foundatio n

/LOCAL SELF-GOVERNMENT

56. The local self-governing bodies tha t Pakistan has inherited from undivided India did n ot grow spon

taneously out of the public life of the sub-continent. They were grafted u pon ce rtain early executive experi

ments performed by district officers in building u p c ivic amenities with officially enlisted help. Th e legislatio

\/that brought them into existence was, therefo_re,-based-upon he assumption that they w o u l d , n d cg oo d deal o

- -- ---/_ _

__.- ---

\



J104

officialcontrol and 'guidance. It @oVided for far-reaching executive controls directed to efficiency,and the prin-

cipal objective was to make progress in the provision of local amenities-roads, schools, dispensaries, waterworks,

sewerage systems, etc. The result was that, so long as the officialchairman and nominated members managed

the affairs of local bodies, a considerable amount of useful work was done. But when, partly under the pressure

of the growing p o p p demand and partly owing to the increased pre-occupation of the district authorities %th

other duties, offigal pagiiipation was withdrawn, local bodies fo-~dduxnselyesunprepared to shoulder the

tasks of dt7iC management, grown to large proportions ini3fie context of the social and e c o n o a progress'that

had b ocin tEie meantime. The unfortunate thing was that with the withdrawal of officialparticipa-tion, there was a rapid relaxation of officialsupervision as well. Instead of constructive guidance, recourse was

freely taken, on the one hand, to supersession, and, on the other, to withdrawal of functions. These trends,

which characterised the administration of local self-government for some years before Independence have conti-

nued in Pakistan. We feel strongly that the need for developing local self-governing institutions should be reco-

gnised by both the Federal and Provincial Governments in clear and unequivocal terms. The tendency, which

is all too apparent, of curtailing the scope of the functions of local bodies should be effectively checked. The exten-

sion of bureaucratic control will- tend to kill initiative, inhibit leadership, and prevent self-help enterprise among---men and w o m e ~ o v e rhe country. We have noticed a trend to transfer educational,h5aTth, and animal hus-

b ~ a n i i ~ t i ~ o r i ~ f i o o mocal bodies to direct government management. Even if government departments are

able to operate them more efficiently, his would be little compensation for the resultant set-back to the develop-

ment of democratic values in our society. The approach must be one of guiding and helping the local bodies

so as to make them effective instruments of administrative and social progress, and not one of curtailing their

scope and crippling them for the sake of efficiency.

57. The lack of confidence in local bodies displayed by the Provincial Governments in frequently super-

seding them and in withdrawing functions from them shakes their self-confidence as well as public confidence

in them. This is a blow to the progress of democracy which must be avoided even at some temporary cost in

administrative efficiency. The only circumstance which justifies such extreme steps must be continuing malad-

ministration, for which the representatives of the Government cannot disclaim responsibility. District officers

and 'commissioners possess powers which should enable them to intervene when signs of abuse and mal-

hhmfniskation &it appear, without waiting until a serious situation develops. They can issue directives and set

aside'decisions which involve palpable injustices or clear abuse of power. Prompt exercise of these prerogatives,

in lieu of supersession or withdrawal of functions, would constitute a salutary check on the administration of

local bod&b, and render supersession or withdrawal of functions largely unnecessary.

d

58. The working of local self-governing bodies, especially in regard to finance and the conditions of service

of their employees, should be made the subject matter of an inquiry, the object of which should be to suggest

measures for improvement. Mal-administration is due to two m@ causes : elatively low standards with regard

to ~e qualifications, training, and experience of the holders of key posts ;and interference by the members in

,/day-to-day administration, frequently motivated by personal or factional considerations. The Provincial

Governments should help the local bodies to develop properly qualified provincial cadres of such officersas sec-

retaries or executive ofilcers, municipal engineers, public health officers, assessors of properties, accounts officers

surd the like. Another measure which would heIp would be to define the powers of such key officers, which would

tend to discourage interference by the members in matters which should not concerb them. The members would

en have less excuse for not devoting themselves to policies and programmes and their implementation, and to ."ie prevention of abuse and mal-administration. It can be hoped that they would also concern themselves

morewith the due and punctual fiWment of the duties assigned to the officers. We believe that by such measures

favourable conditions would be introduced for the development of local self-governing institutions in the

country.

39. There txre ath~r?edusts~&o hich contribute to the inefficiencyof the institutions run by local bodies,

as iosd+uacy of funds and the Mure of goveniment departments to treatthe institiztions of local bodiesu--_---



on a basis of equality in the distribution of limited supplies of drugs and equipment. This is due to the failure to

recognise that the institutions of local bodies are entitled to be treated in the same way as government school.

and dispensaries.\ /

60. It is necessary to develop the financial iesoutces of local bodies to enable them to perform their function

effectively. This could be achieved in part at least by improvements in the machinerjl for assessment and collec

tion of taxes, particularly property taxes. In the Chapter on Public Saving, we make recommendations for &e

development of property taxes, which should form an important and growing source of revenue for local bodies

The formation of a properly quaNed cadre of property tax officers, which we have proposed in para. 58 aboveis a necessary condition for the proper assessment and collection of such taxes.

61. We have ea~lier mphasised the need for establishing a separate department in each Provincial Swre-

tariat for dealing with the subject of local self-government. We further suggest the following measures for estab-

lisding closer cosperation between the Governments and local bodies :

(a ) District officersand district heads of development departments should revive the practice of frequently

/ nspecting the local bodies' institutions and works, and en d inspection -----..otes to the- local bodies for-I-- _-the@id,ance. This should also be done at the sub-divisional level.

(b) While reviewing the local bodies' budgets, the district officer should invite the comments of the dove.

lopment departments, in order to ensure that the budget proposals fit in with general policie and

programmes.

(c) The local bodies should be represented on the development advisory bodies to be-set up in the dishids

at different levels. This is particularly important in the sphere of village AID.\ T,,

(d) Provincial Governments should utilise to the maximum extent the agency oflocal bodies for im*

meriting their social service programmes, such as primary and secondary schools, public health sche-

mes, rural dispensaries, veterinary centres, urban community development centres, and institutes

for the handicapped.

62. It should be clearly recognised that local self-governing bodies are an important aqd essential p m of theadministrative structure of a democratic society and deserve to be supported to the fullest extent.

Rural self-government I

63. The only self-governing bodies for villages are Union Boards in East Pakistan, which on the average

serve groups of about----- ten to fifteen villages, and village pancjayats in the former Pupjab. The former, though

they have some useful work to their credit in providing certain elementary rural amenities, do not reach down

to the individual village, and have also shown signs of deterioration in recent years. The latter have been mostly

preoccupied with the judicial functions entrusted to them. The revival of the andent institution-. of---illage ~~~:chya t s should be one of the principal tasks of the proposed department of ~ b c a lelf-Governme>tin the bE

vinciaJ'f4ecreEatof-.West Pakista_n,It will be necyssary to revise the legislation concerning them, so as to utiliseI-i 4

them as-=~Itl-~urpose rganisations for executive, judicd, and development purposes. In the early stages,

they can be made responsible in the field of development for smaller tasks like sanitation, village roads, drainage,

community buildings, and drinking water. As they gain experience, 3ey should take upon themselves largrr

responsibilites, like framing h a g e development programmes, preparing budgets, assisting in land improvement

and land reform, and implementing schemes of development. /'1

64. We attach the greatest importance to the development of village self~government. The qatiop livqs

mainly in villages, and the people there must learn to deal with their problems in cosperation. Along wi*

co-operatives, village pcsnchayats provide the institutional framework for self-help and the organised fwtion-

ing of social and economic life in a democratic context. We think that the VillageAID prograqe win not make

a full'-and~ a ~ t i n ~ ~ & $ r ~ o ~ ~ e ~ ~ < i l l a g e ~ a ~ & ~ a n do-operative societies are developed to take over and

continue the work initiated by it. We also recommend at, after sufficient experience has been gained in the2cstab&bent of acal institutions, the setting up of rural municipalities for groups ~fv#bges may be c o w

- ,



65. A sound budget! system is indispensable to good development administration. It can assure a wise

allocation of resources among alternative demands, keep expenditures within resources, and follow execution

to see that proposed plans ind programmes are actually carried out faithfully. Budgeting involves not only

the negative function of control ; properly used, it becomes the instrument by which and through which nationa

objectives can be achieved. A good budget staff is not ody expected to be alert to the consequences of over-

expenditure ; it should be equally concerned with the effective implementation of approved work programmes.

66. At present, multiple checks are employed to assure control within available finances, and to curb ex.

penditure irregularities, both of which are essential objectives. But they tend to operate as obstructions to de-

velopment progress. The system of expenditure sanction following budget allotments, and additional clea-

rances required in certain cases before actual expenditure, have some justification, but the needs of the develop

merit programme require that they should be modified. These procedural requirements tend to retard the pro-

gramme at great cost, which is real even if invisible. Delays in the progress of programmes are far more costly in

material and moral values than the possible additional expenditure which would be caused temporarily by large

delegations of authority. The present system places excessive confidence in the efficiency of control at the top

level; and by agencies above and outside those responsible for programme implementation. Thereis urgent

need for giving recognition to the sound management principle that respect for financial considerations, to be

effective,must be injected at every significant level of administration in any organisation responsible for expend-ing public funds.

67. The system of requiring a f d e r sanction before actual commitment or expenditure of budgeted

funds has the following results :-

(a) It tends to reduce the integrity of the annual budget ; he ad hoe judgements implicit in the operation

of the sanction procedure negate the careful planning that presumbly enters into the construction

of the original budget ; requently it leads to the sanctioning of expenditures for schemes which have

not matured ;

(b) It tends to substitute bargaining and haggling in the sanctioning process for rational consideration

of the relative merit of programmes at the time of budget formulation ;

(c) The time lags incident to negotiating sanctions often throw projects out of phase. For example,

sanction often bears no relationship to building seasons, causing substantial time losses and deteriora-

tion of materials. This applies with special force in East Pakistan, where the working season is very

short ;

(d ) Whatever the principles embodied in the rules, the responsibility for achieving the objectives of finan-

cial control and regularity comes to be regarded as residing in the Ministry of Finance and its agen-

cies. This creates only an illusion of tight control. It cannot constitute effective control, because the

point of decision on details is removed by long hierachical and usually long geographical distances

from the point of expenditure. This results in a shifting of responsibility from the man who should

really be accountable to someone usually hidden in anonymity in the central staff ; nd

(e) It creates large amounts of barren paper work, particularly in the Ministry of Finance.

68. With limited resources and large developmental and other needs, the budget system has to be tough

in its review. Every demand must be subjected to the most throughgoing and critical evaluation before being

included in the budget. There should be no automatic or easy route for any budget request no matter how long

the expenditure or what its historical precedent. The time to be tough and thorough is in the period

when the budget is being formulated. The appropriations resulting from the annual budgt process should then

serve as the authoritative basis for programmes and policies in the ensuing year. The budget should be regarded

and utilised as the greatest single conlxol instrument in the entire financial system. Accordingly, it should

not be diluted either by faulty or indifferent estimating, or by extensive subsequent adjustments. Insistence on



subsequent sanction processes tends to impair the authority of the budget. The most crucial decision in th

process of financial control is not the bargaining over specific amounts needed for a project, but the basic de

cision whether to undertake a proposed activity as a government programme by including it in thebudget. Thi

means that both the practice of including mmature schemesin the demands for grants and that of inserting item

for which there is no real intention of granting sanction should be stopped. All factors and information rele

vant to budget examination should be available at the time. of budget formulation, and final decisions should b

made at that time. The Ministry of Finance should insist that all requisite information be submitted promptl

in order to allow adequate time for consideration and should refuse to accept immature schemes " n principle .If the original data are inadequate, it is not possible to judge the wisdom of the proposed expenditure in the &sinstance ; and it is never sound to include an item in the budget till the cost-benefit ratio has been exhaustiva

explored.

69 . While it is true that! central controls have tended to retard the progress of programmes, it is equall

true that the development ministries and departments have not always demonstrated competence in estimatin

expenses and in appraising their activities in cost terms. Frequently they are not adequately staffed fo

this purpose. Under the current procedures, there has been little incentive for them to assume a higher sense o

fiscal responsibility, nor have they been furnished with the necessary tools. The situation has some of fi

characteristics of'the proverbial vicious circle. Because of the weakness of budget estimates submitted by th

ministries and departments, the Finance Ministry has thought it necessary to probe ever deeper into the detai

of estimate, and to rely on the sanction procedure as a-further check on expenditure. As a result, operating

agencies have felt less rather than more responsibility. Anything which is approved by the Finance Ministry i

accepted as sound ; he skill lies in obtaining that ministry's approval. The resull must be exaggerated demand

from the ministries and indiscriminate budget cutting by the Ministry of Finance, with bargaining and hagglin

substituted for the sober' consideration of proposals. The remedy is two-fold. First, as discussed elsewher

the ministries and departments must be provided with improved and strengthened staffs which will see that

better job of budgeting is done. The Finance Ministry should offer its assistance in the upgrading of this work

Secondly, the Finance Ministry must foster a deeper sense of fiscal responsibility in the operating agencies by

insisting on higher standards of budgeting: Instead of simply cutting budgets arbitrarily, which is always easy

' it should try to achieve a partnership with those responsible for programmes, in determining how and where

reductions must be made. The two pafties must achieve a relationship of complete and open frankness abou

the realities of programme needs, instead of dealing with each other at arm's length. Good budgeting is possiblonly with co-operation between the budget control agency and those responsible for operations.

70. The question of how existing operations can be carried out at minimum cost can be answered besat the lowest responsible level concerned with a particular operation. Any other judgment is second bes

and is bound to involve factors beyond the scope of the operator. This by no means minhises the need

for review and controls at successive levels above the operator. But such controls must be in increasingly broad

terms as higher levels of supervision are reached. As has been said previously, financial control is successfu

in achieving its purpose only if financial responsibility is built into operations at al! levels. The principal cure

for this situation is to strengthen the facilities for budgeting and accounting in both ministries and departments

There should be a responsible officer with adequate training in financial control in each ministry and in each

major department. He should be responsible to his senior officers in his ministry rather than being an office

of the Ministry of Finance. This will keep loyalties and the lines of responsbility clear. A hancial adviser

attached to a ministry or department fulHs a different purpose. The objective shouldbe the gradual eM a t i o n

of fi e expenditure sanction procedure and greater reliance on Ihe annual budget process, supplemented by a

periodical allotment system for controlling the rate of expenditure during the year. This will take some h e o

achieve. In the meantime, everything possible should be done to achieve improved control and greater opera-

flexibility within the executive ministries. Assurance of economy in administration is not merely a m a ~ e rf

records and sanctions before expenditure ; t is also and fundamentally a state of mind, and awae-

ness on the part of all elements in the administrative process of the need for saving every rupee possible.

esponsibility of watching rupees and annas is much too great for the small sta@ of the hfbistries d F



They must e&st the full co-operation of, and inculcate a greater economy consciousness in the people who

are actually performing services and spending money. They alone can erect effective safeguards against ex-

travagance. All this means that administrators responsible for expenditure control'rnust take a personal in-

terest in the subject, and consider themselves personally accountable for observing prescribed rules as well as

budget limits. They should not consider accounting and budgetary matters as something warranting ~e atten..

tion only of their clerks. It is not necessary for an administrator to be a trained accountant to understand

financial realities. What is required is a deep sense of public trust and a willingness to devote some personal

time to the budget control function.

71. Practically every report on administration in the sub-continent prepared during the last ten years hasweated the subject of delegations of financial powers. The Tottenham Report of 1946, the Ayyangar Report

of 1949, the Gonvala Report of 1951, the Appleby and Egger Reports of 1953, and to some extent the Adminis-

trative Enquiry Committee's 1953 Report, all urge that the ministries be permitted to exercise greater financial

powers. The delegations of authority contained in the Book of Financial Powers need to be reviewed. Thepower of re-appropriation and transfer between items within demands has already been broadly delegated

to the several ministries. It is also understood that the Ministry of Finance has now raised the general delegations

to pre-partition levels. This is all to the good, but these delegations need to go much further. The goal should

be the elimination of all or most of he restrictions calling for clearance by categories of expense. While thesedelegations may have to be progressive, the objective should be the virtual elimination of the authorisation pro-

cedure, with reliance for detailed financial control placed'on some kind of a quarterly allotment procedure whichwould regulate the rate of expenditure through the year. The system of account keeping in the ministries as

well as in the accounts offices will have to be improved considerably to achieve this objective.

REVIEW AND ADJUSTMENT OF: ORGANISATION AND PROCEDURE

72. ~t must be recognised that change and adjustment will be periodically necessary to meet shifts in thecontents of programmes, and to take advantage of more efficientprocedures and time saving techniques

Governmental management is not a static thing ;dynamic public administration calls for a readiness to adapt

organisations and.procedures to new conditions and therefore requires the existence of a permanent machinery

to folIow through on essential changes. Good management needs budgetary and financial controls, but they

do not dispense with the need for a continuous improvement of the operating and administrative machinery ofgovernment.

73 . TO achieve this requires, at both Central and Provincial levels, specialised staffs, devoting sustained

grid expert attention to the board problems of structure, functional assignments, management methods, and

work procedures. One of the principal reasons why many proposals and ideas for improvement have not beenadopted and vigorously pursued is that there are only inadequate institutionalised facilities manned by corn-

petent men specialising in administrative management in the Centre and Provinces to give continuous drive to

this work. An Organisation and Methods Unit has been created in the Establishment Division of the Cabinet

Secretariat and nuclei for such units exist elsewhere. They have undertaken some studies leading to recommen-dations concerning the receipt and issue functions in various ministries as well as some other procedural sub-

jects. Progress has been slow partly for lack of trained personnel available for this work. More serious is thefact that the mission of 0 & M units has been relatively narrowly restricted and in practice concerned with sub-

iects on the periphery of administrative management. The work has suffered from the inadequate strength and

status of the existing 0 and M Organisation. What is needed is a greatly strengthened unit which is directedto function in the whole field of government organisation, administrative management and basic operating pro-

cedures. The proper'assignment of functions, the divisjon of work between Centre and Provinces, and thestreamlining of administrative procedure should all be the subjects of intensive and continuous study and in-

vestigation. To this end we recommend that there be created a new Division of Organisation and Management

at .the Centre. We further recommend that the Provinces follow suit, as they are equally in need of such manage-

ment services.



74. There would be advantages in having this new Division of Organisation and.Management located i

the Ministry of Finance where it can operate in association with and as a complementary activity to the pro

cesses of financial review and control. This Ministry is the.central control arm of the Government ; xtensio

of its scope to cover the fie2d of organisation and procedures is a natural and functionally sound developmen

Furthermore, the Ministry has an obligation to promote administrative methods that will lead to economy. Th

location of this' new Division in Finance would produce two reciprocal benefits. First, the broad approach an

general administrative interest of this unit would operate to raise the management and administrative outloo

of the financial review units. The association of the budget control function with the management group wialso lend an element of authority to the function of improving administration. While the recommendation

of the management group should be able to stand on their own merits, they will gain in authority from associa

tion with budgetary and financial powers. On the other hand, transfer to the Ministry of Finance might giv

rise to difliculties. It could tend to place emphasis on economy rather than efficiency and arouse fears in othe

Departments that the 0 & M Division was a means for forcing arbitrary retrenchment. A final decision on th

location of this Unit should depend partly on the support which it could expect from either the Cabinet Secre

tariat or the Ministry of Finance.

75. Wherever located it should be the broad function of this group to give systematic, extensive, and in

tensive attention to the organisatjonal and administrative problems of government with particular emphasi

on development activities, since it is in this area where present deficiencies can be most harmful. More specfically the Division should :

(a ) Conduct special studies and surveys of the several ministries with a view to rationalising their orga

nisation and functional assignments ;

(b ) Study and make recommendations on all inter-relationships and jurisdictional issues between depart

ments and ministries ;

(c) Conduct government-wide surveys of common administrative and housekeeping services, with a view

to their more efficient performance ;

( d ) Simplify administrative and operating procedures, develop work measurement standards, and mak

studies of work flow and methods in the interest of reducing paper routines and files ; nd-

(e ) Prepare or clear and co-ordinate all orders of Government and administrative regulations dealin

with management and organisational subjects.

76. ?;he long-term task of the new Division should be the rationalisation of the organisation structure

There are; however, immediate requirements at the Centre which should be given the highest urgency in view

of current impediments to development. Some of these are :

(a) Short-cutting secretariat procedures ;

(b ) Working out broader delegations of authority ;

(c) Simplifying fiscal procedures ;

( d ) Studying the public works and procurement functions ; nd

( e ) Simplifying and rationalising the whole field of export and import controls, customs, and currency

control.

This constitutes by no means an exhaustive list of important problems, but these should command priority

attention.

.PUBLIC SERVICE POLICIES AND THEIR ADMINISTRATION

77. Under item ( i v ) of rts Terms of Reference the Planning Board is required to make recommendations fo

changes in the public administration which are necessary to assure the implementation of the National Develo

ment Plan. The Plan is intended to be comprehensive, and will need the participation of all public servants &r&

tly or indirectly in its implementation. The policies of the Government in relation to public services arld~l i,

.



adm inistration are in general of intimate consequence to the successful implementation of development

plans: We v i s d s e planning and development as the most important continuing activity of the Federal and

Provincial Governments; and have therefore thought it necessary to deal with the problems of public services

which are responsible for executing government policies a nd programmes.

78. The Dra ft Five Year Plan made a num ber of specific recommendations on this subject and on the sys-

tems of business employed. These recommendations led to widespread and vigorous discussion. N o concensus

of opinion emerged from this discussion on the steps that should be taken to improve public service policies andsystems of business. In this Fina l version of the Plan we have, therefore, concen trated on an attemp t to identify

problems in these fields and to indicate the general lines on which a solution ca n be found, withou t in some cases

mak ing specific recommendations. W ith further study and discussion of the problems, a more widespread

agreem ent on specific solutions can be achieved which would ensure the effective carrying out of the recom-

mendations tha t emerge.

THE C M L SERVICE OF PAKISTAN AND OTHER NON-TECHMCAL CENTRALSUPERIOR SERVICES

79. The dominant feature of public service policies is the adm inistrative leadership of the Civil Service of

Pakistan, a bod y of general administrators which provides no t only the executive officers in the districts and theheads of sbme of the departm ents, bu t also the policy advisers to the Ce ntral and Provincial Governments. Ori-

ginating in the necessity for a u niform system of law an d order an d revenue administration over the whole of

the India n sub-continent as a symbol of its poJitical unity under B ritish rule, the scope of its comm and extended

gradually with the expansion of the Government's sphere of activities. Bu t its own evolution-the increase

of its cadre strength, the improv emen t of its methods of recruitment, training, posting, and prom otion, and

most important of all, the reorientation of its outlook-has not fully kept pace with the enlargement of

its responsibilities. This disparity has come to the fore since independence, with the emergence of developm ent

as the Government's supreme task.

80. That a perma nent civil service is indispensible to the type of dem ocratic government Pakistan has chosen

does not, in ou r view, admit of serious challenge. In his own domain the administrator is as much an ex pert asthe technician is in his. His proficiency in the dynamics of hum an relations and his gift of objective appraisal

of situations correspond to the special knowledge and skill of the technician; they are no less imp ortan t fo r the

purposes of the community. . Tru e of the higher civil service in any democracy, this applies with greater force

t o th e C ivil Service of Pakistan by v irtue of the background of practical field experience in the districts and de-

partmen ts tha t it brings to the task of policy making in the secretariat.

81. This does no t mean that the technician should not be associated with policy formation o r tha t officers

of the civil service have a monopoly of adm inistrative talent. We have elsewhere emphasised the close inter-

dependence of execution and policy formation. A civil service provides men who have been trained fo r dealing

with general administrative tasks concerned with human relations, money, and organisation, and must have a

,high place in the counsels of Governmen t. If the Civil Service of Pakistan is to occupy its position usefully andeffectively in the new setting, it m ust undergo a series of reforms designed to make it broader-based, numerically

stronger, less entrenched and self-regulating, more varied in talent, deeper in knowledge, and, last but no t least,

wider in ou tlook. I n what follows, the direction of the more imp ortan t of the necessary measures of reform is'

indicated. Thoug h these measures primarily ad dress themselves to the Civil Service of Pakistan, som e of them. app ly, either by implication, or with variations, directly, to the other cadres and classes of the public se&ce.

82. Besides the C ivil Service of Pakistan, there are a numb er of C entral Superior Services o f a g eneral and

non-technical character, such as Aud it and Accounts, Customs etc., w hich are separated from the Civil Service

of Pakistan an d from each other , ach having its own scales of pay and prospects of prom otion. Their com-

plete separation from each other is artificial for several reasons. IGn the &st place, recruitment to them is ma de



through a combined competitive examination requiring a similar educational background. In the second place

the work involved in the various services is equally non-technical in the sense that i t does not, require academic

qualifications of a technical kind, such as those necessary in the case of, say, doctors and engineers. Training

is given to the recruits after entry into service, mostly on-the-job ; and they learn their work as they go along.

From the point of view of general education and educability, apart from special personal aptitudes, all successful

candidates are prima facie equally suitable for all services. In the third place, several accidental factors affect

their assignment to one service or another, like their relative positions in order of merit, their personal options,

the ranking of the services inter se, the number of posts to be filled in the various services in particular yearsand provincial and communal quotas. The combination of these factors can easily result in wrong selection

from the point of view of temperamental suita5ility. In the fourth place, the ranking of the services inter se is

open to question. Whatever the facts of administrative history behind it, this ranking does not seem to have

much justification for its continuance. There is nothing inherent in the subjects handled by the respective ser-

vices which makes any service superior to those ranked below it. Mere volume or diversity is not a correct criter-

ion. Again, if any posts or any kinds of work in any of the services call for differential emoluments, this should

not confer a higher status upon the service as a whole.

83. The extent to which these different services can rapidly become branches of a single service for pur-poses of recrriitment, training, transfer and promotion is debatable. The conscious trend, however, should be

in this direction. This will permit greater pooling and more efficient use of administrative resources, decreaseclass-consciousness, jealousies and conflicts, and encourage maximum utilisation of talents in accordance

with aptitudes and individual preferences.

84. Senior posts requiring all-round experience and proficiency, posts involving administrative leader-

ship or high level co-ordination, such as those at present generally occupied by senior members of the Civil

Service of Pakistan, should be open to all members of other services with the required ability.

Recruitment and training

85. In recruitment and training a number of steps could be taken towards the objective of reducing the

barrier between services and improving their effectiveness.86. The present competitive examination should be retajned, but uniform maximum and minimum age

limits should be prescribed for all the services. These limits at present are different for the CSP and other ser-

vices. In the course of doing so, the question of widening the age range, and especially of raising the maximum

limit, may be considered. A proposal has occasionally been made for relaxing the provision prescribing a uni-

versity degree. This is premature in the present conditions of Pakistaq, and will create more problems than it

will solve. The results of the examination and interviews should increasingly be supplemented by modern me-

thqEJs characterised by various tests and measurements to judge the suitability of candidates for the careers for

which they are being recruited. The possibilities of holding one joint examination not only for general ser-

vices cehtralised by the Federal Government but for all such services including those centralised by the Provincial

Governments should be explored. It would bring about a welcome saving of time, effort, and expense without

prejudicing the requirements of any government service.

87. If it could be arranged to give all selected candidates a joint initial course at the Civil Service Academy,

this would also tend to break down barriers between the services.. This course would cover those general subjects

which are required for members of all of the services. It would give a comprehensive background of the entire

range of activities of the service in an integrated manner, and not try to impart intensive instruction on

the activities of any particular branch. The course should include the principles and methods of public ad-

ministratian, with special emphasis on planning and' development and social welfare activities, and liberal ins-

truction in the social sciences'necessary for the new type of administrator, including economics, sociology, social

psychology, and political science. These disciplines largely impinge on each other, and it should be possible



to evolve a combined course comprising a synthesis of their essentials instead of giving piecemeal instruction inthem, except perhaps for economics, which in view of its special importance should be taught as a separate sub

ject. A possible addition of a useful nature is some practical work in the field, such as taking part in the eco n ( n

and social surveys.

88. This training could not only prepare the trainees for the new civil services but also be used to help

.determine their suitability for the different branches of the service. In course of time, when specialist staff is

available for this purpose, there could in addition be regular observation and recording of the intellectual and

emotional traits of the candidates 'supported by aptitude tests performed from time to time.

89. ' A decision on assignment of an individual to the service or branch for which he is most suitable could

then be deferred till completion of the joint course when the results of the three operations-the entrance exa

mination, observation, and aptitude tests-would be available these results could then be placed before a selec

tion board consisting of very senior officers, each representing a branch of the combined civil service, and a mem

ber of the Federal Public Service Commission. The selection board would recommend the assignment of the

probationers to the various branches of the service, and as a rule its recommendations should be accepted by the

appointing authorities.

90. We would suggest that the present periodic confidential reports, which tend to be subjective, over

simplified, and often superficial, be supplemented by a modern performance rating system. Performance rating*

reports 'should be available at periodic intervals. These would help not only in the determination of advance

ment but also of transfers between various branches or services.

91. I t is not proposed as a matter of practice that officers be frequently shifted from one branch or service

to another. What is desirable is that barriers between services be loosened, that transfers where desirable be

made easier and more frequent. Individuals should not be fixed, irrevocably for all practical purposes, in

one service, largely because of their performance on an examination which they may have taken years ago. A

number of civil services throughout the world have no service barriers whatsoever to prevent shifts from one

type of position to another. Shifts are restricted only by ability, experience and other qualifications required

to fill a particular position. This is the eventual objective we should aim for. The steps discussed above .areamong those which can be taken to move in this direction. Others may also be considered. It is obviou

that no stigma should be attached to transfers and that any classification of services into those inherently super-

ior and inferior must be eliminated, if transfers are to be possible.

92. The above suggestions would require the equalisation of grades and prospects of promotion as between

the various branches or services. Comparable positions in the various services or branches should have com-

parable prestige, salaries and prospects.

93. Annual increments and promotions to higher grades in the ordinary course in accordance with senio-rity and normal performances are undoubtedly indispensable as a general incentive, and in order to meet the

gradually increasing financial needs of the officers as they advance in years. But promotions after a certain

stage, and to posts carrying special responsibilities, emoluments, and further openings should invariably be onthe basis of merit, judged by a performance rating system, and not merely by the superficial impressions recorded

in confidential reports. Seniority should also receive consideration, but only as a secondary factor.

94. The general advantage of the closer integration proposed above will be twofold. On the one hand, there

mill be an increase in the supply of general administrators with a broad sweep of the field of public adminis-

tration, and integrated outlook, and a common esprit de corps. In view of the ever increasing tasks of develop-

ment, which are covering more and more fields'of public administration, there will be need in the years to come

for a larger supply'than is at present available of administrators who can take charge of development adminis-

tration as a whole, and provide the necessary leadership, co-ordination, and motivation. On the other handwithin the framework of this liberal administrative culture, there will be increased opportunities of specialisation



in different sectors of public administration in harmony with innate talents and individual aptitudes. Because , :

the two classes of administrators-the generalists and the specialists-will no longer be members of clearly separate

and distinct fraternities the chances of friction between them, which generally arise from departmentalism

.and false service loyalties, will be minimised.

The technical services

95. Along with administrators of the new type, a modern state devoted to programmes of social and emno-

mic development needs a strong corps of technical experts working in conditions which are favourable for the

full exercise and development of their talents. The technician has not yet received the recognition due to himin the public administration of the country. He does not occupy the same status in policy formulation as a

general administrator, but this is no reason why this should carry with it a generally disadvantageous position

in terms of pay, prospects, and official ranking. This individious distinction leads to heart-burning and frus-

tration, and to the diversion of some of the talented technicians to non-technical jobs. Equality of treatment

should be brought about between the technical and non-technical services as resources permit, class by class,

grade by grade, and post by post. The association of the technician more closely with the general administrator

in policy formulation and decision making will help to eliminate the sense of inferiority and frustration from

which the technician is apt to suffer. In addition, technicians who show special talent for administration should

be eligible for promotion to any pool of administrative leaders. They will bring new knowledge and apti-

tudes to the pool and'add to its strength.

96. We should point out that in all countries which have made rapid economic and industrial progress in

recent history, scientists and technologists have been conceded special recognition. They are often-the highest

paid employees of the State sometimes occupying key positions. This is only a recognition of the fact that the

problems of a modern administration are overwhelmingly scientific and technical. With the problem of eco-

nomic and industrial development, the demand for scientists and technicians will expand and their market value

will increase. Unless they are accorded proper status and emoluments, they will not be able to give of their best

to the state and tensions within the service ranks will grow.

97 . A gap in the administrative arrangements which should be filled as soon as resources permit is theabsence of an administrative staff college to provide refresher courses in public administration ,or in particular

aspects of it to officers at intermediate levels of the higher services. Such an institution can also usefully serveindustry and business, which in Pakistan suffer greatly from lack of administrative skill.

98 . In order to stimulate interest in public administration as a subject of study and research in political

administrative, professional and academic circles, it is necessary to establish a subsidised but autonomous Insti-

tute of public Administration. Its scope should include business administration. It should publish a journal,

bold seminars and conferences, encourage research by the universities, maintain liaison with similar institutes

abroad and with universities interested in the subject, obtain literature from them, and have a circulating library

and a reading-room.

99. The universities should be encouraged to start courses in public administration either independently or

in conjunctibn witli subjects like political science, sociology, and business administration. Public adminis*lration should also be included among the optional subjects prescribed for competitive examinations, especially

in the Central Superior Services examination.. 100. ~f possible there should be more frequent deputation of officers to the Administrative Staff College

at Henley than a t present. They should also be sent on study tours to advanced countries to study the systems

of their public administration. A good idea wouldbe to select a senior officer and depute him to a few countries-

like the United States, the United Kingdom, Frame, and Germany-to make a comparative study which

enable him better to appreciate the problems in Pakistan. This would be a useful supplement to the studiesof

pakistanYs public administration made by experts from abroad, and in some ways be likely to make a g a t e

impact on our administration.



Integrity

101. There is a widespread feeling in the country that the standard of integrity has deteriorated in recen

years ; this feeling is shared by the public services themselves. The country has been passing through revolu

tionary conditions, and it is a mistake to view the present period of its history as a mere continuation of the pre

partiti& period. After centuries of neglect, suppression, and disorganisation, the nation has acquired the free

dam to re-organise and rebuild its social, economic and political life. The former standards were in a way impose

from'without, while in freedom the moral and social forces of the community alone will sustain high standard

of integrity. Large demands of a new character have to be met by the public services in the era of planned develop

ment which the country has entered. They have to work for defined goals which cannot be achieved withou

winning the confidence and co-operation of the people. Direct responsibility for .development and tlie achiev

ment of its goals will introduce favourable conditions for the promotion of higher standards of integrity. Th

work of public servants will acquire a deeper solicitude for the welfare of the people. This would be a powerfu

influence in stimulating a purposive devotion to duty, which will promote honesty of outlook and integrity o

character.

102. While we do not dispute the view that the standrds of integarity and efficiency have shown deterioratio

in recent years, we nevertheless think that the structure and system of public administration inherited from

British rule has served the nation well. The period since independence has been characterised by political an

economic crises, but, in spite of the small number of experienced officers, the public services have a magnificenrecord of achievement and deserve well of the country. We believe that a movement for reform will manifes

itself when the administration begins to apply its energies to the programmes of development. It is necessar

to encourage and support this movement by a judicious application of incentives and disincentives. A mor

aggressive policy than is being followed now is called for.

103. As regards incentives, what is needed is something more than the merely passive recognition of honesty

as a desirable virtue. Means should be developed to give positive rewards in a demonstrative manner for hones

work done, especially in positions involving the exercise of large powers and wide discretion. Sometimes such

positions, besides offering temptations, carry with them a good deal of odium and strenuous work, which mus

be given special recognition. Only officers known for their integrity should be selected for such posts. Th

will be an initial reward in the shape of open recognition, which will inspire them with courage and confidenceOn the successful completion of their tenure, the officers should be so treated as to make it clear that they ar

being further rewarded for honest work. Honesty will thus come to be regarded as a positive virtue and a divi

dend-paying personal asset. Officers with high standards of integrity are generally self-effacing, and it is th

duty of the administration to discover them and save them from unfair competition from less competent careerists

104. Short of positive punishments for dishonesty, ranging from dismissal to reprimand, .for which there i

provision in the disciplinary rules, an effective deterrent, easier of application, is the denial of posts carrying specia

responsibility, authority, and distinction to'officers whose reputation for honesty is open to doubt. We also fee

that severe departmental action against superior officers in some particularly bad cases will be more effective han

attempts to bring all petty offenders o book. While justice is an important end, the objective must be to bring

about a general improvement as rapidly as possible and not to attempt the impracticable task of punishing alpublic servants who are suspected or accused justly or unjustly of dishonesty. The processes for achieving the

latter end can cause immense harm by killing initiative and creating a general tendency to work for safety. In

the present climate there is also the danger that in an undiscriminating campaign it is the small unprotected

man or the honest man who, untroubled by consciousness of guilt, is apt to be careless and unattached to groups

and will suffer more than the guilty man.

105. The procedure for departmental inquiries into charges of corruption, ineFEciency, and indiscipline

is heavily weighted in favour of public servants and, besides being long-drawn-out, often proves ineffectual.

While there is need for guarding individuals against arbitrary or capricious action, there is need for removing



106. Corruption th ri~eswhere tliere is failure to elifdrce compliance wit6 rides ah d're@l$ti tcvtiTcg

@tious disposal of cases and to ensure proper dealings with the public. 1n our vikw ifib io~i~~?kbtI'&b'2

to devise administrative measures for an independent feview of the disposaI of 6usiness to prFGi<t &&jg &$-provement in this respect will go far to sterilise the soil in which corruption thrives, and to'iriifiie coi$d&&*%

a w n g he-people, ~epeatedelays should be treated as a good ground for severe disciplinary measures amounti i t ~o dismissal.

107. we must also einphasise' that thg <talidaFcYs zis ex'e'inplified id the outI&&zi& a&j&mg&:leaders must exercise a profound influerick on tlie' iriwg'ity of p'iiB1ic siYvati7i. F ie p*hblids&&&& t&$i@i

t-ent of the nation, functioning through itis pb1itica:l leddefs, f'dr'hrty'hg'out pu%6 1jo8cibs; iirid

fore reflect in their outlook and conduct tlie stariclards set b"efore.th'i:rit. ?%i$ i ~ .artie~~I&~'s%e c w 0&p13&W

services have npt had tlie benefit of le8derSliip from senior o&deig of ripe.ekjk?riedce in t&$ f&& &&fw&.rough wliich the country has been pasking. Th'eir rimiber WaseXtremy"sniirl1., a'slil t b podti* mf.$&$$vated by the willing and unwilling employment .of Nblic servamS in pisbnal'afid piiffy st&@lQ W $&&1":

This phase will pass when the new constitution begins to work fully atid its iri&ehce" iS filt-ih.t& @&&%ii:li&

of the country.

1m. Integrity is not c 0 ~ h e do matters of moiiey &fie, and rms4 be int~psetedn a wider sense: The19& of d- sbceie a& h e s t ap po a h towards the proBlems of pubk businesswh&lzer inmatters of.money.or

of ~ b i n m m b ;osting and promotions, of di"stribwtio of d o n t ~ sr lieeivx+ or other forms of advantage

toi~tjivit&&, must lead t6 dis$'stfous and f@-reacWg reS&s; extending.over the wZYole area of public adminis-

tratioq. The people are entitled to expect high standards from the public services, but-lasting-improvementw&

be possible only when general standards af eadership rise to higher levels. This depends on the development of

t & + s @ e a & ert p bl ic o p k h necessaFy for exercising supervision over pditical parties and their leaders.

W&hav&&fw re son to exfxict that stable pofitical conditions under an accepted constituion, along with a de-

egmt p6ga-e thoughon0 the tbwn$a& villages of the country will pave the way for improvement.

PUBLIC ERVICE COMME3SIONS

The Basic ftxfictio of set&% m a g & e & t s to se me for pnw'? s&mts ?on bT=-hd, fair

in aardahce with their-rights-andmerits, and for the Government, on the other hand, the best return

for public funds spent on them. The fulfilment of this objective requires a vigilant effort to maintiin a'delicate

M n m with a- clear a~ecia t io ; of the issues of public welfare involved. It needs an impartial and highly-

placed body free from both political interference and bureaucratic control and capable ofni&?@ &&=+nsa-

t- between the Government and public servants, as also among public servants tbemse1.iBs. N6 government

department can fairly be cast in this role. %ing a direct participant in the bnsinms-o'f-theGd~W&Y&$,i$cannot

be free from, the risk of political interference. Nor can it avoid the charge of partiality in int&:sm*ce matters,

since its personnel musf b-e10ag t0 one S~IT~C~?i. aII0ther. k b ' e ~ & ,wbh s~l"vhX7mtt%%@in&&,bjf.t&mem-beri of public servi&s is li~ i l yo-be characterirsed by i~&ade@ate ~pSeOiati6n f the ~&ncy- fo rhange, adjust-

rnent, and reform which are ne%ded ta meet the rising needs af tech:nhl a@& ock1cbnge.

110. An outside advisory body like the Public Service Commission can provide the-leB~di%dPbefiuired

in this field, even without detracting from its role as an advisory b'ody. E@o*ever.at .@ 6n O' th W~ d h i c e

~ ~ ~ ~ ~ o n s6 not occupy a ~ s i t i ' o ~f e@%ive c m ver-t ~ % &-I s h The

functions of both the Federal C o m m i s s ~ lld the HoVhdd i&ink%siib~~~f8? at @ i & ~ ~a) con-

d ~ ~ g& ~ t ? d f l s d f l ~ f m-mint to thXY c@l&aP and ~0 'Vk id . t e r y i ~ s ,e~fzectively; nd (b) &iw advice,e e d .mattms, such asmethods of r m a 4W ; he principles to be followedkmaking



appointments ; romotions and transfers from one service to another ; uitability of chdidates ; isciplinary

matters ; laims for reimbursement of costs of legal proceedings ;or any other matter referred to them by. the

Resident or the Governor, as the case may be. Even within their limited jurisdiction the Public Service Commis-

sions are often handicapped by unclear or conflicting policies followed by the government departments having

parallel jurisdiction, and by the absence of co-ordinated policies covering the public service as a whole. The

Public Service Commissions have not been called upon to provide any leadership, nor was there any other agency

capable of doing so.

11 . In the context of modern government, public service management is a large activity with many facetsIt involves not only selection, recruitment, postings, transfers, promotions, preservation of service rights, and

disciplinary matters-the orthodox functions of the Public Service Commissions of Pakistan-but also education,

training, classification of services and posts, Bation of emoluments, posts and services, inter-service relations,

preservation and improvement of morale, provision of good working conditions, redress of grievances, welfare,

and many other things having a bearing on the maintenance of the public service as a contented, well-knit, and

efficient corps. All of them are closely interconnected. The assignment of framing proposals. in all these fields

can appropriately be entrusted to. suitably organised Public Service Commissions. As long aa they continue

to funition as independent advisory hdies , the broadening of their functions to include advice on policy in all

of the related fields of administration need not increase the extent to which they are exposed to pressures or drawn

into day-to-day administrative decisions.

112. It would be necessary to strengthen the Public Service Commissions to carry out their broader role.

Their membership should be expanded and the sources from which it is drawn should be diversified to the maxi-

mum extent, to provide representation of broad public interests. Their terms of office should be staggered to en-

sure continuity of policy. The chairman should have direct access to the Prime Minister or the Provincial Chief

~inister; s the case may be.

113. The functions of the Commissions would fall into two broad divisions : (1) ecruitment and other

establishment matters and (2) education and training. Some of the functions under these divisions are now

entrusted directly to the Public Service Commissions and they can directly effect changes. Other functions are

outside their administrative scope, but even in these cases they should provide advice on broad policy matters.In the sphere of recruitment and establishment matters the main tasks will be :

(a) Exploring and developing the recruitment field in collaboration with the educational authorities.

(b ) Improving recruitment policies and techniques, in particular by introducing modern methods of judging

suitability.

(c ) Forward planning of the personnel requirements of the various services and departments, and de-

vising means of meeting them.

(d) Rationalising the organisation, pay structures, and terms and conditions of employment of the public

services.

(e) Simplifying and codifying rules and regulations, directives, and instructions bearing on service mat-

ters. The rules governing the conditions of service of public servants are voluminous and compli-

cated, requiring large establishments for their administration ; heir simplification is overdue.

(f) ntroducing job-analysis and performance-rating techniques.

(g ) uproving disciplinary procedures. - 7

(h) Devising means of redressing public servants' grievances, maintaining their morale, providing good

working conditions for them, and promoting their welfare.

(f)Maintaining standing lists of approved candidates to meet urgent requirements, particularly in cate-

gories for which suitable candidates are known to be scarce.



114. This last task is of special significance to development programmes.' The-progress of developmen

is retarded by delays in the recruitment of technical men : t must be the special aim of the Public ServiceCorn

to eliminate such delays. Special principles and procedures are urgently required to meet the needs of a

dynamic situation : nless the Public Service Commissions think and act constructively and fit themselves into

that situation attempts will be made, with good reasons, to by-pass them. They should improve their procedures

in such a way as to avoid the need for making appointments without consulting them. At present appointments.

can be ma& for a period of one year direct by the departments without consulting the Public Service Corn&

sions. This is a very unsatisfactory method of making appointments, particularly if they are likely to lastfor long periods. They lead to commitments, even if formally denied, which are inconsistent with the need to

maintain high and objective standards in recruitment. They are probably the most prolific source of abuse in

recruitment. The Civil Service Commissionsin the U.K. observe simple procedures for assisting the ministries

in making urgent. appointments ;ways and means should be explored of simplifying the procedures of recruit-

ment partic.ularly in those catego~ies f occupation in which the possible candidates are known to be very few.

For instance, the holding of examinations or the issue of advertisements to meet individual requisitions for engi-

neers and technicians, particularly in specialised categories, involves needless effort, expense and time. ~t is

a paradox that while government departments are short of men, well-qualified men cannot secure suitable emp

loyment. The task of recruitment needs to be re-organised as an assignment requiring imagination rather than

appli-ation of mechanical rules.

115. The Commissions will need additional administrative ana technical staff for discharging their expand-

ed responsibilities, such as psychologists, job analysists, and performance rating experts, directors of training

and and an inspectorate. We believe that the Commissions could with advantage seepthe assistance

. of technical aid agencies to provide them with consultants and advisers.

SYSTEM OF BUSINESS

116. The re-organisation of planning and development machinery would be incomplete and fail to achieve

its purpose unless accompanied by necessary reforms in the system of conducting business. Specialisea know-

ledge and speed are essential for carrying through dynamic programmes of development of increasing magni-

tUdeand complexity. The administration, in the course of formulating and implementing plans of development

*will ace problems of great variety relating to all spheres of social and economic life. It must therefore develop

resources of specialised knowledge and experience to perforni its varied tasks with a sense of urgency, confidence

and responsibility. The system must be so organised as to facilitate a rapid disposal of business from day to

day in an orderly and responsible manner. Excessively precautionary procedures are the inevitable accompani-

rnent of inadequate knowledge and experience which breed hesitation and irresponsibility. . Dilatory methods

bf business and administrative procrastinations often maintain a semblance of careful deliberation.

117. Obviously the changes discussed below, some of which are far reaching, cannot be carried through

overnight. The disruption would be to0 .great. It would be equauy hger0us to pretend that the present

system approaches perfection and should be left unchanged. It is necessary to agree on the dirwtion in which

improvements can be sought and then to move in that direction as rapidly as possible. The proposals outfined

below represent our views on the direction that should be followed to improve the system of conducting public

budness. ~t is a direction which has been followed with success in otber countries and, in some enterprises, in

our own country.

118. The current procedures were devised for undivided India with the main purpose of guaranteeing that

no decision of more than minor sigdicance would be taken at subordinate levels and that decisions at higher

levels should be reached only after the most thorough deliberation and cross-checking. At that time very few

were of a technical nature requiring specialis& knowledge. The civilian oEcers were t r h e d and ac-

quired experience in revenue and law with they alone were primarily concerned. In addition engineers

were needed to construct buildings and communications and subsequently irrigation works. was sum



w-m afgB*d g~nd..w&c b;now1edgesneeded by the state&idials. Their cleli.her~tiueprocedures

m . g r ~ l & l U ~ u l u l i n c M g heir m& pwpse of gwr-mt dng a sober awl conserv&iw~&~@p&-

iagfcr , w & X -rnvermip&stl fun&om. They do aotnow meet the r ~ ~ & m w t sf pqdeqe +mew

,was.& ~e,~el~p~eni trogrgmnas in which quick and d-eeisive action& ~ s aUdor .f~lo,m ay .@ day e n

. **aJ w ~ b l e w . lM~d_erna&&ktS.@tlon is ,p,redooosi9aistltly tecbsic~tln ~karacter.

1.19. .Op y g m. is f o ~ n d dQ the pri~ciple@t g.olicy and aclministration are divisible and that the sec-

rqtGjqt&t

&&m,ed only withfie former a@ grogramme depart.ments exclusively with the latter. & terms of

waen?l&q&~ goverpmest this is largely an ~ntig~l;tedpub.licanagement theory. Nor does it work success

f g ~ j p;akjtFapar $,he Lcye.tpi@t&& itself compelled .or indu-wd, for ~ 4 eeason or another to participate in

L-wJJPJ~ ,~~~pi!pme@ing .ag~cies n$ fr:equex1,tly o t a b over responsibilities for implementation itself. Policy

~4 &$w.tg$iop are b t q get.% and Sherefore largely indivisible. The initiator af programme policy must

$t ,t&ssrf9e- t.im be wn c, e~ ed ith adqdnist~~tiveeasibility and is in a good position, as a Grogramme operator

s pp$s a9 ttiv,e pziwity of propasals withinhis area of competence and their administrativerequirements

T& i t ~ p t. tgm k e,. . &up .$stipckioll~ b$$w.w policy itnd execution, with sepaxate groups concerned with each,

b~ Q€@ e g f f ~ f f pxo,duci= sterile qnd unrealistic administration.

1%. The presgmt system tends .to prodwe irresponsibility in administration. While most decisions maye

upward, many are disposed of by junior officers lacking experience, maturity or knowledge of the techraicalsub-

jects w i i yhich they are dealing. By sitting in judgment on senior and mature specialist officers they oftencreate frustration and resentmept. Departmental heads in practice tend to be required to report to subordinate

members of &te Secretariat who are concealed in anonymity and in no position to be held accountable for their

decisions, The imposition of administrative judgment over technical proposals often results in the substitution

of an unqualified and irresponsible judgment for an informed one.

121. The present system generally puts all proposals and actions through the same process of noting and

filing. ExqepjionsQC-where pgsonal interests are involv-ed or personal influence is exercised, or urgent p~litica.-- -

reAQns jpterveqe. Prppmme questioos seldom fall in either of those categories. The result appears in the.-.,e-

f9~m f yaunino,+ fi.1.e~WWCQimpose serious strains on busy administrators.

4-22. part of t%is di%lmlty arises from the fact that all fresh receipts in a ~niaistry re first channelled thoughm%ordinatepersonnel for files as to past precedents and other clerical routines. The clerical personnel

the n&g proms which frequently as the case moves up the line continuesin the low level terms of consideration

in .dich initkted. Often there seems to be disposition to shift the file from one o&r to another, or from m e

rnidstry to another. The resultant delays are sometimes unbelievably long.

123. Tbjs prmdure was not unsuited to the nineteenth century revenue and law and order alien govern-

ment managed by the general administrators. During the present century under the colonial Government of

.und.ilvided India there was an unmistakable though slow movement towards incorporation of specialists in the

atjbninist~ative rganisation at appropriate bvels, and to make necessary adjustments in the system to the

~quirementsf large programmes in specialised fields. The need for progress in this direction is infinitelygreater

today is k a ~ i s e d ~ d ~imly. we feel that this will retard the progress of development programmes, andp m n t the administrative organisation from attaining its full potential.

124. In the early days of British rule all high positions in most departments used to be reserved for civil

service officers, but when departmental functions assumed a technical character, specialist officers gradually took

Wisghm. Iff pay caw the ordinary secretariat sysbm was, ound too slow and restri~iiveor t b arge and dyna-

:& E p g g& am t ~ of Det;eslEa forces and was suitably modfid. Specialist officers of Custom$ and I w t p e T a

WRrg &&hd iffto the q@retaikt ar deaiing with inland revenue arlmitsistration. The Railway Bcqrd & ~

~ t m dd ly witla railway &c.e o f k ~ s .n the former Pynjab the Chi& E m r 5 , r eq0~&$1~ab8

~ @ ~ t i ao.gr~n.uxwaasd&r opplratillg an a d v e lrrigation system w m mw4 ~spoMbbgbT &&ing

e~qssw afpoligy and adm#tad jnte the semetariat.



. Bmy d i &d imp& e&arErlishedto consider .the subject.ofada&is&ative i m p r a m n &he sub-

dqringscent imes has dilated tipon the .delays and jneffibies .of%be iewktiarg syhm. etfae&

4 aaxssiwsnoting, ile .sfdtbg4 nlmducing receipts at low levelsham been3zeated at r h g t h . Wrjlth

gbrerequimmmb formme,&ci&iveand . w e e n s dministrationit i s time to at& z~at~caases;dexte-t

s.me;ts :be~p~motednd pushid fwwmd with some speed.

126. It .is accordingly the reccnnmendatiun of ,the P h d g Baud that far dwdlapmat mationsthe present system be progressively replaced by a system of straight-line organisation and broad delegations of

tuth&ty with staff offieers firmly and unequivocally removed from the line of command.

9B. The.energies of programme administrators must be given the operating latitude with po&ae.d&ec&n

and 4 x 4 oo-ordination which adds up to steady forward progress in a teamwork operatim. Dimct k e s of

-g&sa$im and a sharp distinction between staff and dine authorities needs to be drawn.

428. 'fhe elements of a sound administrative system which permits short-cutting of the presenl prac*es

.are quite Smple and follow well established principles of administration. Essentially what is involved is the

estaMshe&within integrated ministries of strong and functionally united departments to which are &ile@ed

broad s t ~ o ~ s ,oth pragramme and administrative, up to the limit of their capacity and dim-. h-. g r m plmdng and administrative staffs are made an integral part of the department rather

than beingc ~ n

centrated in the Ministry ;Department chiefs report directly to the administrative heads of the Minidry and

refe-r to them matters which are not within delegated responsibilities. The Departpent chief is not subordinated

to juqior inexperienced officers.

129. There should thus be created a simpler, more direct, and shortened chain of command which vm a k s

to produce quicker decisions at points of knowledge over a broad range of functional respmsibil ih .

13.0. The indispensable ingredient of this proposed direct action system of administration and the element

to he emphasised is the matter of delegating decision making powers downward in the operating hierarchy. This

relates to administrative, budgetary, establishment and other operational policy decisions which can best be

made at the point of programme responsibility where the situational facts are known and understood. Finan-.& *tablishment considerations, for example, should be built into or merged to the maximw e x h t with

FW~QIXglsideration~at the point of programme initiative instead of being super-imposed from above.

131. Delegations of authority should comprehend all powers necessary for the accomplishment of the

asGsigned responsibility without excessive prior clearance. The authorities retained by the superiors and items

on ~ h i c hrior reference is required should be clearly dehed. Policy guides and standards to govern applica-

tion to specific cases should be prepared as the principal measure of control. These should be supplemented

by periodic reports and inspections. Above all the subordinate officer with delegated authority must have free

and ready access to his superior for di~cussions nd collfirmation of his proposed decisions in precedent-making

c ~ .he stlbordinate must be able to proceed with confidene that his superior knows and of his

a e S t r a t i v e policies and methods a d will back him up In a crisis.

132. l h r b W@ld War 11 t b eed;s of ~ i t ~ t i m eperations led to the establishment of a dynamic organi-

@.&$af ~ rrmgi f fghe sxtppl~f Stores 00 these prin.~ip&. This organisation was characteris& by the follow-.+.- &2

i~ o eature.$:-

(1) It was based on& pr&pki of a straight~in; adhnistraiion.

(21 if& Jofffcerswee introduced asde wt mm t heads with the ex-oflie'o sta,usof J&t Metar y to

Government.

, (3) ~wjal, aid a d ~ s t r & ~ ~actors were htegrated by intrudmhg i e h i l , secretariat,Q-JS at ail apprdpriate Ze~ds.



133. A study of the organisation that was thus evolved for executing a technical programme of tremendous

proportions would be profitable, and many lessons could be learnt from it. We have to develop the sepse of

urgency which must govern our thinking in relation to the national development programmes. The principles

under the stress of war emergency are equally applicable today in relation to development programmes for eradi-.

cating poverty, unemployment, disease and illiteray. For us as a free nation the pressing need for development

presents as great an emergency as did the World War I1 for undivided India under alien rule. It is a question

not only of better living but also of survival in the dynamic world of today.

134. The concept of Secretary to Government is somewhat ambiguous and it is not precisely clear what

his function in relation to the development programme is. He is in charge of the Ministry and its agencies and acts

as an adviser to the Minister on policy matters. His administrative and supervisory functions are less clear,

though ostensibly the Secretary usually exercises general administrative authority. Prior to Independence he was

held responsible for the efficient administration of his department and it is assumed that there has been no change

in this respect. To clarify and strengthen his responsibilities it is recommended that he be vested with full and

unequivocal executive authority and responsibility, under the Minister, for the totality of the activities encom,

passed by such Ministry. His role should embrace policy, administration, coordination, planning, public re-

lations or any other attribute of governmental management. He should represent unity of command and the

ultimate and responsible point of programme coordination and leadership. As an administrator he should be

responsible for organising the work of the Ministry into integrated functional units and be vested with the au-thority to make internal organisational changes as p rograme and administrative needs require.

135. All secretariat officers, except the Secretary and Joint Secretary, should be removed from the line of

command. Department Heads should have access to Secretary or Joint Secretary who should be assisted by

a small staff of a personal character. Other members of the staff should in no way be considered supervisory

. and should scrupulously refrain from being put or putting themselves in the line of command.

136. Special arrangements will be needed for dealing with special categories of business, such as rules and

regulations, pay and allowances, budget preparation, etc., in the Ministry of Finance. As a rule staff officers

must perform only those functions concerning coordin?tion and control which the Secretary assigns to them ;

but they themselves neither " control" nor " coordinate

".137. It is recognised that the full realisation of the proposed change in administrative procedures will take

some time to accomplish since broad structural reorganisations and detailed delegations of authority are involved..Development administration cannot await this longer term process, however. Therefore the following measures

are recommendea as being susceptible of immediate implementation to rectify some of the most serious present

shortcomings :-

(a) Department heads should report and be made responsible directly to the Secretary or Joint Secre-

tary, sending their files to them for orders. The files requiring further examination are returned to

department heads for necessary action.

(6) he process of delegations of authority to department and other chiefs should be accelerated. In

the field of financial control this will have to be initiated by the Ministry of Finance for successivedelegations to executive ministries and departments with such safeguards as may be considered neces-

sary. We feel that such delegations will help develop a sense of financial responsibility over the en-

tire field of administration, though the process would be slow. Control should be exercised through

(1) statements of sanctions accorded by the Ministries ;and (2) statements of expenditure incurred

and physical progress made against all schemes whether sanctioned or not. '(c) Senior technical heads of departments, offices, or other major programme agencies should be given

secretariat status.

(4 Assistant Secretaries, Under Secretaries and in some cases Deputy Secretaries should be posted

to the operating departments for direct participation ih the administration of pro&amme agendes.



Thislwill involve their being placed under technical department directors, though if necessary they

may be given direct access to the Secretary or Joint Secretary concerned. This arrangement willpromote the merging of administrative and policy considerations in the preparation and implement-

ation of programmes. This is in line with the principles adopted in the War time Supply Depart-

ment to which a reference has been made above.

(e) Revise the Rules of Procedures to permit shortcutting of the present procedures for handling fresh

receipts by providing for their entry and handling at proper levels where either a decision can be

made promptly or the nature of staff investigation specified.

The outlook of public services

138. No amount of improvement in the mechanics of public administration, its structure, organisation and

procedures, and in the skills of its workers will enable it to achieve the desired goal unless there is a change in

the outlook of the public service. The right outlook is to the public service what imagination is to an artist or

faith to a missionary : t is its guiding light. While conscious of the deterioration that has taken place since

Independence we are of the opinion that the public services of Pakistan have their share of the attribu'tes of a true

public service--devotion to duty, observance of discipline, respect for rules and regulations, loyalty to the Gov-

ernment by law established, and efficiency in the performance of assigned tasks. But, when all is said and done,

these virtues are of a passive character, representing the absolute minimum. What is needed to make the public

service an effective instrument for the creative enterprise of social and economic development is the dynamismspringing from a progressive outlook, and an unfailing faith in the destiny of Pakistan.

139, The ingredients of a progressive outlook on the intellectual plane are : eadiness to accept new social

ideas, responsiveness to new urges of the nation, preparedness to learn and try new techniques of human relations

including those applicable to the art of public administration, eagerness to understand the human implications

and consequences of official acts, willingness to profit by criticism, a self-critical and introspective attitude, and

several other allied traits. On the moral side they can be summed up in an unremitting endeavour to make the

public service true to its name. The public service in this country occupies a very high position in the hierarchy

of professions by reason of the power, prestige, and priyileges that it enjoys, and the vast range of responsibilities-

practically spanning the entire life of the community-vesting in it. It owes to society and to itself the duty

of living up to its high position by making itself as useful as possible. It can do so in many ways-by being cons-tantly alive to the needs and problems of the people, by establishing an identity of aims and interests with them,

by meeting them on equal terms, by trying to win their confidence, respect and willing co-operation, by having

a faith in the mission to improve and enrich their lives, by being prepared to renounce privileges and status so

as to share in any sacrifices that they may be called upon to make, by giving up its aloofness and shedding its

notions of superiority,-in short, by establishing a living human fellowship with the people.

140. It can be hoped that the actual performance of the tasks of development will engender the requisite

intellectual and moral qualities in the public service; but the process must be consciously and purposively assisted

and accelerated. There is no magic formula for bringing about the kind of transformation that is called ford

The basic requirement is a self-reforming effort on the part of the public service itself. But this,&ort must be

helped by public service policies in matters like recruitment, post-recruitment training, promotions, and appoint-ments to key posts. These policies must put a definite premium upon the creation, utilisation, and encourage-

ment of qualities of a progressive order. The rest is a matter for statesmanship, which must guide and inspire

by example and precept." , r

II '

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