Action Research Report on Health, Education, Revenue and Police Department

ACTION RESEARCH REPORT ON HEALTH, EDUCATION, REVENUE AND POLICE DEPARTMENT

IMPROVING GOVERNANCE: REFORMING PROVINCIAL CIVIL SERVICES IN PUNJAB

Abbreviations and Acronyms  ADB: Asian Development Bank  ADLR: Assistant Director Land Record  AEO: Assistant Education Officer  ARC: Arazi Record Center  ASI: Assistant Sub-Inspector  ASP: Assistant Superintendent of Police  ATC: Anti-Terrorism Count  BOR: Board of Revenue  BPS: Basic Pay Scale  BS: Basic scale  CC: Course Coordinator  CID: Crime Investigation Department  CM: Chief Minister  CNIC: Computerized National Identity Card  CPD: Continuous Professional Development program  CPPG: Centre for Public Policy & Governance  CRC: Complaint Redressal Cells  CT: Counter Terrorism  CTD: Counter Terrorism Department  CVP-TDEA: Citizen Voice Program - Trust for Democratic Education and Accountability  DEO: District Education Officer  DHQ: Divisional Head Quarters  DG: Director General  DIG: Deputy Inspector General  DLR: Director Land Records  DMO: District Monitoring Officer  DRC: District Recruitment Committee  DSD: Directorate of Staff Development  DSP: Deputy Superintendent of Police  EDO: Executive District Officer  FIR: First Information Report  GTC: General Teaching Council  HU: Homicide Unit  ICS: Imperial Civil Service  IG: Inspector General  LRMIS: Land Record Management Information System  MNA: Member National Assembly  Manager SD & PR : Social Development & Public Relations  MPDD: Management and Professional Development Department

 NACTA: National Counter Terrorism Authority  NADRA: National Database and Registration Authority  NTS: National Testing Service  PCA: Police Complaint Authority  PCS: Provincial Civil Services  PEEDA Act: Punjab Employees Efficiency, Discipline and Accountability Act  PESRP: Punjab Education Sector Reform Program  PMIU: Program Monitoring and Implementation Unit  PMS: Provincial Management Services  PMU: Project Management Unit  PPSC: Provincial Public Service Commission  PRMP: Punjab Resource Management Program  PST: Primary School Teacher  S&GAD: Services & General Administration Department  SDPO: -Divisional Police Officer  SHO: Station House Officer Sub  SI: Sub Inspector  SMBR: Senior Member Board of Revenue  SP: Superintendent of Police  SPU: Special Protection Unit  SST: Secondary School Teacher  TA: Traveling Allowances

Contents Executive Summery ...... 11 Introduction ...... 12 Rationale ...... 16 AIM OF BASELINE STUDY ...... 16 Study Sites ...... 17 Study Objectives ...... 17 STUDY DESIGN ...... 18 Methodology ...... 18 Sampling Methodolgoy ...... 2222 Sampling Size 22 STUDY METHODOLOGY ...... 88 Health Department Key Findings 23

Police Department Key Findings 23

Education Department Key Findings 24

Revenue Department Key Findings 24

Part II of the Study 25

HEALTH DEPARTMENT ...... 26 GRADE and POSITION ...... 27 Positing of Nursing Cadre ...... 29 Qualification ...... 29 Recruitment ...... 30 Training ...... 30 Transfer ...... 30 Promotion ...... 30 KEY FINDINGS ...... 32 POLICE DEPARTMENT ...... 33 Introduction ...... 33 Grades and Position ...... 36 Recruitment and Selection ...... 38

Training and Capacity Building ...... 39 Promotion and Transfer ...... 40 Rural and Urban Police Station Comparison ...... 41 Citizens Perception ...... 475 KEY FINDINGS ...... 47 EDUCATION DEPARTMENT ...... 49 Recruitment ...... 51 Training ...... 53 Promotion ...... 53 KEY FINDINGS ...... 473 REVENUE DEPARTMENT ...... 59 Board of Revene ...... 60 Patwari ...... 47 Recruitment ...... 63 KEY FINDINGS ...... 63 RECOMMENDATIONS ...... 351 Health Department –RECOMMENDATIONS ...... 751 Police Department- RECOMMENDATIONS ...... 751 Education Department- RECOMMENDATIONS ...... 75 Revnue Department- RECOMMENDATIONS ...... 754 Conclusion ...... 76 Schedule of Study for Health Department ...... 78 Schedule of Study for Police Department ...... 78 Schedule of Study for Health Department ...... 78 Schedule of Study for Education Department ...... 80 Schedule of Study for Revenue Department ...... 81 Participants Observation ...... 82

List of Figures

Figure 1 Comparison of 4 Departments ...... 123 Figure 2 Distribution of Seats According to Pay scale ...... 16 Figure 3 Map of Districts of Punjab...... 18 Figure 4 Health Department ...... Error! Bookmark not defined. Figure 5 Number of Respondents (Health) ...... 28 Figure 6 Gender Proportion of Respondents (Health) ...... 29 Figure 7 Sanctioned and Filled Nurses Positions ...... 29 Figure 8 Problems Identified by Citizens ...... 32 Figure 9 Problems of Nursing Cadre ...... 32 Figure 10 Current Nurse : Patient Ratio ...... 33 Figure 11 Total Filled Position ...... 33 Figure 12 Police : Population Ratio ...... 36 Figure 13 Police Grade and Position ...... 36 Figure 14 Police Department Interviews ...... 37 Figure 15 Interview Statistics ...... 37 Figure 16 Hierarchy of Police ...... 38 Figure 17 Perception of Citizens about police ...... 46 Figure 18 Department Interviews (Education) ...... 51 Figure 19 District-wise teaching staff ...... 52 Figure 20 District and grade wise teaching staff in Sheikhupura ...... 52 Figure 21 Non-salary budget sample school ...... 55 Figure 22 Factors Hampering Service Delivery...... 57 Figure 23 Field visits to revenue department ...... 60 Figure 24 Hierarchy of subordinate cadre (Revenue) ...... 61 Figure 25 Administrative Hierarchy (Revenue) ...... 62 Figure 26 Division of Land ...... 62 Figure 27 Difference in process of issuance of Fard and Mutation ...... 67 Figure 28 Issues in service delivery (Revenue) ...... 70 Figure 29 Schedule of study for health department ...... 78 Figure 30 Schedule of study for police department ...... 80 Figure 31 Schedule of study for education department ...... 80 Figure 32 Schedule of study for revenue department ...... 82

Figure 33 Participants observation ...... 82

Acknowledgements

We gratefully acknowledge the United States Agency for International Development (USAID) for funding the “Improving Governance: Reforming Provincial Civil Services in Punjab” project under USAID Grant Number AID – 391- C -11- 00001.

We are particularly indebted to our consultants on the project, Mr. Tariq Mahmud, Mr. Shoeb Syed, Mr. Sarfraz Ahmad and Mr. Khawaja Khalid Farooq for their vigor and effort to liaison with officials from the respective departments under study as well as their useful comments and suggestions on drafting of the report. We remain indebted to the Core Working Group members for the continuous advice and support throughout the duration of the project.

Report Format

Part I of the baseline provides the summary and includes research methodology, research questions, objectives of the study, sample size and such details, besides the key findings in each of the department. The details about the targeted departments, research related interviews, focus group discussions, citizen perceptions and seminars are provided in Part II of the document along with key findings and recommendations in an elaborate manner. The information provided in Part I presented the research findings in a comprehensive manner which is further strengthened with elaborate details of each in Part II of the document.

Executive Summary

Bureaucracy is pivotal for governance and sustainable development in any state. A professionally competent and well-trained bureaucracy could work for public welfare and build trust between citizens and the state. Trust deficit could result in adversarial relations between the citizen and the state and promote negative perceptions about public servants. In Pakistan, the public perception of bureaucrats is one of corrupt, inefficient and hostile towards public. The state is seen as unreceptive to public needs and its service delivery is on the decay. The 18th Constitutional Amendment offers Punjab and all provincial governments an opportunity to reform the provincial civil service and brighten the prospects of improving governance and service delivery. This research departs from earlier works on the subject as it articulates to pursue a bottom up approach to induce behavioral and structural change in the provincial civil services for improving governance. It aims to formulate an evidence based civil services reforms plan which is owned by all the stakeholders.

Much of the administrative reforms and improvement in public service introduced in any country originated from few fundamental points that accelerated the success of civil service reforms. These included adoption of a new mindset and paradigm of thinking. The case study of public administration reform in Malaysia significantly highlights this fact and shows that in order for civil service reform to flourish seven fundamental values were internalized among its public servants, which included quality, productivity, innovativeness, discipline, integration, accountability and professionalism1. Such values were inculcated so as to create a flexible, forward driven and motivated public service that could meet the challenges of the new age development. The setting up of an independent administrative and manpower-planning unit (MAMPU) brought about the structural change in the Malaysian civil service2. MAMPU assisted the government in suggesting measures to improve administrative hurdles. Some direct measures were also introduced which included non-discrimination, new performance appraisal system, comprehensive remuneration system providing performance incentives, enhancement of staff training and development and the development of public service code of conduct to name a few. The case of Pakistan highlights many points that need to be catered to when we consider enhancement of efficiency, effectiveness and productivity of bureaucracy. In a country such as Pakistan new projects on any level leave no room for improvement in existing structures and mechanisms. The government has to realign its agenda for policy implementation and service delivery and abandon the idea of having uniformed approaches for every sector, for example

1Zheng (2013).Reforming the civil service. Centre for Public Policy Studies, Asia strategy and Leadership Institute Policy paper series. 2Malaysian Administrative and Manpower Planning unit (MAMPU)

police, health, education and revenue. These public departments require varied approaches due to varied beneficiaries. There is growing consensus that civil service reform is crucial for improving governance and service delivery. However, most of the existing literature, in our assessment, erroneously lump Grades 1-16 of the district service without adequate attention to their needs, skill sets, aspirations, authority and behavioral aspects. Instead, there is a need to evaluate, assess and propose reforms of the provincial bureaucracy according to their assigned roles, responsibilities and performance. This implies that the Grades 5-16 and Grade 17 need to be treated separately. Since it is the civil servants belonging to the subordinate cadres that represent the face of the state and are the first point of contact with the citizens, the study focuses subordinate cadres (Grade 5 - 16) in the departments of health, education, police and revenue.

The overall objectives of this project were;- 1. Strengthen citizens‟ voice through, among others, oversight of public bodies that leads to advocacy for policy/legislative reforms and improved performance in terms of reducing corruption and strengthening transparency and accountability mechanisms. 2. Increase public-private connections, or linkages, between and among state and non-state actors for more effective accountability.

Centre for Public Policy and Governance conducted the baseline survey of civil servants in the departments of health, police, education and revenue in four districts of Punjab, including Lahore, Sheikhupura, Kasur and Faisalabad. The purpose of the study was to assess the job needs and responsibilities, identify the challenges and issues in recruitment, training and promotions of subordinate civil servants in the respective departments. Another equally important objective of this exercise was to identify their capacity development and career planning needs and challenges. The exercise also helped establish a baseline for future assessments of key recruitment, training and career planning challenges of subordinate civil servants. The findings of the study helped in the identification of future reforms in recruitment, training and capacity building, particularly in line with the needs of the subordinate bureaucracy.

The baseline assessment benefited from a variety of data sources including literature review, quantitative and qualitative survey techniques, participants‟ observation and in-depth interviews with selected civil service officers especially from the lower cadre within grades 9-16.

An overall selection of common grades and positions (BS 9, 14 and 16) chosen from across all the four departments is as follows;-

Table 1

Basic Pay Education Health Police Revenue Scale

Primary Assistant LHV/Junior 9 School Sub- Patwari Technician Teacher Inspector Elementary Senior Sub- Naib- 14 School Technician Inspector Tehsildar Teacher Secondary Charge 16 School Inspector Tehsildar Nurse Teacher Figure 1 Comparison of 4 Departments During research, questionnaires were developed followed by personal interviews of relevant staff/officers from the aforementioned departments. In addition, recruitment policies, operational policies and the role of the training institutes of civil servants were also closely examined. The baseline assessment for all the four departments was conducted between July 2015 and September 2015. The key findings common to all the departments included the delay and / or lack of any system for career progression; poor salary and employment benefits and working conditions for the junior cadre had a direct impact on the level of motivation. The lack of qualified staff, poor human resource management, political interference and other governance issues were identified as common denominators during the study. The health department key findings revealed that shortage of human resource, especially the nursing cadres, was overburdening the day to day work at the medical facilities and there was no solution in the site in the absence of effective human resource management systems. They delay in promotion to the higher grade and non-payment of postgraduate allowance was hampering both career and education prospects. It was also highlighted that people are forced to take journeys to seek medical assistance simply because to lack of such facilities near their homes. The key findings for the police revolved around the disparity between the sanctioned strength and the one that was available for duty, long duty hours, limited opportunities for promotion, non-comparative salaries, poor working conditions, political interference in posting, transfer and promotions and scarcity of resources and training opportunities, all of which contributed to the low self esteem and motivation among the junior cadres. The education department key findings revealed inadequate training for the teachers to perform the task, disconnect in pre-service and in-service training, lack of motivation due to uncertain career progression, low budget for the sector, assigning duties besides teaching, poor infrastructure, political inference and prevailing low self esteem among the teacher. The prevalent disconnect between the training / skill development of the Patwari and the important role of the position was identified among the key finding. Other findings included meager salary and employment benefits, limited prospects of career progression, political interference, prevailing environment of corruption and on-going ban on recruitment of Patwari. The computerization of the land revenue record was identified as one of the major steps forward in the revamping of the revenue department. In the light of the baseline findings, it is recommended that decentralization of the departments to the district level be the first step towards improving service delivery at various levels with

immediate focus on ensuring the qualified staff recruitment is carried out to make up for the shortage at every level of service delivery. It is recommended that service structure should be developed for every tier at the junior cadre and where it exists, it would be implemented to ensure that staff office timings are strictly observed and employees are compensated for duties performed beyond the office hours, all employees are granted training opportunities that are need-based and result in improving the prospects of promotion to higher grades. At the same time to sustain commitment of the staff and employee retention, the good performance of staff should be incentivized and recognition should be institutionalized.

Introduction The civil services reforms are a complex and sensitive process, both in developed and the developing countries. The edifice of British colonial administration was built on the Imperial Civil Service (ICS) in undivided India. The ICS was described as the „steel frame‟ through which colonizer‟s governed India. On gaining independence in 1947 both India and Pakistan inherited this „steel frame‟. Over almost seven decades of Pakistan‟s existence, several reform commissions have been constituted to bend this „steel frame‟. However, the primary focus of this reform effort had been the senior bureaucracy of Pakistan. This study departs from the established path and aims to draw attention towards the real „face of the state‟, the street level bureaucrats. The provincial and local public servants are the real face of the state as they are the first point of contact for the public. In the past three decades several factors have contributed to the deteriorating law and order situation in the country, including Punjab. This has created a public perception that civil servants at all levels of government are, „arrogant‟, „corrupt‟, „inefficient‟ and „anti-public‟. This has widened the gulf between the citizens and the state and the citizens lack trust in the state. To what degree this lack of trust is real or perceptual? Would reforming bureaucracy at this level improve governance and change public perception? This study explores these critical questions.

A typical street-level bureaucrat includes teachers, police officers and other law enforcement personnel, social workers, judges, public lawyers and other court officers, health workers and many other public employees who provide government services.3 As Lipsky points out that one of the main reasons why people choose to be street level bureaucrats is to serve the community. Being a teacher or a police officer is socially useful and serves the purpose of being direct service to the public. This point holds merit as exploratory visits to four chosen districts in Punjab revealed that the prime motivation for teachers who entered the education sector and nurses was to serve the community. Yet at the same time it was realized that the same street bureaucrats who chose such a profession face ample pressure in terms of workload, customer grievances, extended duty hours and minimal resources which ultimately defeats their purpose as a service worker.

3 Lipsky. Street level bureaucrat: Dilemmas of the individual in street level, 2010bureaucracy .pg 3-50

Lipsky correctly argues that personalized service delivery is unimaginable since the street level bureaucrat must be ready to serve the collective population. As is the case of a teacher or a police officer Lipsky points out, “teachers should respond to the needs of the individual child, in practice, they must develop techniques to manage a classroom of children. Police officers should respond to the presenting case, in reality, they must develop techniques to recognize and respond to various types of confrontations, particularly those that threaten their authority or may pose danger.”

This seems especially true considering 1:50 teacher-student ratio in classroom in Pakistan where the teacher has to accommodate all children in a short period of time and space. While such struggles are real, the question is how to improve service delivery amidst the limited resources while keeping the public schools teacher motivated in career as a teacher.

It is important to place reliance on the street level bureaucrats as playing an essential part in the uplift of the social policing of the state. Not only do the salaries of the street level bureaucrat form a large chunk of the entire public budget but also the scope of public service of these officials has increased over time. This is essentially true in the case of Pakistan where the non- Gazetted officer from cadre 1-16 comprises 80% of the entire strength in Punjab. Therefore catering to their training needs, capacity building and career progression opportunities is essential to build a skilled and motivated force to deliver effective and accountable public service.

The 18th Constitutional Amendment provides provinces an opportunity to build political, administrative and fiscal capacity at all levels to improve policy making and governance processes. The real test for the Punjab government is to provide civil service reforms that are essential to improve service delivery reshape the state-society relationship and sustain the provincial roles and responsibilities. In that context it will be only appropriate for Punjab government to consider adopting a bottom-up approach to reform the provincial civil services. It must be recognized that civil service reforms cannot take place by reforming the senior civil service cadres in a vacuum.

A street level bureaucrat is inevitably stuck between two worlds during his tenure of service. There is one that is his world of aspirations and the other of corruption and favoritism that will define his daily routine if he succumbs to it. Lipsky states that majority of the street-level bureaucrats service time is spent in the “corrupted world of service”.4 The role that these street- level bureaucrats play is special in term of making public policy. Lipsky correctly identifies that by training, street-level bureaucrats should respond to the individual needs or characteristics of the people they serve or confront. In practice, they must deal with clients collectively, because work requirements prohibit individualized responses. Teachers should respond to the needs of the individual child, yet in practice this is not possible, as they must develop techniques to

4ibid, pg 1

manage a classroom of children. Police officers should respond to the presenting case, in reality, they must develop techniques to recognize and respond to various types of confrontations, particularly those that threaten their authority or may pose danger5. This is particularly prevalent in Pakistan where the police officers, to tackle various challenges, end up inventing modes of mass processing that more or less permit them to deal with the public fairly, appropriately and thoughtfully. However at worst times, they give in to favoritism, stereotyping, convenience and converting to routine all of which serve their own or agency purposes.

While there have been numerous civil service reforms plans that advocated in the past, even some of the most well organized reforms have shown little improvement in the state-citizen relationship. The capacity and performance of civil service cannot be improved in isolation by focusing only on the senior bureaucracy (Grade 17 and above). There is in fact, a need for overarching reforms that should focus at gauging, improving and advocating civil service reforms using a bottom-up approach especially after the 18th Amendment. Three recent reports, namely Kardar (2007), Laking (2007) and ADB (2009) draw attention towards provincial reforms in Punjab. However, the key limitation of these studies has been that they lump Grade 1 to 16 under the district service without paying adequate attention to their needs, skill sets, aspirations, authority and behavioral aspects.

Countries with successful ongoing civil service reforms have one thing in common, which is commitment and consistency to reform by the top leadership. The “Look East” policy has benefitted countries such as Japan, Korea and Malaysia. This policy instills eastern values and work ethics that translate into improvement in all fronts in provision of effective public services. These points can similarly be inculcated in the governance structure of the Pakistani bureaucracy. Cultures develop as a result of external influences, custom and practice, history, and so on. They become established over time and can exert a powerful influence on the behavior of populations and workforces. At present there is an observable lack of commitment to reform at the senior levels of the public service. Punjab has 1,018,579 sanctioned civil servants positions, of these 362,175 are at the provincial level and 657,824 at the respective 36 district governments.

The figures in Punjab from BS 1- 22 are illustrated below:

Table 2

Pay Scale Positions Percent of Total

BS 1-15 903,274 83.4

5 ibid pg 13

BS 16-22 115,305 16.6

Total 1,018,579 100.0

Figure 2 Distribution of Seats according to Pay Scale in Punjab Source: Management and Professional Development Department report 2010

On the whole, the province of Punjab has nearly 83.4% of the civil servants employed in BS 1- 15 category. In the provincial departments around 16.6 % positions are distributed between BS 16-22. Therefore, this study contends and pleads on carefully analyzing the role, responsibilities and needs of these cadres - the subordinate services that are the face of the state.

Rationale The purpose of this study was to examine the recruitment procedures, structure and functions of provincial bureaucracy, posting/transfers, career prospects and how they impact performance of the street-level bureaucrats in the delivery of services. What can be done to improve the capacity and quality of these public officials? The study focused the following four departments;-

 Education  Health  Police  Revenue

The rationale for focusing these departments was that more than 80 percent of the civil servants form the bulk of these four departments. Similarly, civil servants in the subordinate cadres (Grades 5 to 16) form a large part in these departments. Also, given the issues in public service delivery and the fact that these civil servants are the first point of contact for ordinary citizens and the face of the state, it was increasingly important to examine why adequate attention had not been paid to improve and reform the subordinate cadres.

The real test for the Punjab Government is to provide civil service reforms that are essential to improve service delivery to reshape the state-society relationship and sustain the provincial roles and responsibilities following the 18th Constitutional Amendment. In that context it will be only appropriate for Punjab government to consider adopting a bottom‟s up approach to reform the provincial civil services. It must be recognized that civil service reforms cannot take place by reforming the senior civil service cadres in a vacuum.

Key Research Questions

In light of this study the following key research questions were developed;-

1. Is recruitment of the subordinate cadre BPS 5- 16 the function of the department?

2. Are there any department specific benchmarks for recruitment, assessment and training of lower cadre? 3. To what degree does the Punjab Public Service Commission (PPSC) hold a key in recruitment of the lower cadre? 4. Does the department handle the posting/transfers of the lower cadre and are they based on merit/political patronage/territorial based/district based? 5. Is there a structure for promotion or career progression?

For citizens view the questions were as follows;-

1. How does the department treat them in terms of service delivery? 2. How long does it take for the department to complete its task and deliver a service to you? 3. What are the complaints of citizen against the department? 4. Does the citizen believe the department is well equipped and trained to provide them the service they need?

Study Sites Punjab is Pakistan‟s most populous province with almost 58 percent of the total population of the country living in 36 districts. However, given the constraints of funding and practical needs, this study was limited to four districts. This baseline selected four districts, including Lahore, Sheikhupura, Faisalabad and Kasur. Figure 1 presents the geographical distribution of 36 districts and highlights the four districts chosen for this baseline study.

Figure3 Districts of Punjab Province Study Objectives The overall purpose of the study was to gain a deeper understanding of the citizen-state relationship by examining the structure and functioning of the provincial bureaucracy in Punjab. Identify gaps and missing links and explore the prospects of improvement and reform. Specifically this study was designed to;-

 Analyze the role, responsibilities and performance of the lower cadres (the subordinate bureaucracy as identified above) of the provincial bureaucracy in Punjab. In that sense departing from most of the literature on civil service reforms that focuses on the higher echelons of bureaucracy.  It will focus on the subordinate cadres (BPS 9-16) of the four departments namely; education, health, police and revenue. Examine their recruitment procedures, postings/transfers, career prospects and how the performance of these „junior‟ bureaucrats impacts the lives of ordinary citizens. Could reform and capacity building of these „junior bureaucrats‟ improve governance and delivery of service in Punjab?

Study Design Methodology The study was qualitative, analytical and descriptive in nature. The literature review was carried out alongside the empirical and evidence based data collection to assess the governance and performance of the civil services in Punjab. The qualitative data was collected through open- ended questions and semi-structured interview protocol. The research was preliminary and drew samples from four districts of Punjab, including Lahore, Sheikhupura, Kasur and Faisalabad. It followed a stratified random sampling technique.

The research teams observed the four departments to understand organizational culture, service structure and interviewed provincial bureaucracy. Interviews were also conducted to assess the stages of recruitment, training, and assessment along with the working of lower cadre of the civil service.

The following data collection tools were employed for research purposes;-

Planning Meetings

The research teams reached out to the senior bureaucrats of all the four target departments to conduct planning meetings in liaison with the consultants with an aim to develop a better understanding of their thoughts on service delivery issues at the subordinate cadre.

The health department meetings were arranged in the health department, District Health Headquarters, District Complex, Director General Nursing Lahore, EDO Health Office in Lahore, Kasur, Sheikhupura and Faisalabad. The senior officers of the Police Service of Pakistan of the rank of Deputy Inspector General and Additional Inspector General of Police were met at the CPO in addition to a retired IGP and AIG. The education department meetings were conducted at provincial education department, School Education Department, PESRP, Sheikhupura District Complex, and Directorate of Staff Development (DSD) and Management Professional Development Department (MPDD). Similarly, the research team held meetings with senior officials of the BOR, senior official at the Directorate General of Punjab Kachi Abadi and

officials of Project Management Unit (PMU) of Land Record Management Information System (LRMIS).

Perception Interviews

An open ended set of questions (40 in total, though not limited) was developed for the purpose of qualitative data collection. The questionnaire was developed in the light of the available literature and discussion with the Core Working Group and group of consultants for the project. In addition to this self-developed semi-structured interview protocol was used to collect the qualitative data for the study. The draft questionnaire was peer reviewed with the consultants and comments from CVP-TDEA were also incorporated.

A two-part questionnaire was prepared, one for the bureaucrats in the four respective departments and one for the citizens‟ response regarding effective public service delivery. The questions for the bureaucrats aimed specifically at the Grade 9, 14 and 16.

The modules of the questionnaire are listed below:

 Grade Composition  Recruitment  Training  Career Incentives  Promotion

The questions for the citizens perception focused on how they are treated by the department, how long does it take to complete their task and their complaints regarding the department? The CPPG collected perception of ordinary citizens through 20 interviews based on their interaction with the bureaucracy and service providing government departments.

Participant Observation

The research teams spent five days observing each of the four departments to understand the institutional culture. Processes and working. The assessment was carried out as observers.

The observation for the health department was carried out at two government hospitals in Lahore (Jinnah Hospital and Services Hospital), district hospital and district health headquarter (DHQ) at districts of Faisalabad, Sheikhupura and Kasur. The convenient sampling technique was used for the selection of hospital. The respondents for this citizen survey were patients / common citizen seeking health service at these locations.

A similar sampling technique was used for the police department in Lahore, Kasur, Sheikhupura and Faisalabad. The research teams visited the police stations to observe the working in order to understand the administrative practices and daily routine of the subordinate ranks. The

respondents for the citizens‟ survey were common people visiting police stations for matters pertaining to crime reporting/ lodging FIR and for basic inquiries regarding matters related to police investigations.

For education department four public schools were selected in the target districts. The convenient sampling technique was used for the selection of schools, which were further divided into two male and two female public schools. The respondents for this survey were the students and their parents. In Lahore, the participant observation was carried in two male and female public schools. The teams spent two days at the school education department of Punjab, one day at training institute DSD and one at PESRP. Furthermore one day was spent in Sheikhupura observing the schools and district administration of the school department.

Similar sampling technique was followed in the revenue department in the target districts. The teams visited the Patwar Circles and Land Record Management Information System (LRMIS) for participant observation in Lahore. The respondents were ordinary citizens visiting the Land Record Management Information System (LRMIS) and the local Patwar Circles (Patwar Khanas) for basic inquiries regarding land record and obtaining land record documents.

Policy Dialogues

Two policy dialogues were conducted during the process. The first dialogue on “Challenges of Efficiency and Organizational Culture in the Provincial Bureaucracy” was held on June 11, 2015 and attended by provincial and federal bureaucrats, human rights workers, lawyers and civil society members. The purpose of the dialogue was to build consensus among relevant stakeholders regarding ways to improve governance, transparency and accountability in Punjab Civil Services and to identify some of the major challenges in terms of recruitment policy and prospects, tenure certainty and promotion. The participants and the speakers suggested ways to overcome the challenges of efficiency and organizational culture in the provincial bureaucracy.

The second policy dialogue on “How can the performance of the Punjab bureaucracy be improved” was held on August 10, 2015. The participants of the dialogue included provincial and federal bureaucrats, human rights workers, lawyers, officials from the lower cadre (9-16) and civil society members. The purpose of the dialogue was to identify ways in which governance, transparency and accountability can be improved in the Punjab Civil Services. The views of the stakeholders were expected to contribute to Punjab Civil Service Reforms Plan. Since the project focused on civil servants in the subordinate bureaucracy, participants and speakers were requested to identify some of the major issues related to their recruitment, training, incentive structure, institutional culture and relationship with superior bureaucracy. The participants and the speakers were requested to suggest ways to improve the performance of provincial bureaucracy that would eventually form part of the Punjab Civil Service Reform Plan. The findings of the dialogue revealed that emphasis should be laid on the recruitment and training of

the lower cadre of the four departments. The issue of administrative clerks was also highlighted regarding their use of protest as a tool to push for their demands.

Focus Group Discussions

Four focus group discussions (FGD) were conducted during the project period. The FGD for education department was held on August 26, 2015, with 20 participants representing lower and higher tier public primary, elementary, secondary teachers, principals and Punjab Teachers Union. The discussion focused on major impediments faced by the teacher in the cadre of 9- 16 in the performance of their duties, In a nutshell teachers concerns existed out of the delay in promotion, stagnation in one grade, extra duties and deteriorating respect in society.

The FGD for the revenue department was scheduled in the first week of September 2015, which included Patwaris and revenue officers as part of the discussion. A total of six officials (BPS 9- 16) attended the FGD in which the issues in effective service delivery, including recruitment and selection, promotion, the introduction of the LRMIS and its repercussions for the Patwari, were discussed. It was stressed that the new computerized system of LRMIS should be in sync with the Patwari system and Patwari should not be alienated from integrating with the computerized system.

The FGD for police department was held on October 6, 2015, which was attended by 10 participants, including a former IGP, two SHOs, two ASIs, one HC and four constables. The discussion revolved around the challenges faced by the police staff including long duty hours, lack of specialized training and promotion opportunities that resulted in poor motivation and performance, especially among the lower cadres. The issue of salary structure not corresponding to the important role of each of the various positions, especially of the SHO, was also discussed. The participants also highlighted the political interference in police affairs that hampered the creation of a positive image of the civil armed force among the general public.

The FGD for the health department was held on October 7, 2015. The total number of participants was 28 and comprised of middle to lower tier cadre of BPS 9 till 16. The discussion focused on impediments faced by the paramedic staff in their daily routine such as training structure, lack of promotion policy, extra duties and non-implementable service structure.

Quality Control

The questionnaires were routinely checked, complied and completed on a daily basis, often supervised by consultants who assisted with the on-going field visits within the four districts of Lahore, Faisalabad, Kasur and Sheikhupura. If some inconsistencies were identified, the research

team revisited the departments/personnel to gather a comprehensive response from the respective interviewees.

Sampling Methodology

The samples were drawn from all the four target districts of Lahore, Kasur and Sheikhupura and Faisalabad, and were narrowed down to junior technicians, Lady Health Visitor, senior technician and charge nurse for the health department; ASI, SI and Inspector for police, primary school teacher, elementary school teacher and secondary school teacher for education and Patwari, naib-Tehsildar and Tehsildar for the revenue department.

Besides, interviews were also conducted with senior and junior bureaucrats from the four departments. For instance police officers from the rank of IGP, AIGs, DIGs, SSPs, DSPs to Head Constables and Constables, education department officials from the rank of EDO‟s, DEO‟s, AEO‟s, DMO, head master to provincial secretary for the education, revenue department officers from the rank of Senior Member BOR, Director Land and Revenue, Secretary Revenue, Director Kachi Abadi to Gardawar and Qanoongoh were interviewed.

Sample Size The research teams conducted 217 interviews from the four departments, encompassing the provincial bureaucracy (segregated according to Grades 9, 14 and 16 and 17) and Grades 5, 7, 9, 11 and 16 in the police, Grades 9, 12, 14 and 16 in the health, Grades 11-13, Grades 14-15 and Grades 16-17 for revenue and Grades 6 – 15 in the education department. The sample size chosen for citizens‟ surveys was five for all the departments.

The total sample size for the health department was 71, which includes interviews with DG Nursing Department, provincial health department and citizens‟ survey. The sample size for the police department was 42, including 20 respondents from ranks between BPS 5-16 and as many as 15 officers of the superior cadre BPS 17-22. In addition to the above five perceptions interviews were also conducted with common citizens.

The sample size for education department was 78, including 20 samples each of junior cadre between Grade 5-16 from the four districts. Similarly, interviews were conducted with clerks association and associations of PMS Officers besides the citizens‟ perception survey.

The sample size for the revenue department was 26 respondents with 11 from varied cadres/positions from BPS 5-16. At the same time 13 officials of the superior bureaucracy BPS 17-22 of the revenue department were also interviewed, in addition to the citizens‟ perception interview.

Schedule of the Study The CPPG research team concentrated on the four departments for two months, observing them

to understand organizational culture, interview provincial bureaucracy (separated according to grades for each of the department). For the purpose of baseline assessment the schedule of the study included a total of 217 interviews, five citizen surveys for each of the department (for the health department the number increased to 15) and five-day participant observation for each department. For the education and revenue department interviews were also conducted with 12 union representatives (Teachers Union, All Pakistan Clerks Association, and Punjab Provincial Management Association), 14 members of civil society, members of bar association and prosecution department, 14 high ranking provincial and federal officers and retired officers.

The baseline for the four departments, including interviews and participants observation, was completed between April and September 2014. Annex A for details.

Part II

Part II of the document provides elaborate details of the research conducted for this baseline with the four targeted department in the targeted districts. It provides introduction to the working of the four departments, key components that one must learn to understand the culture and work ethics of each department besides the findings of the baseline interviews, perception surveys, focus group discussions and seminars. The key findings in each of the department are provided in a detailed manner while the recommendations are also extensive.

HEALTH DEPARTMENT Punjab is the most populous province of the country. Its current population is estimated to be over 100 million. It has an area of 205,345 square kilometers, consisting of 36 districts and 127 tehsils. Despite an extensive network of public healthcare facilities of 340 hospitals, 2606 BHUs, 337 RHCs, 282 MCHCs and 1201 dispensaries, the overall health status of its population is below the desired level.6

According to Pakistan Economic Survey 2013-14, Pakistan is the sixth most populous country in the world with a projected population of 188 million. According to World Population Data Sheet 2013, Pakistan with population of 363 million in 2050 is expected to retain the same position. The population growth rate in Pakistan is 1.95 %, which is higher than average growth rate of South Asian countries. For Punjab, the growth rate is around 1.6%. The number of people utilizing public sector services continues to increase every year and the department is working under continuing pressure to meet the growing demands of the people and combat the challenge of double burden of disease (communicable and non-communicable). The rapid growth of population at the current rate reinforces the need for additional trained staff, nurses, dispensers, emergency staff etc to meet this progression. These are the lower cadres that exist between BS 9 and 16, that are required the most in order to meet emergency and timely public service delivery.

The Punjab Health Department employs over 100,000 people including management/administrative staff, general cadre workers and specialist staff. Harnessing this huge strength to work cohesively is a major challenge for the department. Recruitment and retention of the correct skill mix in the right ratio still continues to be a challenge. The department is aware of the fact that migration of workers, training issues and improper geographic distribution of staff are all having an impact on the quality of service being provided. To focus specifically on these issues and to maintain an up to date profile for the province the department has set up an HR Management Information Center to document electronic records of all the staff in the province.7

One of the major factors affecting the healthcare at BHUs includes staff absenteeism, limited time (8 AM to 2 PM) of service provision at BHUs and poorly trained staff. Only 74% of total sanctioned positions were filled in public sector health facilities of Punjab8. Some of the essential staff positions such as medical officers, women medical officers and vaccinators were vacant as almost 51% sanctioned positions of MOs and 20% sanctioned positions of vaccinators were vacant in Punjab during 2014. The situation in Sheikhupura was not much different. 79 positions of medical officers were sanctioned at BHU level in the district while only 44 were filled. Similarly only 84 vaccinators were present in Sheikhupura against 109 sanctioned positions.

6 Bureau of Statistics, Government of Punjab, Statistical Pocket Book of The Punjab, 2013 7 Annual Health Report 2013-14, Health Department Govt. of the Punjab 8 Need Assessment and Evidence Budgeting-Sheikhupura Report-Sub National Governance May 2015

GRADE and POSITION “Street level bureaucrats are public sector workers who interact directly with citizens in the course of their jobs and who have substantial discretion in the execution of their work” (Lipsky)

For the purposes of the study we focused on the recruitment, promotion, training and career planning of the following BSP 9-16. These were selected due to the proximate and intricate role they play in providing service delivery one on one to the citizen. In the three-tier structure of the health department these all cadres fall under the tertiary care unit. However considering the frequency, need and requirement such positions were found in almost all the service delivery structure of the health department.

Table 4

GRADE POSITION

BPS 9 Junior Technician /Lady Health Visitor

BPS 12 Surgical Technician

BPS 14 Senior Technician

BPS 16 Charge Nurse

Figure 4 Health Department

Service Delivery Structure In Punjab, health services are provided through a tiered referral system of healthcare facilities with increasing levels of complexity and coverage from primary to secondary and tertiary health facilities. The primary care facilities include basic health units (BHUs), rural health centers (RHCs), government rural dispensaries (GRDs), mother and child health (MCH) centers and TB centers. All of these provide OPD services for preventive and a limited number of curative services. RHCs provide a broader range of curative services 24/7. Primary care facilities also provide outreach preventive services to the communities, through vaccinators, sanitary inspectors and the sanitary patrol. Tehsil and district headquarter hospitals provide increasingly specialized secondary healthcare, while teaching hospitals form the tertiary level tier.

The cadre from tertiary healthcare service was chosen for the study as BHU were not accessible. A majority of the respondents were from the hospitals and district headquarters in the four chosen districts of Punjab.

Medical Education

Health department remains actively involved in the development of human resource for the health system in Punjab. The department runs a number of public medical and dental colleges, nursing schools and paramedical schools to meet the requirements of the province. The teaching facilities and the number of schools include 16 medical colleges, 58 teaching hospitals, 45 nursing schools and six paramedical schools in Punjab.

Respondents for the Interview The departments chosen for the study of the lower cadre were narrowed down according to cadre BPS 9, 14 and 16. A total of 71 respondents were interviewed. The segregation of the composition of type of person interviewed is illustrated through a pie chart below.

Number of Respondents (Health)

5 S&GAD 15 7 Doctor (Administrators)

Nurses (Administrators)

BPS-12 AND Below 5 BPS-16

Citizens 12 6

Figure 5 Number of Respondents (Health) For BPS 16, charge nurse was chosen due to the fact that it offers a straight link between the state and the citizen. The real backbone of the entire health structure depends on the nurses. Therefore analyzing the role of this cadre was essential. In this regards Director General Nursing and its role in nursing was analyzed. The figure above illustrates the number of people interviewed in each department. A majority of those respondents were BPS 16 charge nurses. Five interviews were conducted at the S&GAD with assistant superintendent (BPS 16) was interviewed alongside section officer of BPS 16 and 17. Around 12 staff members from BPS 12 and below were randomly interviewed. The position for this grade included stenographer, Lady Health Worker (LHW) and Lady Health Visitor (LHV), junior technician and senior technician.

Gender Division Of the total number of respondents interviewed in the health department, 55% were female and

45% were male. The health department especially the cadre of nurses BPS 16 and above remains pre-dominantly female.

Gender Proportion of Respondents

Female 55%

Male 45%

0% 10% 20% 30% 40% 50% 60% Figure 6 Gender Proportion of Respondents

Positions of Nursing Cadre The table below shows that the number of nurses working on adhoc basis was more than permanent employees. This poses two challenges. First, the government has three different parallel system of recruitment running (PPSC, contract basis and adhoc). Once adhoc the nurses Sr. Basic Scale Sanctioned Filled Vacant No. 1 20 6 5 1 2 19 22 3 19 3 18 98 79 19 4 17 1359 899 460 5 16 11065 10181 884+1489 (Adhoc)=2373 remain stuck and do not fall in any specific service structure, which undermines their career progression. Through PPSC the BPS 16 falls in a service structure which provides gradual progression once the seats via PPSC are advertised. Second challenge was that due to the existence of three systems, the scarcity of nurses’ remains regardless, which leads to workload and ineffective service delivery. Figure 7 Number of Sanctioned, Filled and Vacant Posts Source: Director General for Nursing, Health Department Qualification Following are the qualifications of the cadre 9, 14 and 16

a. Charge Nurse (BS-16) B.SC (4 years of nursing qualification), including three years of diploma in nursing and one year midwife course

b. Biomedical Technician (BS-11) Matriculate with three years diploma in electro-medical engineering. The recruitment is through a selection committee c. Lady Health Visitor (BS-09) F.Sc pre-medical with relevant diploma and registration with Pakistan Nursing Council

Recruitment The recruitment for post of BS 16 (charge nurses) takes place through PPSC. In August 2015, charge nurses in BS 16 were appointed on adhoc basis for one year through the district recruitment committee.

Training The nursing schools are present in each district and offer a 4-year nursing training program, which includes 3-year nursing diploma and one year midwife course. The students with intermediate qualification, pre-medical, are inducted in such schools. All these trainees are given stipend on monthly basis. However one of the main problems identified with these nursing schools was their lack capacity to train nurses in adequate numbers. These institutions produce merely 2500 graduates every year (DG Nursing) while the number of medical college graduates stands at 4000 doctors annually. 9 Moreover these nursing schools also lack infrastructural facilities such as hostels for nursing students.

Pakistan Nursing Council oversees the curriculum development of nursing diplomas. The curriculum designed for the 4-years degree program of nursing is well-defined and comprehensive. But this degree program is currently being offered only in nursing colleges, not in nursing schools.

The on-job training programs are offered to a very limited number of nurses, mostly hailing from Lahore and its peripheral areas. Most of the refresher courses offered to medical staff are related to various disease drives i.e. dengue, and other communicable diseases. Hence, it can be seen that these refresher courses focus more on prevention and patient management of certain viral diseases rather than general nursing care.

Transfer All postings and transfer of charge nurses within the district are done by the EDO (Health). The Health Secretary Punjab does all the inter-division postings and transfers of charge nurses.

Promotion For a charge nurse to be promoted to BPS 17 depends on the availability of seats. In April 2015 around 500 seats were advertised for BS 17. The BS 16 charge nurses were eligible to apply

9 interview with Director Nursing Punjab August 2015

provided they fulfilled the required qualification. For recruitment in BS 17 M.Sc nursing or equivalent qualification is required from a recognized university along with three years of practical experience as a charge nurse or B.Sc nursing post, registered nurse with at least four years of experience as a charge nurse or a registered nurse or midwife with diploma in ward management along with recognized and valid registration from Pakistan Nursing Council.

Access and Quality of Health Services: A Citizen perspective

The citizen perception survey was conducted among 15 citizens, in an attempt to evaluate the level of their satisfaction with regard to public service delivery. The survey was conducted in two public hospitals i.e. Jinnah Hospital Lahore and Services Institute of Medical Sciences, Lahore. All respondents were attendants to the patients and the ones who had to deal with the hospital staff for all matters regarding the treatment of their patients.

Of the 15 respondents, nine belonged to cities other than Lahore. The patients were referred by local hospitals to Lahore. When asked whether they had any medical facility near their home, the most frequent response was “Yes, but it is in shambles”. With the exception of metropolitans, the nearest working medical facility for most of the people were District Headquarter Hospitals, however, these remain inadequately equipped in medical staff and machinery.

All the respondents admitted that the doctors and nurses were always present on duty and facilitated the patients when they needed them. But the respondents differed on the question of the quality of services being provided. Ten out of 15 highlighted the rude behavior of medical staff. Three respondents also stated that the lower staff i.e. sweepers and guards, demand bribes from the attendants when they want to be with their patients during the visiting hours of senior doctors. Two respondents stated that the doctors check the patients properly, but the nurses have a practice of not attending to the patients properly i.e. they do not administer the patients medicine properly and forge entries in the patient files.

All the respondents highlighted over-crowded public hospitals. They had to wait for long durations even for basic medical tests. This crowding also becomes a problem for the patients seeking admission for treatment. Three respondents claimed petty administrative hindrances for the delayed in redress of their demands.

It was stated that in order to get admission, a patient has to go to various offices for signatures, which adds to undue fatigue for citizens. One respondent, who came for medical fitness certificate, complained that there was only one public hospital in Lahore authorized to issue such certificates which resulted in long queues at all the times. Such applicants also waited in queues with common patients, which increased the burden of laboratories and other facilities. The

general demand was from the government to authorize other hospitals to issue these certificates as well.

Of the respondents, five were clearly satisfied with the health facilities of the hospital. They were of the view the public pressure makes the staff behavior rude and people should exercise patience while seeking treatment. One respondent stated that he was visiting Jinnah Hospital for the last fifteen years and was always provided satisfactory treatment.

All respondent were of the view that in-spite of all the hurdles, the public hospitals perform better than private hospital on account of free medical check-up and competent doctors. However it was important to note that most of the bottlenecks especially in primary healthcare service delivery were governance related and improvement in governance was likely to improve the quality of service delivery.

The pie chart below shows the daily problems faced by a common citizen in a public hospital.

Figure 8: Problems Identified by Citizens

28% 39%

33%

Overburdened Facilities Rude Behaviour of Staff Administrative Hindrances

Figure 8 Problems Identified by Citizens KEY FINDINGS 1. Problems in the nursing cadre

When asked about the problems faced by the nurses in their day-to-day service, around 44 percent of the total respondents said it was shortage of staff with which they were overburdened. As many as 22 percent said they were not provided with postgraduate allowance if they wished to improve their qualification. Around 28 percent of the nurses interviewed blamed the delay in promotion as the biggest hurdle in their careers.

Figure 9

Problems of Nursing Cadre BS-16

6% 28%

44%

22% Delayed Promotions No Post-graduation Allowance Shortage of Nurses No Administrative Powers of DG Nursing

Figure 9 Problems of Nursing Cadre BS-16 Note: This was a sample size drawn from the four districts and includes responses from nurse of cadre BS 16 (and 17 and 18).

2. Scarcity of nurses and staff

The table below shows the dearth of nurses regardless of the appointments made. Normally there should be one single nurse serving up to more than 11 patients. However field observations in hospitals highlighted this point more evidently where one nurse was serving up to more than 40 (1:40) patients in one ward. Field visits to Kasur, Faisalabad and Sheikhupura revealed that the shortage of nurses was alarming and hampered the appropriate service delivery to the patients. In DHQ Kasur, the required strength of medical staff was 247, but only 108 seats were filled while 139 were vacant. Similarly at the Allied hospital, Faisalabad, it was found that there were approximately 590 charge nurses (BS-16) and 300 students. But 134 seats of charge nurses were vacant. The shortage of nurses‟ remain acute and definitely a factor in lack of effective and adequate public service delivery.

Current Nurse Patient Ratio (according to Director General Nursing) Sr. Total No. Of Total No. of Total No. of General Requirement of # Patient Bed in Hospitals Staff Nurses Nurse Patient charge nurses Punjab Ration according to PNC

1 30,875 Sp. Inst.= 21 (11065 1:11 19,990 DHQ = 36 Regular) THQ = 109 (1489 Adhoc) RHC = 301 Figure 10 Current Nurse Patient Ratio (According to DG Nursing) 3. Problem of Human resource In Punjab, BHUs are faced with a significant shortage of doctors and other paramedic and nursing staff. On an overall basis only 74 percent of all sanctioned positions were filled. The

table below shows that majority of the posts of cadre below BS 16, proportionately amounts to 50 percent (LHV, dispenser, vaccinators, midwives) of the sanctioned staff strength. The details are as below;-: Total filled pons against the sanctioned strength

Figure 11 Total Filled Positions against the Sanctioned Strength Source: MIS Cell, Health Department, and Government of the Punjab, 2015. EPI Cell, PHIS 4. Political interference (Governance and Management Issues) The management and administration of health services in the district is the responsibility of EDO (H). He has the authority to manage and implement all the health projects in the district in the supervisor to District Officer Health (DOH), but political interference at the district level has restricted the authority to be exercised by these health mangers. This results in delayed health projects causing problems to the end users. This was evidently highlighted during the visit to EDO (H) office in Kasur where the EDO had an argument with a local politician over transfer of his nominated person. This incident highlights two important things. One, the political involvement in administrative issues ties the hands of administrators, and they are stuck in such matters neglecting the real work of the departments. Second, the attitude of politically backed government servants was markedly derogatory towards their seniors, which led to departmental inefficiency and indiscipline.

5. Effective HR Management It was observed that the lack of effective HR management undermined the service delivery in almost all the four districts. People at district level were not trained in administrative and HR policies. The HR positions sanctioned by the health department were not filled as doctors and other staff was unwilling to serve in rural areas despite the incentives offered by the government. This causes overstaffing in urban areas and understaffing in rural areas. Moreover, chronic staff absenteeism and critical shortage of female health professionals from health facilities was also hampering the output of health sector.

Conclusion The data assessment indicates that people tend to benefit more from medical facilities that are located near their homes and it also reduces burden on the public hospitals. If was further highlighted during the interviews that the level of satisfactory medical services were only limited to major hospitals. Five of the respondents were satisfied with the health facilities of the hospital. They were of the view the public pressure makes the staff behavior rude and the citizens should be patient for their treatment. The respondents found the services provided at the public hospital better as compared to private hospital. However, the issues of primary health care can only be addressed with better human resource management, adequate recruitment, employment benefits and career progression for the junior cadres.

POLICE DEPARTMENT

Introduction Police is the coercive arm of the state in combating crimes and maintaining law and order. In Pakistan there is a huge communication gap between the police and the common citizens due to persistent corruption, inadequate skills, poor infrastructure and training which add to inefficient service delivery and lack of satisfactory performance by the police officials.10 Pakistan‟s police force lacks training of personnel, there is a shortage of adequate staff, along with professional shortcomings, mainly attributed to outdated equipment and deficiencies in effective intelligence gathering.

According to Abbas (2012), police reforms and the reform mechanism was never prioritized. Given the current dynamics of the security situation in Pakistan, rising crime rates and the general law and order situation, investing in the police service reforms and infrastructure remains the need of the hour. Surprisingly no one has ever questioned the authorities concerned regarding the general trend of not investing in the capacity enhancement of the police as a premier law enforcement agency. 11 The main emphasis has been considerably on the capacity building initiatives for the superior cadre of the Police Service of Pakistan (PSP) and there were limited capacity enhancement programs geared towards the subordinate cadre.

A well functioning civil service is imperative for good governance. Reforms in the civil service have to be well structured and transparent in order to ensure merit across the board and instill a sense of accountability among the public servants. This will in turn enhance their capacity to deliver in an efficient manner focusing on a „citizen friendly‟ approach.12

This study focused on the reforms of the lower cadre of the Punjab police regulated under the Police Order 2002 and constituted under the Police Rules of 1934. The Central Police Office is headquartered in Lahore which constitutes of a number of branches that include the Legal Affairs Branch, Finance and Welfare, Establishment, Operations, Training and the Research & Development Branch. The respective Additional Inspector General‟s of these units report to the Inspector General of Police directly. The IG of Police is ex-officio Secretary to the Government of Punjab. The main police formations are as follows;-

 Central Police Office (CPO), Punjab  Police Regions  Counter Terrorism Department (CTD)  Elite Police

10Tariq Khosa, “Police Politics and the People of Pakistan,” PILDAT (2015): 1-27 11Hassan Abbas, “Stabilizing Pakistan through Police Reform,” Asia Society (2012), accessed June 2nd, 2015. 12 Saeed Shafqat, “Pakistani Bureaucracy: Crisis of Governance and Prospects of Reform” The Pakistan Development Review 38:4 (1999).

 Traffic Police  Punjab Highway Patrol  Investigation Branch  Special Branch  Telecommunication Branch.

There are 667 police stations across Punjab and police to population ratio slightly better than the national figure but still abysmal in comparison to several other countries.

Country/Province Police to Population ratio Bangladesh 1:1138 India 1:728 Philippines 1:665 Japan 1:563 New Zealand 1:416 Singapore 1:416 Malaysia 1:249 Thailand 1:228 Hong Kong 1:220 Pakistan 1:625 Punjab 1:529 Sanctioned strength of Punjab (PO 2002) 1:450 Figure 12. Comparison of police to population ratio in some countries

The research focused on induction, job descriptions, trainings and promotions of the subordinate cadre in the police department and the issues pertaining to effective service delivery in the subordinate cadre (BPS 5-16) which includes constables (BPS-05), head constables (BPS- 7), assistant sub- inspectors (BPS-9) and sub-inspectors (BPS-14) and inspectors (BPS-16). The main focus was however on the office of „SHO‟ as the position remains lucrative in terms of authority and various roles and responsibilities with immense nuisance value and undue administrative power.

Grade and Position The research focused on the following subordinate cadre of the police department;-

Grades Positions

BPS-5 Constable

BPS-7 Head Constable

BPS-9 Assistant-Sub Inspector

BPS-14 Sub-Inspector

BPS-16 Inspector

Figure 13 Grades and Positions

Department Interviews

Interview Statistics of Police

38% Subordinate Cadre (BPS-5 to BPS-16)

62% Senior Officials (BPS-17 to BPS-21)

Figure 14 Field Visits Figure above shows the details of the field visits conducted for the research. A majority of the interviews (62%) were conducted in the field formations/police stations, which included interviews with police constables, head constables, assistant sub-inspectors, sub-inspectors and inspectors. It was followed by interviews with senior officers of the Police Service (Grade 17-22) which accounted for 38 percent of the interviews and included officers of the rank of DSP to IGP.

Interview Statistics according to grades

3% 13% 10% Grade 22 officials Grade 21 officials 10% Grade 20 officials Grade 19 officials 19% 6% Grade 17 officials Grade 16 officials

10% Grade 14 officials Grade 9 officials 3% Grade 7 officials 26%

Figure 15 Interview Statistics according to Grades (BPS) Figure 15 above further details the interviews/field visits conducted according to the Grades or Basic Pay Scales (BPS). A majority of the officers interviewed (26%) belonged to Grade 16, including inspectors, followed by officers in Grade 9 (ASIs) who accounted for 19 percent of the total interviews. Some 13 percent of the interviews were conducted with Grade 7 officers (Head Constables). As many as 10 percent of the interviews (each) were conducted with officers of Grade 21 (Additional IGs), Grade 20 (DIGs) and Grade 17, who comprised of officers of the rank of DSPs. Some six percent of the total interviews were conducted with Grade 19 officials (SSP) and the interview conducted with Grade 22 officer (IGP) accounted for three percent.

Constable Grade 5

Head Constable Grade 7

Assistant Sub Inspector Grade 9

Sub Inspector Grade 14

Inspector Grade 16

Figure 16 Hierarchy of Subordinate Cadre in Police Department (Source: Punjab Police) The organogram above details the subordinate cadre in the police department (BPS 5-16), with inspector being the highest ranking official in the lower cadre (BPS 16) and the constable as the lowest grade (BPS 5).

1. Recruitment and Selection

The minimum educational recruitment criterion for the induction of constables in the police department is Matriculation. The physical requirements are as follows:

. Height: 5ft 7inches . 33-34.5 Chest . Maximum Age (below 25 years)

A selection board is constituted and presided over by an officer of the rank of DIG and assisted by two Superintendents of Police (SPs)13 to ensure transparency across the board and encourage recruitment based on merit. At least one of the officers designated as a board member has to be selected from another district.14 Constables are recruited at district level and the concerned DPO heads the selection board. ASI and Sub Inspector are recruited through PPSC and the concerned RPO looks after the recruitment. About 6000 constables were recruited in 2014, and they were scrutinized through NTS. Recruitment through NTS or PPSC ensures a transparent process, but

13 Interview with Mr. Mr. Saleem Niazi (Station House Officer Police Station A Division Sheikhupura) & Mr. Zubair Nazir (Assistant Superintendent of Police UT), dated June 20, 2015. 14 Interview with Mr. Nawaz Warraich, DIG Establishment CPO Lahore, dated June 10, 2015

still 100% transparency cannot be insured.15 NTS Test is now introduced for recruitment of Constables- SI.16 The candidates have to pass written test with at least 60-70 percent marks. For the physical fitness test, the candidates are required to complete a 3km run in an allocated time. Only such candidates who pass with the highest percentile are selected.17 Recently a psychologist was designated by the departmental board to conduct the psychological test during recruitment of constables. 18 According to the SHO Model Police Station A-Division Sheikhupura, the recruitment process is always competitive and based on merit. The heirs of police martyrs are granted extra marks in the recruitment process.

Previously, the Punjab Public Service Commission (PPSC) directly recruited assistant sub- inspectors (ASIs) through a competitive exam. However, following an amendment in Article 7 of the Police Order 2002, PPSC will now be able to recruit policemen for the rank of sub-inspectors and more than 200 posts of sub-inspectors have been advertised for direct recruitment (Punjab Police, 2015). The advertisement for the general public clearly spelled out the eligibility criteria for selection.

A police officer of the rank of inspector heads the medical board for the police recruits. There are proper checks and balances and accountability mechanisms in place to ensure that the medical exam is conducted on the set criteria and the officer in charge is bound to follow the procedures in place to ensure merit based selection across the board.19

2. Training and Capacity Building of the subordinate cadre

Police recruits are trained at specialized academies in Chung, Farooqabad, Sihala, Multan, Manawan and Sargodha respectively.20 The police training school in Hangu is presently not functional. It is a nine months long rigorous training program which includes the following trainings;- 1. Physical training (PT) 2. Parade (March past) 3. Saluting test 4. Law classes and other academic courses. Elite Force has a separate training facility at Bedian Road Lahore. The Elite Force personnel are trained in commando training tactics. The Elite force commandos (BPS 5-16) get an additional allowance of Rs 2000 - 3000 per month. After successful completion of training the newly recruited police personnel are posted across the province. The constable - sub-inspector are also

15 Ibid. Mr. Mansoor Ahmed and Mr. Masood Khalid

16 Ibid. Mr. Mansoor Ahmed & Mr. Masood Khalid 17 Ibid Mr. Saleem Niazi & Mr. Zubair Nazir 18 Ibid Mr. Nawaz Warraich 19 Ibid Mr. Saleem Niazi & Mr. Zubair Nazir 20 Ibid. Mr. Mansoor Ahmed & Mr. Masood Khalid.

provided refresher courses such as „Field and Craft‟ course which specifically entails training in using tactical weapons. The newly appointed ASIs are referred to as TASI (Temporary Assistant Sub-Inspectors), with a probationary period of three years. On the successful completion of duty and to the satisfaction of their superior officers the probationary period comes to an end and they become part of the regular police force.21

For the capacity building and on-job training of subordinate ranks, Moharar has to pass the „Moharar Course‟ conducted at the concerned Police Lines, Elite Police officials (BPS 5-16) have to undertake Elite Police refresher courses and the regular police officials have to pass the finger print course as well.22 The subordinate ranks (BPS 5-16) as well as the officers of Police Service of Pakistan (PSP, BPS 17-22) have to strictly follow the SOPs and the orders of their superior officers. The police force is a highly organized and disciplined force and any violation to the protocols or laps in the performance of the duty to the satisfaction of the superior officers, results in disciplinary action. The punishments in accordance with the Police E&D Rules of 197523 can range from minor to major, entailing pay cuts, demotion in rank to dismissal from service with no chances of reinstatement.24

3. Promotions &Transfers

The constables have to pass „lower course‟ for promotion to the rank of head constable. The ASIs have to pass an intermediate course for promotion to the rank of sub-inspector. There have been instances when officials inducted as ASIs rouse through the ranks and promoted to DSP, SP, SSP and in some cases even made it to the ranks of DIG. The rapid promotions are highly dependent on the educational qualifications, good reports, outstanding performance in departmental promotion exams and an exemplary service record. Negligence in performing duties to the satisfaction of the superior officers can result in „bad entries‟ in their service record which hampers chances for promotion and postings.25

Junior ranking constables and head constables, who are graduates, can also apply for promotion through the P-Cadet scheme and can rise up the ranks easily (Constables–ASI and head constables directly to sub-inspectors).26 The P-Cadet scheme was initiated in early 1990s. The constables who have more than three years of service are required to take the A-list exam and/or the B1-list exam for promotion to the next higher rank (head constable). The head constables have to take the head constable course or lower class course for promotions to the next rank. The candidates who secure the 1st position in the promotion exams are selected to enroll in a further

21 Ibid. Mr. Saleem Niazi and Mr. Zubair Nazir 22 Ibid. Mr. Mansoor Ahmed and Mr. Masood Khalid 23 Ibid. Mr. Mansoor Ahmed and Mr. Masood Khalid. 24 Ibid. Mr .Saleem Niazi and Mr. Zubair Nazir 25 Ibid. Mr. Mansoor Ahmed and Mr. Masood Khalid. 26 Ibid.Mr. Nawaz Warraich

six months course in the district. Their probationary period is also waived off. A policeman can resign from service with the permission and consent of the concerned DPO.27

The District Police Officer is the competent authority to order postings of the policemen in his district. The postings are mostly carried out in accordance with the service records of the police force personnel and based on good or poor performance and efficiency. A policeman can be posted to different districts across the province.28 The maximum tenure of a police official in the subordinate cadre (BPS 5- BPS 16) in any police station is one year. The police department is a highly disciplined organization and cases of insubordination, not complying with SOPs and unsatisfactory performance can lead to disciplinary action being initiated against the official.

Rural and Urban Police Stations – a comparison The research team visited the urban police station of Old Anarkali in Lahore. Due to the proximity of the police station to the CPO (IG office), the building was well maintained despite being constructed back in 1861. The SHO and Admin Officer apprised the research team that the average strength of a police station in urban areas depends upon the area of jurisdiction and the crime rate. The Old Anarkali Police Station had a sanctioned strength of 65 policemen and the available strength varied from 40-45 policemen. The reasons for the shortfall can be attributed to issues in policy making circles and lack of recruitment drives initiated by the government. Usually there are 2 – 3 crimes reported at the Old Anarkali Police Station on a daily basis, ranging from street crime incidents to accidents and property disputes.29 On a question directed towards the police 15 helpline service, the officers provided a comprehensive insight regarding the system. There is a Criminal Record Office (CRO branch) of the police department which has a proper command center through which all calls and inquiries are routed to the relevant police station having jurisdiction to the area where the caller is calling from and where the crime has been reported or assistance is requested. Unfortunately the police operators receive fake calls as well. The Old Anarkali Police Station has only two official vehicles. The more reliable and new vehicle remains deputed on VVIP protocol duties and makes it difficult to perform constant patrolling owing to the shortage of vehicles. Each vehicle was sanctioned 11-12 liters of petrol on a daily basis. The police station was assigned female staff since the IGP issued circular for female police wardens and officers to be posted at police stations and HQ and not in the field following a harassment incident of female traffic wardens. The average operational cost of running a police station is Rs. 200,000/- approximately. Although budget is allocated for the maintenance and bearing the operational cost of a police

27 Ibid. Mr. Saleem Niazi and Mr. Zubair Nazir 28 Ibid. Mr. Zubair Nazir 29 Interview with Mr. M. Nauman, S.H.O Old Anarkali Police Station, dated June 18, 2015.

station, it is never disbursed. Hence the police stations operate on „self generated funds‟ and the element of corruption is imbedded in the system due to this flaw in policy.30

During a visit to a rural police station in Hayer Village on the periphery of Bedian Road Lahore the research team observed that the police station was not in a good condition. The building was in shambles and not well maintained. The SHO and Admin Officer apprised the research team that maintenance budget is pre-allocated for the police stations but is never disbursed to the police stations. Most of the furniture present in the police station is arranged by the police station officials themselves.31

During a visit to two police stations in Faisalabad the research team was apprised that there are a total of 40 police stations in Faisalabad, whereas the total population is 5,429,547 persons as of 1998 (PBS). The rule of six people to one police constable according to the Police Act 1861 remains null and void considering the shortage of manpower and the burgeoning population. At present the police to population ratio is 1:558. There are 25 villages in the jurisdiction of Khurianwala police station which has the following strength:-

Sanctioned Strength Available Strength

2 Inspectors 1 Inspector

6 Sub Inspectors 4 Sub Inspectors

8 ASI 13 ASI

12 Head Constable 11 Head Constable

80 Constables 70 Constables

The nature of crime in the jurisdiction varies from murder, attempted murder to house robberies. The premises of the police stations were also not in a good condition.32

The overall administrative and organizational activities carried out in all the police stations was found to be more or less uniform apart from the issues of building maintenance and strength of police force which varied across the police stations visited.

Model Police Stations (MPS) in Lahore, Kasur and Sheikhupura

30 Ibid. Mr. Mansoor Ahmed and Mr. Masood Khalid. 31 Interview with Mr. M. Fayyaz, ASI (Admin Officer), PS Hayer Bedian Road Lahore, dated August 19, 2015. 32 Interview with Mr. M. Abid (DSP Khuriyan Wala Faisalabad) and Mr. M. Younis (S.H.O Sargodah Road Faisalabad), dated September 9, 2015.

 MPS D.H.A Phase V Lahore:

During visits to Model Police Stations (MPS) in Lahore Kasur and Sheikhupura, it was observed that the MPSs have proper and well furnished buildings, each of the SHO of MPS has a sanctioned PKR 50,000 - Rs 60,000 per month maintenance budget. The MPSs strictly follow the Standard Operating Procedures. The strength of the police force at the MPSs was adequate and proportionate to the local population and the crime rate. During a visit to MPS DHA Phase V Lahore, the SHO apprised that three vehicles were sanctioned for the MPS and authorized 12 liter petrol daily for patrolling and police raids alone. The investigation wing of the MPS had separate vehicles for performing their tasks.

In every model police station and a normal police station, an ASI is deputed as Admin Officer, who facilitates the complainant before an FIR is registered by Moharir. The Admin Officers are deputed to ensure that the registered FIRs are legitimate since according to the SHOs, fifty to sixty percent of complaints are not based on facts or based on petty issues ranging from personal enmity to land feuds of the complainants.

Police station assistants (PSA) have been recruited on contract for one-and-a-half year and deputed in the MPS DHA Phase V for enhancing public service delivery and assisting the visitors at the MPS. They are well qualified civilians recruited through NTS, and usually hold graduate or post-graduate qualifications. A PSA is assigned to assist the complainant and listen to the issues and prepare a report. Separate female PSAs are deputed to facilitate women complainants. Prior to their postings in MPS, PSAs are enrolled in a three months training program at PITB, Lahore, and trained by the senior officials of police. The PSAs receive a salary of PKR 32000/- monthly and strict job timing of 9-5pm. Every MPS maintains a visitors book, in which the complainants / visitor expresses their views about the conduct of the staff of the police station.

Police System of Beat Punjab Police introduced the „beat system‟ to improve the service delivery and also the image of the police. The area of jurisdiction of one police station is divided into four beats, and in every beat one sub-inspector, one ASI and 10 constables are deputed to carry out surveillance and combat crime. Every beat is provided with one wireless set, two motorbikes and hand cuffs. The beat system ensures the quick response of police in case of emergency. Along the lines of the Citizens Police Liaison Committee (CPLC) Punjab police has introduced another robust mechanism in which a „maslahati‟ (consultative) committee has been formed comprising of honorable and respected citizens in the locality of the police station. The „maslehati committee‟ helps in resolving the petty issues reported to the police stations. Another committee of „Awami Tahfuz‟ has also been formed, which comprises of influential and respectable citizens from within the jurisdiction of the police station. The main purpose of the committee is to ensure vigilance of the police and the committee members in curbing crime and maintenance of law and

order. For making a strong network of information, 50 people from the locality of the police station are selected and named as beat coordinators.33

 MPS A Division Sheikhupura

The MPS A-Division Sheikhupura was well maintained and the building was recently renovated with a large parking area. The sanctioned strength for the A-Division Model Police Station Sheikhupura stood at 61 policemen, whereas only 41 policemen were deployed at the time of the visit. The MPS SHO informed that the performance of the police station with a wide jurisdiction and far flung rural areas was being affected due to shortage of staff. This situation further affects the performance of the police in combating crime and maintaining law and order.

The A-Division Model Police Station Sheikhupura has an allocation of Rs.60,000/- per month as maintenance allowance, which was visible with the police station is well maintained, clean toilets, white washed walls and proper furniture.34

During the visits to the three MPS in Lahore, Sheikhupura and Kasur, it was observed that the buildings of all MPS were well maintained and there was not much difference in the sanctioned strength and available strength of the policemen deployed at the respective MPS. The research team found the MPS DHA Lahore to be the best MPS, since the building was constructed and furnished by the Defense Housing Authority and the PSAs who deputed in MPS DHA Lahore were not present in the MPS in Kasur and Sheikhupura.

Station House Officer (SHO) The Station House Officer is usually an officer of the rank of an inspector or a sub-inspector depending on the area of posting. The SHO belongs to the „upper subordinates‟ rank and is classified in the Basic Pay Scale (BPS-16) which is a „Class II Gazetted Post‟35. The SHO is in charge of a Police Station. In Pakistan it is generally observed that the position of SHO is of immense importance and although the SHO is an officer of the subordinate cadre (BPS-16), the position entails vast control and authority. If a person deputed in-charge of the police station has to conduct duty within the limits of the jurisdiction of the police station. The SHO is bound to record the FIRs, detect, apprehend and bring offenders to justice.36

According to the Police Order 2002, there was a separation of investigation and watch/ward at the police station level, however this was rescinded through certain amendments in the Police Order and the investigation wing was henceforth placed under the general command and control of the SHO at the police station level.37 This definitely gave added powers to the SHO which

33 Interview with Mr. M. Zahid, S.H.O MPS D.H.A Phase V Lahore, dated August 18, 2015. 34 Ibid. Mr. Saleem Nawaz. 35 http://www.finance.punjab.gov.pk/system/files/Civil_Service_Rules_Vol1_0.pdf 36 http://pg.punjab.gov.pk/?q=node/319 37 CPDI, “The Police Order 2002: An Introduction,” CPDI Pakistan (2014), accessed August 19, 2015

may lead to interference in the investigation functions. However at the same time it has been observed that the investigations officers work with certain independence and the investigation wing still remains responsible to its own hierarchy for investigations and is monitored by the designated SP Investigations.

The registration of the First Information Report (FIR) is carried out in accordance with the Section 154 of the Criminal Procedure (CrPC). The SHO has an important role in overseeing the registration of a FIR once a cognizable offence is committed.

Admin Officers The post of Admin Officer was recently created by the provincial government. An officer of the rank of ASI is deputed at all the police stations as Admin Officer with the responsibility of monitoring and filing/lodging FIRs. Moharar is supervised by the Admin Officer to ensure transparency across the board and reduce the incidence of corruption,38 as he overlooks the registration of the First Information Report (FIR) and maintains transparency in the process. Lodging a legitimate FIR is the right of all the citizens. Usually 20 applications are received on a daily basis for the registration of a FIR (average in a typical urban neighborhood with moderate crime rate).39

FIR records are maintained and cannot be destroyed and there is a constant monitoring of FIRs by superior officers. However, according to one Admin Officer, most of the cases registered in the FIRs were not based on facts. Lodging a FIR is a very sensitive matter as it becomes a permanent record and subsequently legal proceedings have to be initiated. People usually use this instrument to settle personal scores such as land feuds and personal enmities. Once the FIR is registered it is binding upon the police to take legal action according to the nature of the crime. That is why the police officials deputed at the police stations are hesitant to lodge FIR and do so only after ascertaining the facts. The Admin Officer is in charge of registering a FIR. The process of registering a FIR is very comprehensive. The aggrieved party submits grievances/complaints to the Admin Officer, who then contacts the accused party, conducts interrogations, establishes the facts and investigates further. Through this process if he finds that the case is legitimate, he marks it and the Moharar is advised to register the FIR.40

Since the incidences of registering FIRs on false information are increasing, therefore the police officials are directed by the department to ensure that proper investigation and interrogation of the case is carried out and both the parties are questioned accordingly in the proceedings before an FIR is launched. The SHO is the final authority on ascertaining whether the FIR is legitimate or not and gives the final approval to lodge a FIR. According to Mr. Zubair (ASP UT), if

38 Interview with Mr. Mansoor Ahmed (Admin Officer, ASI) and Mr. Masood Khalid (Head Constable CPO) dated June 16, 2015. 39 Ibid. Mr. Saleem Niazi 40 Ibid. Mr. Mansoor Ahmed

someone lodges a false FIR and the authorities find out that the concerned party lodged that FIR on dubious grounds, the fine for the perpetrator is a mere Rs 2000/- according to the Pakistan Penal Code (PPC).41

Citizens Perception Assessment of data collected from Citizens As many as 10 citizens were randomly selected and interviewed from the district of Lahore and their respective responses were recorded. These were citizens who either visited the police station. The pie chart below shows the perception of citizens about police. 30 % of the people said that police was harsh and rude, 26 % were of the view that it was corrupt, 22 % said it was inefficient, 13 % percent said it was non-cooperative and about 9 % said that police was incompetent.

Figure 17: Perception of Citizens about Police

Inefficient corrupt 22% 26%

Rude and non harsh cooperative 30% 13% Illetrate and incompitent 9%

Figure 17 Perception of Citizens about Police

KEY FINDINGS

1. Shortage of Police force The police department faces serious issues of shortage of sufficient man power. The police force to population ratio remains very low. A large number of policemen are deployed on special duties to guard important buildings, shrines, mosques and detailed on VIP protocol duties which further increase the workload. As a practice the policemen deployed to secure important/sensitive installations or are detailed for VIP protection duty and surveillance, are

41 Ibid. Mr. Mr. Saleem Niazi and Mr. Zubair Nazir

dropped at the site, but have to arrange for their own transportation back to the police station/police lines. They are also not provided any food while on duty which sometimes extends to 6-10 hours. This severely hampers the service delivery. Although a new police unit, Specialized Protection Unit (SPU) is currently being raised to provide protection to the VIPs and sensitive installations, which will reroute the deployment of the police force currently on VIP duty to their respective field formations still it will be a burden on the meager resources of the police department.

2. Prolonged Duty Hours and Leaves The police force is required to perform duties day in and day out. The minimum duty time is 12 hours.42 In practice the police force is practically on duty 24/7, with minimum time for rest and recreation.43 The police officers in the subordinate cadres (BPS 5-16) have to perform double shifts in order to get their sanctioned leaves. There is no relief mechanism in place for the welfare of the policemen. A police official is sanctioned 30 casual leaves in a year, which are seldom granted to them. Police is accused of harsh attitude and behavior towards public, the harsh behavior is perhaps the result of extra workload. A rest period of 23 hours a week was sanctioned by a former IG, Jawed Iqbal, but that has been converted to duty hours. If any subordinate officer complains about the issue, he is either ignored and in extreme cases, disciplinary action is initiated against him. There are only two shifts in the duty, and one person has to perform the duty for continuous 12 hours. Police officials are on duty even on religious and social festivals and complain that they are not able to spend time with their families. The department grants no special allowance for those police officers who perform duties on such festivals, and demand that there should be some monetary compensation for the extra duties.

3. Issues in effective service delivery During interviews with the subordinate cadre (BPS 5-16), it was observed that the police force was wrecked with multiple issues which hamper their service delivery and efficiency.  Training During an interview with an ASI, the team learnt that he was trained at Sihala where the living conditions were deplorable. There was no proper water management or residence, with no time allocated for rest. The overall schedule followed at the training centre was very hectic and sometimes the health of the trainees was affected owing to tough living conditions.44 The police training program was not up to the mark and not in accordance with the international standards. The trainees use obsolete ammunition and the modules and subjects taught are not contemporary.45 However it was observed that the training imparted at the Elite Training School

42Ibid. Mr. M. Abid. 43Ibid. Mr. Saleem Niazi 44 Ibid. Mr. M. Fayyaz 45 Ibid. Mr. Abid

was comprehensive and up to the mark. It was at par with the international police training standards.46  Promotions and Postings Although there is a promotion policy of the government regarding the promotion of Punjab police officials, it is not taken into account in actual promotions of the subordinate cadre and there is no specified time beyond which an official has to be promoted.47 There exists disconnect between the rapid promotion of the PSP cadre and that of the subordinate staff (BPS 5-16). The officers of PSP are promoted according to a rapid promotion criteria based on the number of years of service, whereas the lower cadre officers have to wait for several years to get promoted to the next rank. For instance it took 35 years for a constable to get promoted to the rank of inspector. 48 The postings of police officials are also sometimes carried out due to political pressures or vested interests of the politicians or influential stakeholders.  Operational/Maintenance and Stationery Budget Regarding the maintenance of regular police stations the money allocated for the maintenance budget does not reach the police stations. The officer in charge of the police station has to procure and arrange the furniture and carry out the maintenance of the police stations on his own which promotes corrupt practices. Similarly, the stationery allowance is non-existent for regular police stations. Once a FIR is registered, 15 copies of the FIR have to be made according to the SOPs. However the police stations are not provided any allowance for the photocopying and hence the photocopies are made through the personal funds of the Moharar, again giving impetus to corruption. Only 11 - 14 liters of fuel per vehicle are allocated per day for a regular police station which makes patrolling a challenge. The barracks of the subordinate cadre were not properly maintained. The living conditions in these barracks were extremely inadequate.49  Salary, Facilities and Low Motivation The regular police force remains underpaid. The salaries of the subordinate cadre range from (and depending on the number of years of service):- 1. Constable (Rs. 18000 per month, for fresh recruits) 2. Head Constable (RS ?? depending on the years of service) 3. ASI (Rs 24000 per month starting salary) 4. SI (Rs 26000 and above depending on seniority and years of service) 5. Inspector (Rs 26000- 45000) The salaries of the police officials are not promising and according to most of the officials interviewed (BPS-5-16) the workload and the salary incentives are not proportionate. In 2008, although the salaries were doubled but at the same time miscellaneous allowances were

46 Ibid. Mr. M. Fayyaz. 47 Ibid. Mr. Abid. 48 Ibid. Mr. Saleem Niazi. 49 Mr. Mansoor Ahmed.

abolished, e.g. 40 percent special branch allowance, 40 percent Elite Force allowance, 20 percent wireless operation allowance and 20 percent driving allowance were abolished.50 The officers of the subordinate cadre in the police department are not given educational or medical allowance for their families. Facilities to a police official are far less than that of an army soldiers and JCOs. There is no medical or educational facility provided to the family of a police official and no proper residential facilities. The police force usually suffers from low motivation mainly attributed to harsh working conditions, low pay and perks, uncertainty about the promotions and job security and less time to attend to social commitments (few leaves and hectic duty hours). The future of traffic wardens (ASI level) is also bleak. They have no service structure and the increase in salaries is not in line with the years of service and seniority, which has resulted in a state of uncertainty. At the same time accountability of the police often invites disproportionate actions even for minor mistake.

50 Interview with Mr. M. Irfan Gill, S,H.O Sakhem Police Station Kasur, dated September 7, 2015.

EDUCATION DEPARTMENT

Over the period of years, there has been an immense focus on increasing the number of schools and enrolled students in Pakistan. But these efforts have not shown any substantive results. Even Punjab, the most literate province, shows a dismal figure of merely 54.2% of literacy rate. 51 However, there have been some political initiatives by the government in order to uphold the popularity graphs of the political leaders. Primarily it is the low enrolment rates at the primary level, wide disparities between regions and gender, lack of trained teachers, deficiency of proper teaching materials and poor physical infrastructure of schools that is majorly responsible for the poor performance and ineffective service delivery of this sector. The table below shows the total number of primary, middle and high schools in Punjab. The number of schools is further sub-divided into male and female schools.52

School Level No. Of Schools in Punjab

Male Female Total

High 3355 2770 6125

Middle 3556 4774 8330

Primary 17586 19036 36622

Total 24497 26580 51077

Source: School Education Department, Government of Punjab

The total number of public schools namely in Lahore, Sheikupura, Kasur and Faisalabad is as follows

Total Number of Schools District No. Of Schools Lahore 1239

Sheikhupura 1427

Kasur 1502

Faisalabad 2326

Source: School Education Department, Government of Punjab

51 Punjab Development Statistics 2014, Bureau of Statistics, Punjab, p. 149. 52 *The table excludes high secondary and mosque schools from the total number of schools in Punjab. This is mainly due to the fact that the study is lower cadre focused and these schools do not represent Grade 9-16.

The educationists are of the view that in order to enhance the quality of education, there must be standardization and uniformity of education. The key pillars of education system are teachers. The public schools teachers in the lower cadre fall primarily between BPS 9 till BPS 16. Our data assessment shows that the bulk of the strength of teachers exists in the primary and secondary education, Grade 9 and 14 and 16 respectively. Teachers are the backbone of any education system and are central for the enhancement in children‟s critical thinking and cognitive skill building. The government remains unable to train teachers according to the needs of the system. Currently in Punjab, teacher training is imparted through Directorate of Staff Development (DSD). This institution has a chain of 30 Government Colleges for Elementary Teacher53, offering B.Ed. and M.Ed courses. Moreover Directorate for Staff Development (DSD) also organizes various short training workshops and refresher courses of 1 to 4 months but a large number of teachers are still unable to adapt to modern modes of educations. Most of them lack basic computer skills. Earnest efforts are required to equip teachers with modern teaching skills, as unless the educators are educated, the country will remain uneducated. DSD is the premier training institution for the training of the lower cadre 9- 16 Grade teachers. While the DSD trainings may enhance the existing skills and inspire confidence in the teachers yet it remains unable to improve prospects of promotion/career in teaching. This is due to lack of coherence in the promotion structure. The haphazard and mixture of promotion policies has led to stagnation in promotion and frustration amongst the teachers. In addition to providing training to teacher, there is also a need to provide incentives. Career prospects are limited for teaching cadre. Mostly, they are recruited on contractual basis and the contracts are merely extended on expiry. The lack of service structure dissuades competent people from joining the education sector. For the purpose of the study the research questions were based around induction, job descriptions, trainings and promotions of the subordinate staff in the education department and the issues pertaining to effective service delivery in the subordinate cadre (BPS 5-16). The figure below shows the details of the field visits conducted for the research. A majority of the interviews were conducted in Lahore and Sheikhupura with the DEO‟s, EDO‟s, AEO‟s and school teachers (25%), followed by interviews in S&GAD Department Lahore, which included section officers (BSP 15 and 16) and superintendents (BSP 16). The remaining interviews were conducted at Punjab Education Sector Reform Project (PESRP) and teacher training institutes such as MPDD and DSD (11% each).

53 http://www.dsd.edu.pk/pages/contents/8. Accessed on 20-05-2015

Proportion of Departmental Interviews S&GAD 3% DSD 18% 21% PESRP Sheikhupura School Visit 11% 11% MPDD APCA 11% 25% LUMS

Figure18; departmental interviews

 Challenges in Recruitment The recruitment of primary, secondary and elementary school teachers falls under the domain of the District Recruitment Committee (DRC). Under the Teacher Recruitment Policy 2014 54 District Governments are primarily responsible for the whole recruitment process. The DRCs and Complaint Redressal Cells (CRCs) at divisional level have also been constituted in order to assure the transparency of the recruitment process. Entry test has been introduced for the first time in Punjab. Candidates securing 50 percent marks in the entry test qualify and be called for interview by the District Recruitment Committee. The entry test is recognized and organized by NTS. Pre-interview lists are prominently displayed in the offices of the District Monitoring Officer (DMO) and Executive District Officer (EDO) Education. The post-interview merit lists are displayed at the offices of DMO and EDO Education. Political interference in hiring and performance of the teachers remains a key factor for the poor state of affairs. One of the Assistant District Education Officers (DEO) bluntly stated, “the hand of politicians has to be off the teachers recruitment at any level, if we want to improve the quality of elementary education”. Another District Education Officer (Kasur) remarked, “Positive change in education standards can come about only if supervision is strict, teachers know their subject and are regular in teaching it”. Similar sentiments were echoed in citizens‟ perception survey as one of the interviewees stated “ teachers‟ are willing to work but many quit their job too soon”. The test for recruitment of lower cadre is entirely subject oriented rather than taking into account the personality and/or teaching traits of the teachers. The emphasis on interview is minimal.

The table below shows the total strength of teaching staff from cadre 9 to 16 in Punjab. It can be analyzed that the bulk of the teachers fall under BPS 9, 14 and 16. Many teachers who are newly

54 http://schoolportal.punjab.gov.pk/pdf/Recruitment%20Policy-2014.pdf

recruited into BPS 9 remain stagnated in same grade for decades due to lack of proper promotion structure, political favoritism and lack of streamlined policies for each province.

Strength of Teaching Staff in Punjab Pay Scale Strength PST (BPS-09) 105,022 BPS-10 1,588 BPS-11 287 BPS-12 47,842 EST (BPS-14) 84,648 BPS-15 23,678 SST (BPS-16) 38,203

The bar chart below represents the grade wise teaching staff in Lahore existing between cadres 7 to 20. The cadre strength in BSP 9 represents the highest number of PST‟s recruited in 2014- 2015. The second highest is BSP 14 which primarily represents the senior school elementary teacher. The higher the numbers of post against a certain BSP scale represent the higher demand for primary and secondary school teacher.

District and Grade wise Teaching Staff in Lahore

4877

3693

2585

No. Posts No. of 1693 2 28 140 23 1170 927 420 143 9

0 7 9 10 11 12 14 15 16 17 18 19 20 Pay Scale

Figure 19; district wise teaching staff. Source: PMIU/PESRP GASC 2014-2015

The table below shows the grade wise teaching staff in Sheikhupura existing between cadres of 7 to 20. The cadre strength in BSP 9 represents the highest number of PST‟s recruited in 2014- 2015. The second highest is BSP 14, primarily representing senior school elementary educators.

District and Grade wise Teaching Staff in Sheikhupura

2464 1979

No. Posts No. of 1118 0 13 52 15 557 805 285 153 45 4

0 7 9 10 11 12 14 15 16 17 18 19 20 Pay Scale

Figure 20; district and grade wise teaching staff in Sheikhupura. Source: PMIU/PESRP GASC 2014-2015

The scale of a public school primacy teacher starts from BPS 9. The promotion is subject to increase in qualifications. However within the system the service structure does not provide any opportunities of promotion for the years of service. Some PST‟s are stagnated in the same grade for the last two decades. Those teachers who fall in BPS 14 are either directly recruited or have been upgraded after decades of service. The complacency from both the teachers and the Government is a stark reminder of haphazard polices and promotions made on whim rather than performance, qualifications or even seniority.

 Challenges in Training The directorate for staff development (DSD) provides training to the lower cadre of BS 6 to 16. The teams visited the DSD for learning about the courses for PSTS‟s and SST‟s. The teachers are provided two kinds of training a) induction training b) promotion linked trainings that are also called refresher courses. The MPDD offers trainings to Grade 16 and below but compulsory promotion linked trainings were only reserved for Grade 17 and above. The criteria for selection of cadres for training remains undemocratic and teachers are handpicked at will (sometimes with political involvement) for training. Furthermore the current training had a poor system of assessment and evaluation whereby pass / fail criteria is set55.

 Challenges in Promotion It is interesting to note that for successful promotion linked training, merely the completion of training is required and not what score was attained during the training itself. The training even when linked with promotion is not performance based. There is no active participation and therefore those attending the training for promotion have no stake in it and do not own it. This is deemed to be ineffective and hence does not cater to what is actually required in the field from the teachers. This poses a challenge for both the trainer and the trainee. Furthermore there is no

55 Interview with FarooqAlvi, Director Academics, MPDD dated 23 June 2015

proper structure on the timescale of promotion. Many of the trainings provided are also not geared towards providing career progression opportunities. The system needs to link performance and increased qualification with career progression. There have even been those cases where a teacher with a masters or M.Phil degree and yet was working at a lower grade and position. The positions need to commensurate with the qualifications.

Key Findings Inadequate Training

1. The trainees are not assessed on their performance per se in trainings. The system of performance appraisal and evaluation along with follow up on trainings needs to be integrated as a part of trainings of teachers. The quality of trainings includes subject trainings as well as motivation, leadership skills and communication training as part of the curriculum. The trainings at DSD aim to bring about an attitudinal change from within the teachers so as to make them more responsive and accountable.

During various visits to DSD and MPDD it was observed that the prototype of teacher that enters the market was not well trained, as the syllabus offered in universities is not aligned with the demands of school education. Many of the governmental resources are wasted on teacher training rather than enhancement of their soft skills and will to work.56

Disconnect between pre-service and in-service training

2. Bachelors in Education degree is required to become a teacher as a pre-service condition. Once recruited DSD carries out the in-service training. Various officials at DSD were of the view that those teachers who already had a Masters in Education need not go through the process of in-service training, as a M.Ed. should suffice and given credit.

The trainings offered by the DSD lack in enhancing the level of motivation among teachers. Moreover, the timings of trainings are not well coordinated mainly due to administrative issues. The administration wants the selected teachers to join service with the start of educational year, which leaves little time for post induction training. Here it is important to note whether the trainers imparting skills/training to teachers at DSD or MPDD are skilled and motivated themselves or not. The visits to the DSD and MPDD showed that the background of trainers themselves plays a huge role in imparting skills to teachers so on and forth. The trainers of the teachers of school education department must be role models for the trainees.

56 Interview with AzmatSiddique, Course Coordinator (CC) CPD Implementation, Directorate for Staff Development (DSD) dated 22 June 2015

Furthermore the structure of trainings is such that they are designed uniformly for the whole province without considering the needs of specific areas of a district which is crucial for bridging the gap between implementing policies, improving governance and bringing reforms in education. This standardization hampers the provision of quality trainings. Another, major issue was the facilities available at the training centers.

Lack of motivation 3. From the questionnaire administered in training institutes it was observed that problem primarily does not solely lie in the training of teachers but their lack of will 57. The teachers do not consider the trainings as a way of self-progression or as an enhancement in their careers. The approach toward trainings is further tainted when many of those attending trainings are political appointees and are there to only to fill up the space. Lack of motivation was identified as the biggest impediment in public sector education. Despite the fact that public schools teachers are well paid, well trained and have job security (especially when compared to the private schools teachers,) they still lack the will to work. Those joining BPS 9 with MA/MPhil degree do it as a matter of expediency and stopgap arrangement. One MPhil said, “Although I have an MPhil in science I decided to become a teacher and joined the education department at the grade of BPS 9 because no other opportunity was available. There is direct correlation between lack of motivation and lack of career prospects. It was observed that increase in pay raise was not sufficient to motivate, since it also stems from external factors such as working environment and surrounding infrastructural facilities. Many teachers interviewed were dissatisfied with the classroom facilities and libraries which demotivated and hindered them in effective service delivery. One of the interviewee said; “Public school teachers do not feel obligated to come to school”.

Budget Constraints

4. Budgeting is a major factor in improving the service delivery in the school education and consequently in the harnessing the conduct and performance of teachers (lower cadre). The non-salary budget of schools remains limited to such an extent that it becomes difficult to manage schools. Below are the details of a sample school in Sheikhupura district of Punjab that shows lack of basic facilities such as electricity and the consequent payment of utility bills. The chart shows that not a penny had been allocated for free textbooks and charges for Rs 2 million. Travel allowance, which forms 15 percent of the entire sample budget, was poorly provided to the education officer and teachers, which hampered the provision of education. Consequently, teachers end up performing extra-duties other than their assigned tasks e.g. polio vaccination campaigns, etc. to make up for the cost.

57 Interview with AsifaMauji, District Monitoring officer (DMO), Sheikhupura District dated 20 June 2015

Non-Salary Budget of a Sample School 20000 10000 5000 Postage and Telegraph 20000 20000 Telephone and Trunk Call 50000 Gas 5000 50000 20000 Electricity Travelling Allowance 125000 Transportation of Goods P.O.L. Charges Stationery Newspapers Periodicals and Books 250000 100000 Others Transport R & M Of Machinery and Equipment 0 Furniture and Fixtures

Figure 21; Non-salary budget of sample school; Source District Education Officer Sheikhupura office 2015

Lack of career prospects

5. Lack of career prospects amongst the teaching cadre was one of the stark findings that portrayed a sense of demotivation amongst them.

On interviewing teachers in two districts, it was observed that much of the lack of motivation stemmed from lack of career progression. Why would a teacher train a student in the absence of a tangible or an intangible gain? What incentive was there for a teacher to enhance his qualification to move up a grade? Where the progression within the grade such as teachers remains dismal, the persons‟ will to work diminishes. Despite the budget constraints it was observed that teachers lack basic infrastructural facilities, good staff rooms and access to libraries. It was observed that many who opted for teaching such as PST‟s and SST‟s stay in one grade for many years. This was primarily due to dismal career prospects and no future motivation from within the system. Their sense of ownership was curtailed and limited to merely teaching. Many who taught the curriculum did not own it, as they had not been considered to be part of the process of developing it. The sense of complacency and unwillingness to change was deep rooted within the system and the teaching cadres.

It was observed that the tests conducted for the recruitment of primary schools teachers were designed solely according to the university syllabus. While the objectivity in

questions may test a subject specific skill, such method of testing loses out on judging the soft skills and teaching aptitude of the teacher. Furthermore the DRC awards five marks (05) out of a total of 100 to interview. The interview, which ought to be huge part of recruitment process, was given less weight in order to reduce political intervention. In improving service delivery the teachers‟ interview process was one of the key domains in recruiting the right type of teacher. Interview process acts as a filter to maintain quality yet recruitment process was marred due to lack of it. It is an important process of judging the personality of the candidate, so mere five marks for interview makes it difficult for the candidates to make a difference with their soft skills. Moreover, in practice, most of the DRCs award equal marks to all candidates in interviews so that merit can be solely based on the marks obtained in written examination.58 This extra-ordinary importance given solely to written test is not just spreading the culture of memorizing but also affecting the quality of people being inducted as teachers.

Extra Duties

6. The teachers are overburdened with extra tasks and duties that conflict with their capacity to deliver at schools. This point was more poignant when during the focus group discussion all 20 participants were in consensus that teacher were made to perform 12 extra duties, which include polio vaccination, dengue awareness campaigns, carrying out election survey, private school surveys, population surveys etc.

Infrastructure and Environment

7. Lack of proper infrastructure requirements such proper access to staff room for teachers and libraries were some of the findings that revealed the issues teachers faced. Dilapidated buildings and outdated tables, chairs and classroom walls caused a great concern and affected the condition and motivation level of the teachers.

 Cultural conundrum

8. The nobility of imparting knowledge is regarded highly world over. Literally a child‟s future is in the hands of teachers. Yet it is faced with steady erosion of respect for teachers. This can be seen from the salaries they are paid in elite public schools, access to facilities, working conditions etc. The findings in our study led us to explore that what motivates teachers was not just mere increase in salary but by something more substantive. Many teachers interviewed indicated the lack of respect that students had nowadays for teachers. This can be seen as a limiting factor and linked culturally as to how we view teachers and position of the profession in our society. Generating and

58 Interview with Assistant Program Director M. Asif, PESRP dated June 16 2015

giving respect to teachers will allow them to have control over their work and resultantly enhance performance of students as well.

For the study purpose both close and open-ended questions were included in the questionnaire. Some of the essential factors that hindered the effective public service delivery of a teacher are illustrated as follow in the figure below.

Factors Hampering Service Delivery Lack of Training 1% 1% 2%

5% Delayed Promotions 13% 18% Work Overload 5%

Motivation 13% 13%

Lack of Non-Salary Budget

13% 16% Lack of Working Facilities

Figure 22: Factors Hampering Service Delivery The respondents were asked to give opinion regarding the factors that hampered the effective service delivery of the teacher. Motivation (16%) and delayed promotion (18%) were the factors most emphasized by the respondents. Responding to this question one District Monitoring Officer from Sheikupura stated; “Teacher lack self-motivation despite the provision of adequate salary to them”.

There exists no proper structure of promotion for teachers. On promotion a primary school teachers of BSP 9 who had been serving in the same scale for 18 years stated; “There is no time scale or structure through which our promotion can take place. Up gradation primarily only happens on the demand of the union”. Another respondent on promotion stated; “It took me 24 years to be promoted from BPS 16 to BPS 18. The time scale of promotion is tough and tedious”

Many teachers and DEO‟s also complained of lack of non-salary budget (13%) as a factor that hampered their day-to-day functioning. The overhead costs are such that overpower the job at hand and as a result some teachers end up working privately after school hours. Majority of the respondents also showed concerns regarding the dilapidated condition of the schools and buildings.

Around 13% percent of the respondent teachers stated that due to increased workload and extra duties assigned they were not able to focus on the job at hand. These duties included organizing political functions, rallies, community dinners, vaccination campaigns etc.

The initial findings from the data assessment indicate lack of motivation, delay in promotion, career progression, poor working conditions and budgetary constraints restrict and choke the effectiveness of service delivery. All these indicators pointed towards lack of prevalent effective measures to ensure efficient service delivery.

CONCLUSION Schooling quality, location and teachers presence affect parents‟ decision to send their children to school. The issues on the supply side include appropriate and high-quality curricula, the presence, quality, effectiveness of teachers, and efficient school management. While reform in civil service in the education department cannot be isolated, yet the emphasis needs to be on the quality of teachers recruited rather than the quantity to maintain and sustain an efficient and effective public service working force. Motivation and career progression need to be inculcated within the structure as effective service delivery measures.

REVENUE DEPARTMENT In this day and age, with the advancement in technology, documents are being computerized but still if we look at government departments, offices are engulfed by piles of paper and the day to day work is being „governed‟ by paper.59 Land is one of the most precious possessions and categorized as an important asset for any individual and country alike. The economic development of a country is dependent on effective land management and its usage through effective tax collection. The process of manual land administration has been wrecked with corrupt practices, inefficiency and the processes are time consuming and prone to neglect and exploitation, thereby creating a negative public perception and discontent among the citizens. Ownership patterns govern the access to land which is systematically separated into different categories for economic and administrative purposes. 60 According to Dale (1988) 61 Land Information System (LIS) is an instrument for legal, economic and administrative decision making. It assists the officials in planning and developing a database which includes spatially marked data pertaining to a well defined area of land and the procedures and techniques for collecting, processing and updating the data. Land administration entails all the processes relating to recording and gathering all the information about the land ownership and its value. It includes settlement of property rights, land surveys, attributes of land along with their systematic and detailed documentation. 62 Land regulation, management and the use of land, land revenue collection through lease and sales along with taxation and conflict resolution related to the use and ownership of land are also part of the intricate mechanism of land administration system.63

If we look at a case study from Nigeria, land record management administered through a manual system is usually susceptible to cumbersome procedures resulting in various bottlenecks, rampant forgeries, „document laundering,‟ and fraudulent dealings in land transactions and transfer procedures. It is also coupled with cases of multiple land allocations, pending applications, issues of encroachments and issues in effective revenue generation.64 In the case of India, ensuring accountability, transparency and efficiency in an age-old embedded system of land record and administration is a difficult task. To overcome several issues concerning the land administration, computerization of land record was initiated as a robust reform mechanism, following which the workload of the revenue functionaries reduced along with a marked

59 Ibid. Matthew S. Hull. 60Chiemelu and Onwumere, “Land Information System for Efficient Lands Administration and Revenue Generation: A Case Study of Trans-Amadi Industrial Layout, Port Harcourt, Nigeria,” Journal of Information Engineering and Applications (2013). 61 Dale P.F and McLaughlin J.D, “Land Administration,” (New York: Oxford University Press, 1988) 62 Ibid. Chiemelu and Onwumere. 63 Ibid. Dale P.F and McLaughlin J.D. 64 Anthony A Adeoye, “Abuja Geographic Information Systems (AGIS) as a tool for Good Governance in Nigeria (2006). https://www.fig.net/resources/proceedings/fig_proceedings/accra/papers/ts22/ts22_02_adeoye.pdf . Accessed on 25.07.2015. ;

decrease in land disputes and lowered cost of land transactions leading to an improvement in service delivery. However the system is not infallible, there are some inherent issues pertaining to updating land data, online mutation etc.

The interviews and discussions with officials associated with the revenue department focused on induction, job descriptions, trainings and promotions of the subordinate staff and issues pertaining to effective service delivery in the subordinate cadre (BPS 5-16) which includes Patwaris (BPS-09), Qanoongoh / Gardawar (BPS- 11), Naib Tehsildar (BPS-14) and Tehsildar (BPS-16). The main focus of the study remained, however, on the position of a „Patwari.‟ Although Patwari is the lowest ranking official in the revenue department (BPS-09) the position itself is lucrative in terms of authority and various roles and responsibilities with immense nuisance value.

Field Visits 9% 8% 9% LRMIS Field offices 26% 48% BOR Common citizens PRMP

Figure 23; Field visits revenue department Figure above details the field visits conducted for the research. A majority of the interviews (42%) were conducted in the field offices of the revenue department, which included interviews of Tehsildars, Naib Tehsildars, Qanoongoh, Gardawar and Patwaris. It was followed by interviews with senior officers of the Board of Revenue Punjab (23%). The remaining interviews were conducted at LRMIS, PMU and ARCs (19%) followed by interviews with officials of Punjab Resource Management Program (PRMP) and interviews of the common citizens (8% each).

Interviews with Board of Revenue

During formal interviews with senior officers at the Board of Revenue Punjab (BOR), the research team was given a detailed background of the revenue department. The land settlement program was initiated during the time of British rule in India. Subsequently the Directorate of Land Records was established and is working since 1884. Survey of India was the main baseline conducted by the British for revenue collection, including different data for „Chak‟ and „Mauza‟ (different categories of land). Land, which was not occupied, was automatically taken over by the government. The department demarcates boundaries of the unmeasured and unoccupied land.

First barrage was constructed in 1870 under the directives of the British Cabinet.65 The Board of Revenue is the successor of the office of „The Financial Commissioner” which was constituted under the provisions of the West Pakistan Board of Revenue Act 1957. After the dissolution of One Unit in 1970, the Board of Revenue Punjab was established. The BOR is the controlling authority in all matters pertaining to land administration, collection of land taxes, revenue, preparing land record and the custodian of the rights of the land holders.66 According to a senior member BOR Punjab, the department has a large canvas and was designated to look after the land record management across the province. The BOR is also the highest revenue court in the province. Due to the devolution process, the functions of the revenue department went into the background and there were instances of weak supervisory roles of the officers. Recently the department was overhauled and revived from the inefficient red-tape and lack of monitoring/accountability mechanisms.67 A more proactive approach is now in place, officers of the department are effectively carrying out inquires and monitoring the cases under the Punjab Employees Efficiency, Discipline and Accountability Act, 2006 (PEEDA, 2006).

Tehsildar BPS 16

Naeb Tehsildar BPS 14

Gardawar BPS 11

Patwari BPS 9

Figure 24; Hierarchy of Subordinate Cadre (Source: Board of Revenue, Punjab) The organogram above details the subordinate cadre in the revenue department (BPS 5-16), with Tehsildar being the highest ranking in the lower cadre (BPS 16) and the Patwari as the lowest grade (BPS 9) official.

Punjab Revenue Department adheres to the rules of business provided in the Land Record Manual of 1967. The district (Zilla) is headed by district coordination officer and Tehsil by an

65 Interview with Mr. Maqbool Ahmed, Director Land Records Board of Revenue Punjab, dated June 10 2015. 66http://www.punjab-zameen.gov.pk/ Accessed on August 20, 2015 67 Interview with Mr. Nadeem Ashraf, Senior Member Board of Revenue Punjab, dated June 10 2015.

assistant commissioner. One Tehsildar is designated for one Tehsil and is assisted by Naib Tehsildar who further manages the Patwaris in the Patwar circles.68

Province

Division

District

Tehsil

Sub Tehsil

Kanoongoi

Mauza

Figure 25; Administrative Hierarchy (Source: Board of Revenue, Punjab) Figure above shows the administrative hierarchy of the revenue department with province being the highest administrative unit and the Mauza being the lowest administrative unit in managing the land records.

Number of Districts 36 Number of Tehsils 143 Number of Qanoongoi circles 823 Number of Patwar Circles 8006 Number of Mauzaas 25914

Figure 26: Division of Land (Source: www.pbs.gov.pk) Table above gives the details of the number of districts, number of Tehsils, Qanoongoi circles, number of Patwar circles and number of Mauzas in Punjab. There are 36 districts, 143 Tehsils, 823 Qanoongoi circles, 8,006 Patwar circles and 25,914 Mauzaas in Punjab.

68 Interview with Mr. Anjum Zaka Butt, Tehsil Dar Ferozwala, Sheikhupura District, dated June 26, 2015.

 Patwari

Patwari is the custodian of land records and the first interface of revenue department which deals with the public.69 Patwari is the lowest ranking official of the revenue department carrying a bag typically holding 15 registers related to various land records and works under the district registrar. The director land record manages the land records and IG Registration looks after the registration branch while all registrars and sub-registrars report to him. The Director Land Records (DLR) supervises the printing of all papers relating to land record in vernacular form and distributes them. All record pages of the Patwaris are also printed under the orders of the DLR. The record sheet has specific columns to record data and update data pertaining to land with the Land Record Manual being the basic document for the purpose.70

Senior Member BOR described Patwari as „the linchpin of the revenue department, designated with an important role.‟ The general perception about the Patwaris being corrupt can be attributed to the fact that they have monopoly over certain revenue matters which often results in exploitation.71 It is imperative to establish the fact that although Patwari is the lowest ranking official of the revenue department associated with one of the lowest grade BPS-09, the position is in fact the most „sought after‟, with regard to recruitment. This can be attributed to the myriad roles and responsibilities associated with the position of a Patwari and most importantly the degree of power, commanding undue authority and the element of immense „nuisance value.‟ Hence making the apparently low paid, lower grade post the most coveted position among the potential candidates.

 Recruitment

The process of written tests and interviews are conducted for all recruitments at the department and field formations. The job descriptions of all the vacancies are advertised to initiate the process.72

Patwar School

According to the DLR and senior member BOR, the potential candidates who are matriculate, enroll in a „Patwar School‟, a makeshift arrangement operating in rented facilities. In 1995 the Patwar schools were established for the last time at divisional headquarters. On average there are eight makeshift Patwar schools in a divisional headquarters jurisdiction.73 A Patwari has to undergo one year training and pass an initial exam. The training course is administered and conducted by the revenue department and not through PPSC or NTS74. The instructors/teachers

69 Ibid. Mr. AnjumZaka Butt 70 Ibid Mr. Maqbool Ahmed 71 Ibid. Mr. Nadeem Ashraf 72 Ibid. Mr. Maqbool Ahmed 73 Ibid. Mr. Maqbool Ahmed 74 Ibid. Mr. AnjumZaka Butt

at the Patwar Schools are Tehsildars or Naib Tehsildars. Since 2003 no Patwar school has been established.75

KEY FINDINGS The research highlighted the disconnect that exists between the training and skill development of the Patwari and its practical implementation, importance and extensive role of the position. The makeshift arrangements of the Patwar schools, with no formal training institute specifically established to cater to the training needs is a stark reminder of the fact that no serious effort is being made to formalize the training process for recruitment to the post of a Patwari.

1. Selection and Training

i. Once the candidates pass the course, waiting lists are prepared and the best candidates are selected for duty as Patwari in BPS 9 and posted across different districts.76 ii. According to the law, the assistant commissioner is the appointing authority of a Patwari, however, it has been observed that due to the deep-rooted nexus between the elite and the Patwar system, recruitment does revolve around political patronage and vested interests of the „stakeholders‟ involved. iii. After three years of service, a probationary Patwari is regularized as a confirmed Patwari, by the respective assistant commissioners following satisfactory performance assessment. The Patwaris are able to appear in the Qanoongoi test after three years of service as confirmed Patwaris for promotion to the rank of Qanoongoh . The Qanoongoh can appear for promotion test to the position of a Naib Tehsildar, but it has been observed that they are hardly ever promoted.77 iv. Once the officials of the lower cadre are inducted in the revenue department, they undergo no formal training courses or refresher courses. v. There are no on the job training offered to the subordinate staff in the revenue department. Recently some ministerial staff was sent for training at MPDD. There have been instances in which clerks or officials in the lower cadres managed trainings on their own initiative.78 vi. On the other hand the Tehsildars (BPS-16) are recruited through Provincial Public Service Commission (PPSC) and these officials are more competent since they are recruited through merit based recruitment process. The revenue record reading is very important for all officials of the revenue department.79

2. Functions of Patwari

75Interview with Mr. SardarJameel Ahmed, Tehsil Dar Shahdara Lahore dated July 9 2015 76 Ibid. Mr. Nadeem Ashraf 77Ibid Mr. SardarJameel Ahmed 78 Ibid. Mr. Maqbool Ahmed 79 Ibid. Mr. Nadeem Ashraf

On average a Patwari looks after one to six Mouza‟s (a piece of land constituting one or two villages or towns). In Tehsil Ferozwala there are 112 „Mouzas‟ being managed by 35 Patwaris. A Patwari maintains different records like the record of rights, shajra parcha, field book, roznamcha waqqyati, roznamcha qanoongoi, roznamcha partal, measurement instruments, gardawri register etc. Along with this indirectly, the Patwari plays an important role in Ramzan bazaar management, flood management, assisting in elections, processions, revenue collection, collection of agriculture tax etc which at times overshadow their actual duties and responsibilities.80

Land Record Documents Prepared and Managed by Patwaris

A Patwari has to update three kinds of roznamcha on daily basis, which include;-

1. Roznamcha Partaal.: This is a register maintained by the Patwari containing land record data which is duly checked and inspected by the senior officers. The Naib Tehsildar, Tehsildar and other officers check this register and enter their observations in the „Note Partal Tasdiq,‟ hence ensuring all tiers of inspection. 2. Roznamcha Waqaiti.: This register contains a periodic record with corresponding serial numbers and comprehensive reports on the outbreak of diseases in the area, incidents of robbery, settlement of feuds etc. 3. Roznamcha Hadayat: (Ahwal-e-Hadayat). Register containing all the notifications and orders issued. 4. Roznamcha Qarguzari: Register in which the Patwari writes about his daily routine and the work accomplished.81

Extra Duties

Patwari is a pivotal position for not only maintaining land records and revenue collection but also to perform equally critical social, political, financial and administrative tasks. According to the account of various Patwaris, the extra duties are an impediment in ensuring smooth service delivery of the revenue department. Patwari has to get the banners printed and prepare the hoardings for political rallies, make logistic and administrative arrangements and „raise‟ money for any visit by senior government officers, political leadership or other dignitary. This includes managing the venue and food arrangements, transportation costs for the motorcades of the officials and the like. These expenses sometimes amount to millions of rupees which cannot be simply paid through the Patwari‟s personal resources hence they are pushed to „forced corruption.‟ In addition, they are assigned special duties such as inspection of sugar / flour and

80 Ibid. Mr. AnjumZaka Butt 81Ibid Mr. SardarJameel Ahmed

such other commodities, which consume a lot of time and hampers the conduct of real duties pertaining to land record management.

The element of corruption is further catalyzed when funds are not disbursed to the Patwar circles for renting the „Patwar Khana‟ facilities and there is no budget apportioned for paying the utility bills and maintenance/operational cost of the Patwar Khana82.

3. Ban on Recruitment

The senior member BOR apprised the research team that the current political leadership under the orders of the Punjab Chief Minister has directed the Board of Revenue to place a ban on the recruitment of Patwaris owing to the public perception about the alleged rampant corruption within the ranks of Patwaris. At present there are 3000 positions for Patwari lying vacant following the rejection of the request for requisition by the Government of Punjab under the directives of the chief minster.83 There is a proposed revision in the induction of Patwaris with regards to upgrading the minimum educational requirement from matriculation to intermediate.84 One of the Tehsildar during FGD85 claimed that, “There is 100 % political interference in the recruitment of Tehsildar ad Patwaris”. Another Patwari in a frustrating tone said, “The government needs to find the right person for the right job”

4. Land Record Management Information System (LRMIS)

The Land Record Management Information System has been established to assist e-governance and efficient service delivery for matters pertaining to the revenue department. The old land record system was archaic and recording and maintaining all the data relating to land records and management was a cumbersome process. Humanly, it was very difficult to arrange and manage the manual records.

i. Register Haqdaran-e-Zameen

All data of the land owner, Qoum, land size, inheritance etc. and their mutation was maintained separately and after four years it was updated by the Patwaris in the respective Patwar Circles. Due to this cumbersome process, the concerned officials did not manage the process periodically and mostly the data was not updated manually, the Patwaris just used to write brief notes against each update, in some cases the writing was illegible. Parat Patwari is kept by the Patwari and the Parat Sarkar is submitted to the respective Tehsildar.86

ii. Intervention by LRMIS

82 Interview with Mr. Jameel Ahmed, PatwariPakkiThatti Circle Lahore dated July 92015 83 Ibid. Mr. Nadeem Ashraf 84 Interview with Mr. Ahmad Ali, Secretary Revenue dated June 10 2015 85 FGD held on 7th October 2015 86Interview with Ms. Nadia Ahmed Cheema, Manager SD&PD PMU LRMIS, dated June 29 2015.

Jamabandi, including Farad and mutation procedures is now being computerized by LRMIS.87 In the new computerized system the following documents are being issued;-

1) Farad Malkiat 2) Mutation (Inteqal)88

LRMIS teams procured the „Parat Sarkar‟ from the respective districts, scanned all the documents and then computerized the data. A robust system was put into practice whereby a state of the art software was developed based on a „double data entry protocol‟ whereby the data was rechecked in two different tiers and the inherent feature in the software flagged the possible inaccurate data which is further verified and corrected. The software is meticulously designed to correct the errors pertaining to division of land and pointing out errors in land measurement and division which is then further straightened out by the LRMIS teams. The computerization was initiated at the Mauza level and now the scope is being expanded to the Tehsil level. At LRMIS centers, a Farad is issued at the fixed amount of Rs. 50 per transaction. The charges of obtaining a mutation depend on the value of the land and the computer generated income tax amount which is printed on the forms to ensure transparency and curb corrupt practices.89

With the establishment of computerized centers (LRMIS), Farad issuance process now takes 30 minutes. Transactional Farad is prepared with photo of the applicant along with a unique code and time of issuance. The entire mutation process takes 50 minutes through the new computerized system.90

To sensitize the citizens and make them more aware of the processes and fee structure of the services provided by LRMIS, instructions are displayed at every LRMIS center. Currently there are 143 LRMIS centers known as „Arazi Record Centers‟ in 143 Tehsils across Punjab. The land record management information system is also streamlining the personal details of the land owners and matching it with the information on CNIC. In most instances it was found that the real name of the owner was not written on the land records, for instance if the land owner‟s real name is Allah Ditta on the CNIC, he might have registered it as „Dittu‟ in the land records. The LRMIS team is using the computerized system to sync the real names of the land owners as registered in the CNIC with their land records. To facilitate the citizens, now Tehsildars have been authorized to correct the names of the citizens on the land records matching their CNIC. ADLR calls the buyer and seller to the LRMIS center where they go through a biometric verification process (thumb impressions are recorded from both parties) their photographs are taken and their record is subsequently updated.

87 Ibid. Mr. Ahmad Ali. 88 Ibid. Mr. Maqbool Ahmed. 89 Ibid. Ms. Nadia Ahmed Cheema. 90 Ibid. Mr. Nadeem Ashraf

Fard Issuance Fard Issuance by Processs at ARC Patwari Processs of Process of Mutation at Mutation at Verbal Request at Request to Patwari any counter an ARC Patwar Khana •Verbal Request •Request to one at any Counter person i.e. Automated Verification by Patwari verification Patwari from •Automated biometric capturing Record Verification •Verification by biometric Patwari from capturing Record Automated Fee Manual Fee •Automatic •Manual Calculation Determination Calculation of Calculation of Fee fee •Attestation at •Attestation at Payment at cash Payment of fee to Centre Public Assembly counter Patwari •Record Updated •Record updated instantly after four years •Time taken only •Time taken not Printed Fard issued by SCO Hand Written Fard 50 minutes defined issuance by Patwari

Figure 27; Difference in the process of Issuance of Fard and Mutation (Source: LRMIS,2015) Figure above shows a comprehensive comparison of the process of obtaining a „Farad‟ and „Mutation‟ from the Patwari and the LRMIS Arazi Record Centers (ARC) respectively. The figure details the systematic procedure and the ease with which the citizens are facilitated by the ARC in obtaining the „Farad‟ and „Mutation.‟ The new computerized system is more cost effective, less time consuming and it minimizes the interface of Patwaris, hence improving the service delivery of the revenue department.

iii. Inheritance and Women Empowerment

Inheritance process now takes approximately 15 days in which the LRMIS management sends the documents for field verification in the respective areas and hence the interface of the Patwatri is curtailed. LRMIS has undertaken certain steps for the empowerment of the women. In order to ensure that the women get their due inheritance, the new system and procedure at LRMIS verifies all inheritance data with NADRA to ascertain the status of the family members in line with the inheritance. In the past the people used to bribe Patwaris to make fake records which entailed that the womenfolk in the inheritance have „died‟ and the male family members used to usurp their share of the inheritance as well. Now the new system requires the women to be physically present to process the inheritance and they have to biometrically verify if they have waived off their right to inheritance. „Chalans‟ issued at the LRMIS centers are computerized, displaying the legal fee with all the taxes. LRMIS is working for maximum community outreach

by using mass media techniques and it has received quite an overwhelming response from the ordinary citizens gauged through the citizens‟ perception interviews.91

5. Patwari System versus LRMIS

Patwaris welcome the introduction of the new computerized system (LRMIS), but they find a lot of inherent issues in the new system. According to them, land revenue recovery has directly been affected by the computerization of the land records. As the public interface of Patwari is being removed and replaced by assistant director land records (ADLR) appointed at the Arazi Record Centers, it is becoming difficult for the Patwari to collect revenue as Patwari is not being seen as important figure now.

A Patwari is usually appointed at a place where he belongs to and knows most of the people of the specific locality, which makes it easy for him to manage the land records whereas the ADLR is not aware of the ground realities. According to the Patwaris computerization has created more complexities and there are more chances of corruption. The land scam of Rakh Sultanki in Bahria Town and Rakh Jo Jo are a stark reminder of the corrupt practices within the ranks of the LRMIS staff, whereby several officials of the LRMIS were apprehended by the police and put behind the bars owing to their involvement in a mega corruption scandal. They also apprised the research team that there are a number of other duties which cannot be performed through computerization such as;-

1. Girdawri (collection of agri tax, there are two types of Girdawari, Rabi Girdawari done in October and Khareef Girdawari done in March) 2. Nishaan Dahi (demarcation) 3. Taqseem Jaat ( distribution of land)92

According to Patwaris, the process of Inteqal (Mutation) takes more time and more money demanded from the people through touts in ARCs. Before the introduction of the computerized system, there was an element of respect among the people for the Patwaris. The public dealing of the Patwari was also better, since the Patwari used to respond to the requests of the citizens in a timely manner and all the transactions were undertaken in a congenial environment. With the introduction of the computerized system by the LRMIS, a lot of issues surfaced. Errors in data and procedural issues are quite evident. Power outages with no backup resource restrict and limit the work at the ARC. People coming from far flung areas often have to wait for days in order to get their work done. There have been instances of rampant corruption and negligence in duty at the ARCs.93

6. Issues

91 Ibid. Ms Nadia Ahmed Cheema. 92Interview with Mr.Haji Hassan Deen (Patwari), Mr. SafdarHussain Shah (Girdawar), Mr. Rana Muhammad Sajjid (Tehsildar) & Mr. Rana Khalid Ahmed (NaibTehsildar) Patwar Circle Raiwand Lahore District, dated June 29 2015 93Ibid. Mr. SardarJameel Ahmed

Salary of a Patwari is meager and not enough to make ends meet. In most of the instances after a service of 25 long years, he receives Rs 25000 per month inclusive of all benefits. Patwaris are given minimal annual increments. There is an annual increment of just Rs 7.50. There have been no promotions since 2007 as the government is vowing to end “Patwari Culture”. Partwaris do not get stationery allowance. All stationery has to be procured by the Patwari through his „self generated‟ funds. The offices are not in a good shape and mostly established in rented facilities (rent is borne by the Patwari from his own pocket). It is binding upon the Patwari to complete his assigned tasks, working unsocial hours and there is no payment for working overtime.94

On senior member BOR‟s personal initiative, the Government of Punjab approved the traveling allowances (TA) of the Patwaris from Rs 6000/- to Rs 14000/- per month as a fixed travelling allowance. Motorcycles have also been sanctioned to Patwaris. Directives have been issued to increase the Basta allowance (Stationery allowance) for the Patwari from a meager Rs. 5 per month to Rs. 1000 per month.95 However although the notification of Basta allowance of Rs. 1000 per year, increment of Rs. 6000/- and motorcycle for commuting of Patwari has been issued but there is no implementation of this notification yet.96 Hence whenever the „employment is subsidized‟ the problems of corruption increase.

The element of apathy towards this lower cadre is one of the biggest deterrents in their professional development and undermines their efficiency. There are no training programs for the lower cadres of the revenue department. The staff has limited knowhow of the laws pertaining to land and revenue and there is no training of these officials vis-a-vis public service delivery. The general public interacts with this lower cadre staff on daily basis and the government is ignoring their legitimate training right.97

During the course of our FGD conducted one Tehsildar candidly laid down his frustration against the system in which he was working in by stating, “There is no criteria for promotion, no appreciation and no system in place”

2. Analysis of the Interviews

94Ibid. Mr. Jameel Ahmed. 95Ibid Mr. Nadeem Ashraf 96Ibid Mr. Jameel Ahmed. 97 Ibid. Mr. Nadeem Ashraf

Issues in Service Delivery

9% 24%

32% Low Salary Extra Duties Work Enviornment 35% Lack of Promotion & Training

Figure 28: Issues in Service Delivery Figure 12: Analysis of interviews entailing the „Issues which lead to inefficiency in service delivery in the Revenue Department.‟

Figure above details the responses of 21 interviewees regarding their perception about „what issues lead to inefficiency in service delivery in the revenue department.‟ It was interesting to note that majority of the respondents (35%) considered extra duties of the lower cadre staff, especially the extra duties and responsibilities of the Patwari to be the main deterrent in effective service delivery. It was followed by work environment (32%), most of the officials in the lower cadre are of the view that Patwar Khana‟s established on rented facilities were not in a good shape and most of the buildings were in shambles with no budget allocation for operational and maintenance costs. Only 24% of the respondents considered low salary to be a deterrent in effective service delivery and a meager 9% consider lack of promotion and training in the lower cadre to be an issue which limits their efficiency in service delivery.

RECOMMENDATIONS

Health Department –RECOMMENDATIONS 1. Decentralization - It is recommended that the District Health Authorities (DHAs) proposed as a local government tier under the Punjab Local Government Act (PLGA) 2013, must be implemented forthwith in letter and spirit. The service delivery at the district level is severely affected by centralization at the provincial level. If DHAs are established and sufficient decentralization of authority and power is allowed along with a robust monitoring and evaluation system, the Primary Health Care service delivery at least is likely to improve.

2. Staff Recruitment - The identified key health findings show that primarily it is the unfilled staff positions and promotion especially of nurses (BS 16) that require critical thought and action. This is some of the critical areas, which require improvement. These issues have now also been prioritized in the Punjab Health Reforms Roadmap, 2014.

3. Institutionalize Recognition - The nurses, lab technicians and emergency dispensers need recognition, resources and respect for their service as it is the routine and discretionary practices of these lower cadre that ultimately shape and become public policy rather than formal written rules. It is imperative to view policy change from the lens of the “street bureaucrat” such as nurses and technicians so that they are not excluded from the process of policy change.

Police Department- RECOMMENDATIONS

1. Perks and benefits - As an incentive to curb the incidence of crime and arresting the criminals, the police department regularly gives out prize money to the raiding parties of the police force and the policemen with exceptional service record. This practice should be put into place more effectively to ensure that the motivation level of the police force remains high.98

2. Duty Time - There should be a shift system so that the person on duty can perform his duties in an effective way. There should be weekly rest on rotational basis, the police official who performs duty seven days a week is unable to fulfill his household tasks and other personal matters, which affects his efficiency.99

98 Ibid. Mr. Saleem Niazi and Mr. Zubair. 99 Ibid. Mr. M. Zahid.

The National Highway and Motorway Police (NH&MP) is a highly disciplined and professional police force which is respected by the citizens and the government departments. It is considered as the „Model Police Department.‟ Regular police officials are posted to NH&MP and the reason for their efficiency and the lack of corruption in this department can be attributed to the good working conditions for all ranks (Especially subordinate cadre BPS 5-16), market competitive salaries and perks, pick and drop facility and favorable work hours (8am-4pm), shift or the night shift respectively. They get ample rest and recreation time and can easily attend social commitments. 100 The regular police force (BPS 5-16), especially the constables, head constables and ASI‟s on the contrary have to perform their duties day in and day out, under harsh circumstances, brave the cold and stand guard in the scorching heat. If they are deployed for VVIP protocol duty, they are dropped at their pspecific posts in a Police van, but once their duty is finished, they have to go back home on their own expense and most of the time it is late into the night. They should be provided extra allowances for the VIP duties.

3. Training - The police training institutes focus should be on inculcating the highest moral and ethical values among the recruits. Moharar should be provided refresher courses to sensitize them in effective service delivery and public dealing. Training should be revamped with a particular focus on academics and soft skills. Modules should be modified taking into account the current dynamics. In order to improve public interaction of the police force and improve basic provision of service to the local citizens, officials of the lower cadre should be provided refresher and in-house training courses.

4. Promotions - Promotions in the subordinate cadre should be speedy in order to ensure job satisfaction and motivation. Rapid promotion policy as in the case of PSP officers should be replicated in the subordinate cadre. Promotion criteria for the subordinate cadre officers should be linked to their performance, training and effective service delivery.

5. Selection of officers of the lower cadre and bridging the gap between the PSP and lower cadre - There is no functional human resources department in police which sets the criteria in the interview process pertaining to specific questions which will ascertain the cultural and social background of the prospective candidate in selecting the police recruits.

The Government should try to incorporate certain questions in the interview, so as to ascertain the educational, social background of the potential candidates and assess

100 Ibid. Mr. Mansoor Ahmed.

whether they are well rounded individuals with high morals, values and honest in their dealings.101

If we need an improvement in the police, the officers of higher cadre (PSP) should be on board in leading and providing mentorship to the lower cadre (Constables- Inspector), so that there is a sense of belonging in the lower cadre towards the police department and the policies drafted at the senior level should be in sync with the needs and aspirations of the lower cadre.

Since the lower cadres interact with the common citizen and are the street level bureaucrats there is a dire need to focus on the policies aimed at reforming the lower cadre and analyzing the problems and the difficulties faced by them on the job.

Education Department – RECOMMENDATIONS

1. Training in soft skills - It is recommended that leadership and soft skills be imparted amongst the teacher during trainings. Moreover, huge emphasis needs to be on the leadership qualities, personality traits of the teacher, when interviewing for recruitment process. Various studies have highlighted the need for leadership skills amongst the teacher for improvement in better service delivery.

2. Creation of linkages between pre-service and in-service training - The training imparted amongst teachers between Grade 6 till 16, needs to be in sync with the ground realities and the job description. In England and Scotland there is General Teaching Councils (GTC) that under the law acts as a connecting bridge between what is needed and what is required from the teachers and their requisite training. The GTC are concerned with pre-service and in-service or induction training, initial teacher education and training, and continuing professional development. Similarly in Punjab, the quality of training can be enhanced with the assistance of teacher training council that can connect the pre-service training to what is required from the teachers in the field. The content that is taught to the teachers before joining the service does not commensurate with the ongoing service requirements.

3. Trainings need to be cluster specific rather than generic – There are no benchmarks for trainings imparted as teachers from the lower cadre are selected randomly at whim by the district. The trainings do not cater to the particular job description of the teachers. Furthermore the “one size fit all” approach is the norm. There is a need to assess the

101 Interview with Mr. Sohail Khan, Additional IG Finance CPO Lahore, dated June 10, 2015.

requirement of each district and training rather than standardizing training for the entire province. Uniformity in trainings is a hurdle in service delivery. This has led to stagnated growth in the research and development of the education department. Focus ought to be on quality of trainings rather than the number of people trained.102

4. System of follow-up after trainings – There is no follow of trainings provided to the teachers through various trainings institutes, such as MPDD and DSD. There is a need to embed a follow up mechanism where the outcome of training can be monitored and checked through expeditious means. The system of checks and balances needs to be incorporated for minimizing the gap between the need and want in trainings in order to ultimately improve governance and public service delivery.

5. Incentivize structure and instill motivation - In order to curb the lack of motivation amongst teachers there is need to incentivize the teachers not merely through pay raises but by allowing them to feel part of the system and ownership. It was observed in many interviews that majority of schools teachers did not feel the need to improve their pay scale and were complacent to change their skills set and attitude. No signs of career progression are due to lack of incentive which ultimately leads to poor public service delivery. Many who opt to become teachers remain in the same post for many years due to job security and monthly salary no matter how meager.

On a policy level the governance structure needs to be incentivized in order for career progression to take place within the teaching cadre. One way of achieving is to link progression through promotion-based training, which will give them a constant sense of association with their jobs. However one of the prime concerns in improving governance structure through incentives would be to find practical ways in which teachers, for example, will feel motivated to work and delivery their best. One case is “recruit quality to deliver quality” and the other case is to build within the system “motivation triggers” that create better career prospects. Provision of better infrastructure facilities, better access to libraries and giving them key decision-making power such as in the development of the curriculum are ways to enhance their motivation and promote efficient public service delivery. For the teachers to feel motivated, the governance structure needs to be such that allows them to “own” and retain rather than alienate and dislocate.

Revenue Department – RECOMMENDATIONS

102 Interview with Dr Rukhsana Zia Ex Director DSD dated 19 May 2015

1. Training and Capacity Building - The lower cadre of revenue department is in a dire need of capacity enhancement through focused training programs. According to the DLR and other officials of the BOR the following training initiatives should be carried out for the subordinate staff;- 1) Extensive training on land records. 2) Training on effectively carrying out land settlement.

For the lower cadre staff, only typing or ability to use a computer is not enough and the subsequent improvement in the service delivery. Land Acquisition Act is very important and all the staff members of revenue department should go through this document. There are 84 prominent laws of revenue which are frequently used.

2. Training initiatives for Patwaris - Patwaris usually follow the model of „training by learning‟, which is of course a self initiative. The Patwar Schools should be formalized, proper training facilities should be established and qualified instructors appointed to provide specialized training to the candidates aspiring to be selected as Patwaris. This will in turn bring about an improvement in the skill set of the candidates. Thus in order to bring about a major reform in the revenue department, the focus could be on increasing the quantity and improving the quality of the Patwar Schools.

The capacity of the Patwari could be enhanced in an ongoing capacity institutionalization process and they need to be provided formal trainings on;- 1) Land record manual. 2) Land record rules. 3) Stamp Act. 4) Registration rules. 5) Knowledge of all laws pertaining to land management. 6) Laws compendium. 103

3. Service Delivery - In order to improve the standard of service delivery among Patwaris, the government needs to establish proper training facilities (Patwar Schools/Academies) along the lines of their counterparts in other provincial government departments and appoint well trained instructors equipped with robust training programs.

Proper budget allocation for establishing Patwar Khanas is the need of the hour. All the Patwar Khanas established on rented facilities should be provided alternate office spaces in buildings of the revenue department. Operational/maintenance allowance should be provided to each Patwar Khana to ensure smooth running of the revenue functions and

103 Ibid. Mr.Maqbool Ahmed

curtailing corruption, along with a periodic mechanism of checks and balances on each Patwar circle.

In order to bring about reforms within the ranks of Patwaris, it is important to understand that the corrupt practices prevalent within this cadre. The extra duties are forcefully imposed on the Patwaris by their superior officers. The Patwaris and the subordinate cadre of the revenue department do not get any allowance to undertake these tasks. Rather they are required to „generate‟ funds for the „activities‟. One patwari bluntly said during FGD104, “Patwaris have to forcefully „generate‟ funds for the formal and informal political „activities”.

The reform mechanism needs to focus on ensuring that the Patwari only performs the designated responsibilities and duties that too in an accountable manner with necessary checks and; balances by the superior officers. 105 A few officials of the lower cadre suggested that, if Patwari‟s pay is increased to Rs. 50,000 or more per month, the element of corruption will be lowered to some extent.106

The Patwari used to have instruments for land measurement that included the „Jareeb‟- a key instrument for measurement of land. In the case of any issue pertaining to land measurement, the Patwaris used this instrument which looks like a marked stick of a standardized length, the concerned Patwaris then used the Jareeb to measure the land and record it accordingly. But now the Patwaris have no proper instruments for such tasks, these instruments should be sanctioned to the Patwaris for better service delivery.

The Land Revenue Act of 1967 is a robust act, it contains the constitution of the Board, superintendence and control of revenue officers and revenue courts and the powers of the Board are also governed through this Act. The Act also establishes the guidelines for the conduct of business, with prior approval of the government while the Board has the authority to make rules. The Revenue Act of 1967 can be modified taking into account current dynamics of land record management and reintroduced in the revenue department.

Systematic monitoring of Partwari‟s daily work should be carried out. The „Kitab Karguzari Patwari‟ that contained monitoring remarks of the deputy commissioner is no longer maintained. This practice should be revived. Hence reforming the old system and making it more robust is the need of the hour. LRMIS is indeed a robust system which should be further refined and streamlined. It would be a good idea to integrate the Patwari

104FGD held on 7th October 2015 105 Ibid. Mr. SardarJameel Ahmed. 106Ibid. Mr.Haji Hassan Deen, Mr. SafdarHussain Shah, Mr. Rana Muhammad Sajjid& Mr. Rana Khalid Ahmed.

in the new system, instead of alienating them. Patwari system and computerized system should go hand in hand rather than in complete isolation of one another.107

Conclusion The performance of the street-level bureaucrats has a direct bearing on the citizen-state relationship. In order to improve this relationship, the street-level bureaucrats who represent the face of the state need to show a marked improvement in the service delivery. The delay in promotion was a finding that cuts across all the four departments. Furthermore the overall problem regarding the dearth of human resource, limited career progression, extended hours of duty beyond regular work schedule, political interference and poor salary structure and working environment aids to affect the self-esteem and morale of the junior bureaucrats. In the health department the baseline identified gaps in service delivery that exist in the quality of cadres 9-16 and highlighted the inadequate training and unreasonable staff strength working at 1:40 nurse-patient ratio. Similarly, for the police department the study identified insufficient numbers of personnel, limited resources, institutional disconnect with the public, political interference, corruption and lack of modernization. The thrust of the study aimed at enhancing, and effectively improving the work of the lower cadre that existed between grades 9-16. The focus of the reform should be junior officers as they largely carry out the investigative fieldwork. The junior ranked officers do majority of the work while most of the international training were currently being offered to senior supervisory officers. This pattern needs to be reversed so that junior officers have significant training opportunities and perform better in public service delivery. The baseline for education highlighted issues concerning the recruitment and training of the lower cadres and their public service delivery. The need to create linkages between pre-service and in-service trainings remains essential for efficient and effective public service delivery. Furthermore, the system of follow-up after trainings was seen to be the missing element, which the training institutes were aware of and realized the need for it to be effectively built into the system. The quality of education, location of schools, teachers‟ presence, besides other factors, affect parents‟ decision to send their children to school. The issues on the supply side included appropriate and high-quality curricula, the presence, quality and effectiveness of teachers, and efficient school management. While reform in civil service in the education department cannot be isolated yet the emphasis needs to be on the quality of teachers recruited rather than the quantity to maintain and sustain an efficient and effective public service working force. The motivation and career progression needs to be inculcated within the structure as effective service delivery measures. In the recent years the Punjab revenue department underwent certain administrative and structural reforms, which had a positive impact on the service delivery of the department. The

107Ibid. Mr. SardarJameel Ahmed & Mr. Haji Hassan Deen.

computerization of the land record management data has to some extent curtailed corruption. The introduction of LRMIS streamlined the process of obtaining land records and facilitated the citizens in getting effective and efficient services. Still, the office of the Patwari holds a key position and it must form part of the reforms that would help improve service delivery while addressing the genuine employment needs of the staff.

Ends/

ANNEX A

Schedule of study for Health Department

For this baseline study a total of 71 interviews were conducted in the four target districts of Punjab, during July-September 2015. The number of interviews increased as the study moved forward. The citizen survey carried out included 15 respondents. The following tables show the interviews conducted in each department and district over a period of three months.

Department People Interviewed Time Period Place

S&GAD 5 health August- Lahore superintendents September

4 public 15 citizens, 21 Charge August- Lahore, Kasur, Hospitals nurses and 12 lab, x- September Faisalabad

ray technicians

EDO health 4 EDO‟s August- Lahore, Kasur

September and Faisalabad

Director general 2 administrators August- Lahore

Nursing September

Figure 29 Schedule of Study for Health Department

Schedule of the Study for Police Department

For the baseline study of police department a total of 42 interviews were conducted in four districts, during the month of June, July, August and September 2015.

Sr. Place Date Department Name of Officials Designation Grade # (BPS)

1. Lahore 10th June CPO (IG Mr. Nawaz Warraich DIG 20 Urban 2015 Office) Establishment

2. Lahore 10th June CPO (IG Mr. Sohail Khan Additional IG 21 Urban 2015 Office) Finance

3. Lahore 10th June CPO( IG Mr. Sarmad Saeed Additional IG 21 Urban 2015 Office) (Retd)

4. Lahore 10th June CPO (IG Mr. Sahebzada DIG (RPO 20 Urban 2015 Office) Shahzad Sultan Sheikhupura)

5. Lahore 16th June PS Old Mr. Mansoor Ahmed ASI (Admin 9 Urban 2015 Anarkali Officer)

6. Lahore 16th June CPO (IG Mr. Masood Khalid Head Constable. 7 Urban 2015 Office)

7. Lahore 18th June PS Old Mr. Muhammad S.H.O 16 Urban 2015 Anarkali Nauman

8. Sheikhupura 20th June Model PS A Mr. Saleem Niazi S.H.O 16 Urban 2015 Division

9. Sheikhupura 20th June PSP Mr. Zubair Nazir ASP (UT) 17 Urban 2015

10. Lahore 18th August Model PS Mr. M. Zahid S.H.O 16 Urban 2015 DHA Phase V

11. Lahore 18th August Model PS Mr. M. Zulfiqar ASI (Admin 9 Urban DHA Phase V Officer)

12. Lahore 18th August Model PS Mr. M. Azhar PSA (Police - Urban DHA Station Assistant)

13. Lahore 19th August PS Hayer Mr. M. Fayyaz ASI (Admin 9 Rural Bedian Road Officer) Lahore

14. Lahore 19th August PS Hayer Mr. M. Mukhtar Head Constable 7 Rural Bedian Road Lahore

15. Kasur Urban 7th RPO Office Mr. Sahibzada DIG (RPO 20 September Shahzad Sultan Kasur)

16. Kasur Urban 7th DPO Office Mr. Ali Nasir DPO Kasur 19 September

17. Kasur Urban 7th DPO Office Mr. Raza Abbas DSP HQ 17 September Naqvi

18. Kasur Urban 7th DPO Office Mr. M. Qadeer Inspector Legal 16 September

19. Kasur Urban 7th Model PS A Mr. Tariq Mahmood S.H.O 16 September Division

20. Kasur Urban 7th Model PS A Mr. Zia Ullah ASI 9 September Division

21. Kasur Rural 7th PS Shaikham Mr. Irfan Gill S.H.O 16 September

22. Lahore 11th CPO Lahore Capt (Retd) Additional IG 21 Urban September Muhammad Usman (Training) Khattak

23. Lahore 11th Elite Police Qaswer Chohan SI 14 Rural September

24. Faisalabad 9th PS Mr. Muhammad DSP 17 Rural September Khuriyanwala Abid

25. Faisalabad 9th PS Sargodah Mr. Muhammad S.H.O 9 Urban September Road Younis

26. Faisalabad 9th PS Sargodah Mr. Muhammad Ejaz ASI 9 Urban September Road

27. Faisalabad 9th PS Sargodah Mr. M. Younis Head Constable 7 Urban September Road (Moharar)

28. Faisalabad 9th RPO Office Mr. Sajid Rehman District Security 19 Urban September Faisalabad Officer Faisalabad

29. Lahore June- PSP Mr. Khawaja Khalid Inspector 22 Urban September Farooq General of Police (Retired)

30. Lahore 16th PS Hayer Mr. Mian Qadeer S.H.O 16 Rural September Bedian Road Lahore

31. Lahore 16th PS Hayer Mr. M. Ashiq Constable 5 Rural September Bedian Road Lahore

32. Lahore 17th Police Lines Mr. Muhammad ASI 9 Urban September Qilla Gujjar Tayyab Singh

Figure 30 Schedule of Study for Police Schedule of the Study for Education

A total of 78 interviews were conducted in two districts of Punjab i.e. Lahore and Sheikhupura, during April to June 2015.

Department People Interviewed Time Period Place

S&GAD 1 ex-Chief Secretary, 1 Secretary, 1 Deputy 17-26 April 15 Lahore Secretary, 1 DCO, 1 Superintendent, 1 Section officer DSD 1 ex-Program Director, 1 Additional Program 19 May-22 Jun 15 Lahore Director, 1 Course Coordinator PESRP 1 Additional Program Director, 1 Director 16-20 Jun 15 Lahore,

Coordination, 1 DMO (Sheikhupura) Sheikhupura Sheikhupura Visit 1 EDO Education, 1 DDEO, 1 DEO, 1 AEO, 20-Jun-15 Sheikhupura 2 PST‟s, 1 Assistant MPDD 1 Director Academics, 2 Instructors 23-25 Jun 15 Lahore

APCA 4 Clerks, 1 Assistant 17-Jun-15 Lahore LUMS 1 Professor 5-Jun-15 Lahore School Education 21 teachers of Grade 9, 14 and 16, teachers 25-08-15 Lahore union Punjab Figure 31 Schedule of study for Revenue Department

Schedule of the Study for Revenue Department

The interviews were conducted from June till August 2015.

Sr. Department Name of No Place Date Officials Designation Mr. Maqbool Director land Records 1 Ahmed and IG registrations Mr. Nadeem Senior member Board Of 2 10th June, Ashraf Revenue Lahore Board Of Revenue 2015 3 Mr. M. Dogar Senior Officer

4 Mr. Ahmad Ali Secretary 23rd June, Lahore Mr. Rashid 5 2015 DG Kachi Abadis Mahmood Director Kachi Abadis Mrs. Nadia 23rd June, 13 Project Management Unit Ahmed Cheema Manager SD & PR Lahore 2015 to 29th (LRMIS) and ARC June, 2015 In charge Arazi Record 6 Mr. M. Nadeem Centre

7 24th June, Mr. Ali Jalal Deputy Program Director Lahore PRMP 2015 Ms. Naima 8 Rashid Assistant Director Mr. Anjum Zaka 9 Butt Tehsildar Mr. Muhammad Ferozwala, 10 26th June, Office of Tehsildar, Saleem Reader to Tehsildar District 2015 Ferozwala Sheikhupura Mr. Anwar 11 Hussain Saleem Naib Tehsildar

12 Mr. M. Liaquat Patwari

Pakistan Administrative Mr. Tariq Retired Government 14 Lahore 10th June, 2015 to till Service Mahmood Officer now 23rd June, Lahore Common Citizens 15 2015 & 26th Mr. Munneb Ali Taxi Driver

June, 2014 16 Mr. M .Bilal Masters' Student Sardar Jamil 17 Ahmed Tehsildar, Shahdara

18 Amir Azhar Qanoongo, City Lahore Patwari, Mauza Paki 19 Patwar Circle, Mauza Jamil Ahmed Tathi, District Lahore Paki Tathi, and Patwar Lahore 9th July Haji Hassan Patwari Raiwind, District 20 circle Raiwind Tehsil Deen Lahore District Lahore Sarfaraz Hussain Girdawer, Raiwind, 21 Shah District Lahore

22 RanaSajjad Tehsildar, Raiwind

23 Rana Khalid Naib Tehsildar, Raiwind Mr. Rao M. Land and Law Revenue 24 Yousuf Expert Mr. Zainul 25 Lahore 20-Aug LRMIS PMU Abideen Mobilization Officer Mr. Rana Assistant Director Land 26 Lahore 28-Aug ARC ZillaKatcheri Nadeem Records Figure 32 Schedule of study for Revenue Department

Participant Observation Name of Person Area of Residence District

1. Muhammad Ahmed Sherpao bridge, Lahore Cannt Lahore

2. Hassaan Ahmed Tajpura , Lahore Cantt Lahore

3. Khizer Hayat Usman wala Kasur

4. Muhammad Fahad Ferozwala Sheikhupura

5. M.Shazed Qadous Garden Town Lahore

6. Aesun Ali Iqbal Town Lahore

7. Hafeez ur Rehman Johar Town Lahore Haadi 8. Muhammad Waqas Jarranwala Faisalabad

9. Muhammad Naeem Pial Kalan Kasur

10. Waqar Gillani Bakar Mandi Lahore

Figure 33 Schedule of study for Revenue Department