Bhutto, the Pakistan Peoples Party and Political
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BHUTTO, THE PAKISTAN PEOPLE'S PARTY AND POLITICAL DEVELOPMENT IN PAKISTAN, 1967-1977. MALEEHA LODHI Reproduced by Sani H. Panhwar BHUTTO, THE PAKISTAN PEOPLE'S PARTY AND POLITICAL DEVELOPMENT IN PAKISTAN, 1967-1977. A Thesis Submitted by MALEEHA LODHI for the Degree of Doctor of Philosophy London School of Economics and Political Science UNIVERSITY OF LONDON November 1980 Reproduced by Sani H. Panhwar (2020) ABSTRACT This study analyses politics in Pakistan viewed from the perspective of Bhutto and The Pakistan Peoples Party in the period 1967-1977. This involves a detailed consideration of the nature and performance of the PPP, in terms of its social composition, organizational development and its role in the political system, and of leadership patterns in Pakistan with special reference to Bhutto. In the process of this inquiry we examine the origin and rise of the PPP, its electoral performance in 1970 and the repercussions of the 1971 crisis on the party. In analyzing the Bhutto regime in the period 1971-1977, we look at both the internal dynamics of the PPP in terms of its development as a patrimonial-clientele type party exhibiting some 'mass party' features, and Bhutto's relations with the political opposition, the civil bureaucracy and the military. This study attempts to apply the patrimonial model to Bhutto's political system. As a heuristic tool, this concept enables us to explain and relate a wide range of phenomena such as personalism, factionalism, patronage and corruption. The phenomena of a dominating figure as reflected in Bhutto's patrimonialism is viewed against the background of the country's colonial Viceregal tradition and related to its culture and social structure. Bhutto's patrimonial system is viewed as an adaptation of the Vice regal model. Patrimonial features such as the personalization and concentration of power, the manipulation of clientele support from rural landed groups, and the primary reliance on bureaucratic, rather than participatory and representative instruments of rule are essentially those identified with the Viceregal pattern of governance. It is argued that Bhutto's patrimonial strategy not only resulted in a failure to develop the PPP into an institutionalized party of the type associated with 'modern' political systems, but served to inhibit political development and reinforce Pakistan's praetorian tradition. The materials used in this thesis include official publications, political party literature, Urdu and English language newspapers and magazines as well as information derived through personal interviews with prominent personalities . ACKNOWLEDGEMENTS I would like to thank a number of people without whose help and encouragement this work would not have been possible. My gratitude to my supervisor, Tom Nossiter extends far beyond that which a formal acknowledgement can convey. I am grateful to him not only for his advice, spirited support and interest in my work, but above all for his friendship over the years. I also received valuable help and encouragement from Khalid bin Sayeed, who gave me the benefit of his perceptive insights into Pakistani politics and helped clarify my own ideas. I wish to extend my appreciation to the University of London Central Research Fund for a travel grant that enabled me to undertake a visit to Pakistan in 1979 for field research. I wish to acknowledge also the assistance of Meekal Ahmed of the Pakistan Planning Division who took time off from busy schedules to read and usefully comment upon portions of this study. I am deeply indebted to Mumtaz Keshani who typed and retyped from several hand-written drafts and met countless other demands on her time with boundless energy. My thanks also go out to Sushma Puri for typing the final draft. No acknowledgement of my debt to others can exclude several members of my family. I am deeply grateful to my complete this work. I am also grateful to my brother Amer Lodhi, who both helped arrange many of the interviews with prominent personalities and offered a number of useful suggestions. I am also thankful to Kamil Lodhi for reading and commenting (often critically) on the first draft. To my husband Khalid, whose encouragement and understanding go beyond any accounting, I owe a special debt. He read through all the drafts and discussed with me their contents, offering constructive ideas and objective appraisal regarding the handling of material. I would like to dedicate this work to Khalid and my son, Faisal, for it is they who have borne the real burdens of these years of research and writing. TABLE OF CONTENTS PART I Chapter Page I. A PROFILE OF PAKISTANI POLITICS AND SOCIETY .. .. .. 1 Authority and the State: The Primacy of Civil-Military Bureaucracy Rural Structure. Urban Structure. Party Development in Pakistan. The Ayub Khan Era. II. BHUTTO AND THE EMERGENCE OF THE PAKISTAN PEOPLES PARTY 1967-1969 .. .. .. .. .. .. .. .. .. 34 Bhutto: Background and Early Career. Background to the Formation of the PPP. Foundation of the Party. Organizational Development of the Party and Growth of its Support Base. The Role of the PPP in the Anti-Ayub Movement. III. THE PPP AS AN ELECTORAL MACHINE, 1970 .. .. .. 73 PPP : The Decision to Participate and the Hala Conference. The General Election of 1970. The PPP and the Campaign. Results of the Election. Conclusion: Nature of the PPP in the Electoral Phase. IV. BHUTTO, THE PPP AND THE CRISIS OF BANGLADESH, 1971 .. 112 Bhutto and the Six Points. Towards Confrontation. The PPP and the Yahya Regime: March - December, 1971. Bhutto and the PPP: An Assessment. PART II Chapter Page V. POLITICAL DEVELOPMENTS, 1971-1977: AN OVERVIEW .. .. 143 Early Priorities and Dilemmas, Economic Reconstruction. Political Reconstruction: The PPP and Opposition. The 1977 Election and the Fall of the PPP Government. VI. THE PPP: PARTY BUILDING AND PATRIMONIALISM .. .. 185 Bhutto: Beliefs and Strategy. Party Organization and Patrimonial Power. The Challenge from the Left and the 1972 Party Convention. The Shift in the Party's Social Base. VII. THE PPP : FACTIONALISM, PATRONAGE AND CORRUPTION .. 209 Factionalism in the Party. The Nature and Consequences of Factional Conflict. The Politics of Patronage and Corruption. VIII. THE PPP : PERSONALISM OR INSTITUTIONALISATION? .. 244 The Party, 1975-76. An Assessment of the PPP. IX. THE POLITICAL OPPOSITION .. .. .. .. .. .. 251 The Historical and Cultural Legacy: The Limits of Tolerance. Bhutto's Attitude towards Opposition. PPP and Opposition: The Politics of Control and Suppression. The Opposition's Challenge to the Bhutto Regime. X. BHUTTO AND THE CIVIL BUREAUCRACY .. .. .. .. 295 PPP and the Civil Service: The Background. Bhutto's Attitude towards the Civil Bureaucracy. Purges, Reform and Patrimonial Control. From Control to Reliance. XI. BHUTTO AND THE MILITARY .. .. .. .. .. .. 320 Models of Civil-Military Relations. The Pakistani Experience upto 1971. Bhutto and the Military. The Military Coup of July 1977. XII. THE PERFORMANCE OF THE PPP GOVERNMENT .. .. 346 Regime Performance and the 1977 Urban Protest Movement. CONCLUSION .. .. .. .. .. .. .. .. .. 383 APPENDIX "A" SELECT LIST OF PERSONS INTERVIEWED .. 394 APPENDIX "B" POLITICAL PARTIES IN PAKISTAN - 1968-69 .. .. 397 APPENDIX "C" ASGHAR KHAN'S LETTER TO THE CHIEFS OF STAFF OF THE ARMED FORCES - APRIL 1977 .. .. .. .. 400 LIST OF TABLES Table Page 1.1 Level of Urbanization .. .. .. .. .. .. .. 14 1.2 Registered Trade Unions and Membership .. .. .. .. 15 1.3 Major Daily Newspapers, Ownership and Circulation (1974) .. .. 20 III.1 Allocation of Seats for the 1970 Election .. .. .. .. .. 84 III.2 Nominations for the National Assembly by Party and Region .. 85 III.3 Percentage Voting Turnout by Province for National and Provincial Election, 1970 .. .. .. .. .. .. .. 98 III.4 Results of the Election Held in December 1970 to National and Provincial Assemblies .. .. .. .. .. 99 III.5 Votes Cast for the PPP by Province (N.A. Election) .. .. .. 99 III.6 Voting Percentage (N.A.) .. .. .. .. .. .. .. 100 III.7 Percentage of Seats and Votes Won by the PPP in the Punjab Districts (N.A.) .. .. .. .. .. .. .. .. 106 III.8 Selected Socio-Economic Variables and the PPP Vote - Coefficient of Rank Correlation .. .. .. .. .. 107 V.l Industrial Investment, 1970-71 to 1976-77 .. .. .. .. 158 V.2 Results of the N.A. Elections, 1977 .. .. .. .. .. 181 VI.1 Social Background of the Top 50 PPP Leaders, 1975-76 .. .. 207 XI.1 Senior Officers Relieved from Service (during the first four months of the Bhutto government) .. .. .. .. .. 327 XI.2 GNP, Gross Revenue Receipts and Defence Expenditures .. .. 335 XII.1 Position of-Major Industrial Families: Impact of Nationalization .. 352 XII.2 Trend in Prices (Yearly Averages), 1971/72 to 1976/77 .. .. 360 LIST OF ILLUSTRATIONS Figure 1 - PPP Organization - 1969/70 .. .. .. .. .. .. 91 Figure 2 - Constitutional Organization of the Pakistan Government, 1973 .. 169 PART I A PROFILE OF PAKISTAN POLITICS AND SOCIETY Pakistan came into existence on 14 August 1947, a heterogeneous community brought together because its people, adherents of Islam, refused to be absorbed by a Hindu- dominated political system. Admittedly, its leader ship was secular prior to partition and beyond. No doubt also, a consensus was never reached on what an 'Islamic Polity' should be. Nevertheless, Pakistan was created to satisfy the demand for statehood by a broad and deep coalescing of Muslim opinion in the Muslim-majority areas of British India. Pakistan had