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Improving Decision-Making Systems for Decentralized Primary Education Delivery in Pakistan

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Improving Decision-Making Systems for Decentralized Primary Education Delivery in Pakistan THE ARTS This PDF document was made available from www.rand.org as a public CHILD POLICY service of the RAND Corporation. CIVIL JUSTICE EDUCATION ENERGY AND ENVIRONMENT Jump down to document6 HEALTH AND HEALTH CARE INTERNATIONAL AFFAIRS NATIONAL SECURITY The RAND Corporation is a nonprofit research POPULATION AND AGING organization providing objective analysis and effective PUBLIC SAFETY solutions that address the challenges facing the public SCIENCE AND TECHNOLOGY and private sectors around the world. SUBSTANCE ABUSE TERRORISM AND HOMELAND SECURITY TRANSPORTATION AND INFRASTRUCTURE Support RAND WORKFORCE AND WORKPLACE Browse Books & Publications Make a charitable contribution For More Information Visit RAND at www.rand.org Explore Pardee RAND Graduate School View document details Limited Electronic Distribution Rights This document and trademark(s) contained herein are protected by law as indicated in a notice appearing later in this work. This electronic representation of RAND intellectual property is provided for non-commercial use only. Unauthorized posting of RAND PDFs to a non-RAND Web site is prohibited. RAND PDFs are protected under copyright law. Permission is required from RAND to reproduce, or reuse in another form, any of our research documents for commercial use. For information on reprint and linking permissions, please see RAND Permissions. This product is part of the Pardee RAND Graduate School (PRGS) dissertation series. PRGS dissertations are produced by graduate fellows of the Pardee RAND Graduate School, the world’s leading producer of Ph.D.’s in policy analysis. The dissertation has been supervised, reviewed, and approved by the graduate fellow’s faculty committee. Improving Decision-making Systems for Decentralized Primary Education Delivery in Pakistan Mohammed Rehan Malik This document was submitted as a dissertation in July 2007 in partial fulfillment of the requirements of the doctoral degree in public policy analysis at the Pardee RAND Graduate School. The faculty committee that supervised and approved the dissertation consisted of Charles Wolf, Jr. (Chair), Sandra Berry, and Dominic Brewer. PARDEE RAND GRADUATE SCHOOL This dissertation is dedicated to my altruistic parents who sacrificed the certainty and comfort of current consumption to invest in my education. The Pardee RAND Graduate School dissertation series reproduces dissertations that have been approved by the student’s dissertation committee. The RAND Corporation is a nonprofit research organization providing objective analysis and effective solutions that address the challenges facing the public and private sectors around the world. RAND’s publications do not necessarily reflect the opinions of its research clients and sponsors. R® is a registered trademark. All rights reserved. No part of this book may be reproduced in any form by any electronic or mechanical means (including photocopying, recording, or information storage and retrieval) without permission in writing from RAND. Published 2007 by the RAND Corporation 1776 Main Street, P.O. Box 2138, Santa Monica, CA 90407-2138 1200 South Hayes Street, Arlington, VA 22202-5050 4570 Fifth Avenue, Suite 600, Pittsburgh, PA 15213 RAND URL: http://www.rand.org/ To order RAND documents or to obtain additional information, contact Distribution Services: Telephone: (310) 451-7002; Fax: (310) 451-6915; Email: [email protected] Abstract This dissertation investigates the design and implementation of General Musharraf’s avowed decentralization initiative. The objectives are: 1) test whether decision-making and service delivery have been decentralized; and 2) determine restructuring of business processes, institutional structures and incentives that can improve decentralized primary education delivery. The dissertation synthesizes decision-making into three stages: policymaking, planning, and operations. Using methodologies of institutional analysis and business process mapping, the analysis determines if decentralization supports district government authority, accountability, responsiveness, and service user participation. In the absence of reliable output indicators, input availability is analyzed. The evidence on policymaking indicates that the decentralization design is a replication of a unitary structure where constituent units (districts) do not have policymaking authority. District governments, accountable for service delivery, are superseded and contested by Supra-State, federal, and provincial decisions at policymaking, and subsequently, operations levels. The analysis of education planning identifies multiple institutional structures, incentives, and mandates that contest district authority. Evidence from ESRAP indicates that unitary- style planning complies with IMF and UNESCO priorities and contradicts federalism and decentralization. The evidence on SDSSP indicates that the program design reinforces administrative centralization (policy control) and fiscal centralization (resource mobilization and expenditure assignment) with ADB and its provincial-level proxy, the PSU. SDSSP contradicts decentralization and limits district government planning to budgeting in compliance with ADB/ PSU policies. The evidence on teacher and textbook availability indicates that district government authority over education input availability is limited by policy control and fiscal centralization at the provincial (and indirectly federal) levels. GoS has manipulated the decentralization design to control teacher recruitment, transfers, and compensation. Specific policy recommendations are in four categories: 1) restructuring the decentralization design; 2) diluting pre-federalism and pre-decentralization structures; 3) realigning Supra-State interventions; and 4) identifying strategies for improving education input availability in districts in Sindh. iii Acknowledgements God is Great. He has blessed me with tremendous opportunities to pursue knowledge and public service opportunities. I am blessed with a family that has supported me in pursuing these opportunities. Without their support, my commitment and perseverance to my cause could not have been sustained for six years. I am deeply grateful to my dissertation committee members, Professor Charles Wolf Jr., Professor Sandra Berry, and Professor Dominic Brewer. They have provided unrelenting support and valuable insights throughout the dissertation process. I am thankful to the staff at the Pardee RAND Graduate School (PRGS) and my colleagues at the RAND Corporation for their support during my stay at PRGS and the RAND Corporation. Notable amongst them are Ricky Bluthenthal, Charles Goldman, and Rachel Swanger. I would like to acknowledge officials at the federal, provincial, and district governments and international development institutions who have inspired me during the fieldwork with their commitment and diligence (or lack of them). Either way, my interactions with them have reinvigorated my pursuit. I would like to acknowledge Dr. Kaiser Bengali and Dr. Shaghil Ahmed for the infrastructure support at the Social Policy and Development Center; Asad Umar and Favad Soomro at Engro Chemicals Pakistan Limited for the logistical support in Ghotki; and Tahir Abbasi for his hospitality during my fieldwork in Punjab. I appreciate the friendship and support from Arnab Mukherji, Asma Abbas, and Faisal Qadir during these years. The fieldwork and analysis for this dissertation have yielded insights about the public sector in Pakistan and the institutional, cultural, and political contexts which affect its performance. I hope this dissertation succeeds in highlighting the opportunities for public sector reform, particularly through decentralization, and influence the debate on the role of the federal, provincial and district governments in Pakistan. Perhaps lessons can be elicited for “good governance” in international development institutions and public sector institutions in developing countries. This dissertation covers fieldwork I conducted in Pakistan between November 2004 and May 2006 and represents data until May 2006. The views presented are the author’s and do not represent the position of RAND and its Board, Pardee RAND Graduate School and its Board, or any institution, the author is, or was associated with. Mohammed Rehan Malik May 9, 2007 iv Table of Contents Abstract.........................................................................................................................iii Acknowledgements ...................................................................................................... iv Table of Contents .......................................................................................................... v List of Tables and Figures.........................................................................................viii Abbreviations ............................................................................................................... ix Glossary ....................................................................................................................... xii Chapter 1. Introduction: Decentralization in Pakistan and Other Developing Countries........................................................................................................................ 1 1.1 Introduction to Decentralization in Pakistan............................................................. 1 1.2 Policy Questions ....................................................................................................... 8 1.3
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