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M a n a g e m e n t R e f o r m in a C e n t r a l is e d E n v ir o n m e n t : P r im a r y E d u c a t io n A dministration in B a l o c h is t a n , P a k is t a n 1992-97 A Thesis Submitted for the Degree of Doctor of Philosophy (Ph.D.) Randy L. Hatfield London School of Economics and Political Science, University of London June 2001 UMI Number: U150609 All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a complete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion. Dissertation Publishing UMI U150609 Published by ProQuest LLC 2014. Copyright in the Dissertation held by the Author. Microform Edition © ProQuest LLC. All rights reserved. This work is protected against unauthorized copying under Title 17, United States Code. ProQuest LLC 789 East Eisenhower Parkway P.O. Box 1346 Ann Arbor, Ml 48106-1346 fH£S£S F 7%SJ «&/c Z1 Abstract This study reviews the attempt to decentralise the administration of primary education in Balochistan, Pakistan in the period from 1992 to 1997. It critically examines the institutions that managed public, primary education at provincial and district levels and analyses their functions to determine where the locus of control existed for categories of public service delivery. Government officers placed in twenty-six administrative units (districts) were entrusted with the responsibility for government schools and were expected to foster partnerships with NGOs and communities to develop community schools. The thesis assesses the extent to which the process was, in fact, carried through. It investigates the constraints that the Province faced in adopting donor led objectives. The study design involved interviews at the regional level, textual analyses of government and NGO documents, and two detailed case studies in very different rural districts. The data suggest that no clear education policy framework existed in Balochistan prior to 1997. The lack of policy direction for primary education was found to be a contributing factor to the Province’s weak institutional capacity for providing it. Concurrently, decentralisation plans were found to be incongruent with central and district power and political structures. Delegated authority and budgetary control needed for local management did not exist at the district level. Rare local initiatives taken by district managers showed promising signs of decentralised management but they could not be sustained without appropriate local administrative capacity. The thesis ends by discussing, in light of local experience, the elusive nature of decentralisation and its shortcomings in guiding practical policy. Why do major donors favour decentralisation in primary education administration when capacity is so weak? This contrast provides an important rationale for revisiting the centralisation-decentralisation debate and analysing whether the concept of decentralisation should be considered as the definitive model for primary education management reform in centralist developing countries. 2 For Mom and Dad & Sobia 3 Table of Contents Abstr a ct 2 List of Ta bles 7 List of F ig u r es 8 List o f B oxes 9 A cknowledgements 10 List o f Abbreviations 12 List o f De fin it io n s 13 C h a pter l DECENTRALISATION: SELECTION OF A THEORETICAL FRAMEWORK 15 1 Decentralisation and Development: A Theoretical Remedy? 16 Decentralisation in the Education Sector 33 ^J*3 Conclusion 44 C h a pter 2 RESEARCH APPROACH, METHODS AND CONTEXT 47 ^"2.1 Aims of the Study 47 ^ 2 .2 Structure and Scope 50 ^ 2.3 Research Methods 51 2.4 Building the Context: Balochistan 62 2.5 Conclusion 86 C h a pter 3 FROM POLICY FORMULATION TO IMPLEMENTATION: EDUCATION ADMINISTRATION IN BALOCHISTAN 87 3.1 Education Policy in Pakistan 89 3.2 Donor Influence 99 3.3 Implementation 103 3.4 Conclusion 107 4 C h a pte r 4 EDUCATION ADMINISTRATION: CENTRAL: ROLES AND RESPONSIBILITIES 109 4.1 Central Institutions 110 4.2 Educational Services and the Distribution of Control: A Functional Analysis 131 4.3 Conclusion 143 C h a pter 5 CASE STUDY: JAFFARABAD 145 5.1 Background 146 5.2 Education Administration 156 5.3 Local Institutions 162 5.4 Education Services and the Distribution of Control 177 5.5 Conclusion 190 C h a pter 6 CASE STUDY: BARKHAN 192 6.1 Background 193 6.2 Education Organisation in Barkhan 205 6.3 Local Institutions 211 6.4 Education Services and the Distribution of Control 230 6.5 Conclusion 238 C h apter 7 EDUCATION ADMINISTRATION IN BALOCHISTAN: AN ANALYSIS OF ORGANISATIONAL VARIABLES 241 7.1 Institutional Reform: Deconstructing the Panacea 242 7.2 Aspects of Organisational Reform: The Evidence 245 7.3 Theoretical Perspectives, Practical Advice 268 C hapter 8 CONCLUSIONS 275 8.1 Lessons from Empirical Evidence 276 8.2 Research-based Conclusions 287 5 Ap p e n d ic e s Appendix I Case Study Protocols: Guides to Field Analyses 290 Appendix II Respondents 315 Appendix III Steps in the Community Support Process 317 B ibliography 319 6 List of Tables Table 2.1 PAKISTAN: Public Expenditure on Education, 1955-1993 83 Table 2.2 Education allocations and expenditures during 8th FYP period 85 Table 3.1 Claimed Changes in Local Administration in Balochistan Resulting from 1992 National Education Policy Plan 98 Table 3.2 Foreign Assistance for Basic Education in Pakistan 100 Table 3.3 BALOCHISTAN: Public Expenditure on Education 1988-1992 105 Table 5.1 Socio-economic Indicators for Jaffarabad District 147 Table 5.2 Statistical Overview of Jaffarabad Government Schools 160 Table 6.1 Socio-economic Indicators for Barkhan District 195 Table 6.2 Statistical Overview of Barkhan Government Schools 206 7 List of Figures Figure 1.1 Classification of Decentralisation 21 Figure 1.2 Forms of Administrative Decentralisation 22 Figure 1.3 Antitheses to Decentralisation 23 Figure 1.4 Desirable Effects of Decentralisation 24 Figure 1.5 Less and More Useful Ways of Viewing Governance in Education 41 Figure 1.6 Decentralisation Construct 45 Figure 2.1 Research Methods Diagram for Balochistan Study 54 Figure 2.2 Map of Pakistan 65 Figure 2.3 Balochistan: Provincial Map 67 Figure 2.4 Central vs. Provincial Control 73 Figure 2.5 Social Policy and Economic Development: Pakistan’s Harsh Linkages 77 Figure 3.1 Profile of Donor Influence in Education Development in Pakistan; 1979-1993 101 Figure 4.1 Provincial Organisational Chart 111 Figure 4.2 Organisational Structure, Primary Education Directorate 116 Figure 4.3 Centralisation-Decentralisation Typology Matrix for Public Education in Balochistan 131 Figure 5.1 Rice Mill in Dera Allah Yar 152 Figure 5.2 Modes of Transportation in Jaffarabad 156 Figure 5.3 Distribution of Schools in Jaffarabad 161 Figure 5.4 Village Education Committee, Abdul Latif Umrani 169 Figure 5.5 Jaffarabad District Offices-Organisational Charts 179 Figure 5.6 Decentralisation and the Mentoring Programme 188 Figure 5.7 Centralisation-Decentralisation Typology Matrix for Public Education in Jaffarabad 190 Figure 6.1 Image of a Tribal Society 197 Figure 6.2 Distribution of Schools in Barkhan 208 Figure 6.3 Primary School Building Under Construction Along the Main Highway—Barkhan 209 Figure 6.4 Female District Education Office, Loralai Organisation Chart 212 Figure 6.5 "New" Furniture in Storage—Barkhan 215 Figure 6.6 Collecting Female Teachers’ Salaries in Barkhan 216 Figure 6.7 Distribution of School Furniture in Barkhan 218 Figure 6.8 Male District Education Field Office, Barkhan Organisation Chart 219 Figure 6.9 Centralisation-Decentralisation Typology Matrix for Public Education in Barkhan 239 Figure 7.3 Centralisation-Decentralisation Typology Matrix for Public Education in Balochistan 250 Figure 8.1 Dynamics of Management Reform in Balochistan 284 8 List of Boxes Box 1.1 Winkler’s Centralization-Decentralization Typology Matrix for Public Education 39 Box 2.1 Snapshot of Balochistan’s Development 63 Box 2.2 Profile of Balochistan 79 Box 3.1 Determinants of Educational Decision- Making in Pakistan 91 Box 3.2 Pakistan National Education Policy 1992-2002 97 Box 4.1 Who’s In Control at the Centre? 122 Box 5.1 Feudals In Jaffarabad 150 Box 5.2 SCOPE-NGO Capabilities 165 Box 6.1 Rationale for Case Selection 204 Box 6.2 Community School Advertisement 214 Box 6.3 Poster Against Corruption 214 Box 6.4 LAFAM NGO Capabilities 223 Box 6.5 An account of supervision of female teachers In the Barkhan area 237 Box 7.1 Decentralisation Construct 243 Box 7.2 Data Analysis Matrix 244 9 Acknowledgements The benefit of undertaking research that involves fieldwork is that it adds faces, voices and general depth to the final product. There are many faces and voices that I have encountered in the course of this research who have supported, motivated, and challenged me. Foremost, I am grateful to my respondents--the women and men in Balochistan who so willingly shared their time and resources to help me understand education administration in their context. In the Primary Education Directorate (PED), I am grateful for the assistance of Faiz Mohammad Jaffar who played a significant role in my access to the Jaffarabad and Barkhan Districts. Administrative support provided through PED was extremely helpful and I am indebted to the staff for the voluntary assistance given to me as an outsider to the organisation. I am also appreciative of Aamir Mirza’s help in carrying out the field interviews.