Chapter3 Industrial Sector Analysis This chapter analyzes the current status and issues for industrial development in Pakistan from the viewpoint of Public-Private Partnership, focusing on organizations involved in industrial development, and relation between private and public sector in the first section, followed by industry wise analysis and issues of area economic development through cluster. 3.1 Current Status and Issues for Industrial Development Framework 3.1.1 Overview of Industrial Development The table below shows overview of industrial development in Pakistan since 1960s: Table 3-1 Overview of Industrial Development 1960 1970 1980 1990 Present Political Military rule Socialist Military rule, Democratic War on terror Environment regime, Soviet invasion rule, Nuclear Semi-military Separation of to Afghanistan test, frequent rule Bangladesh government changes Industrial Import Nationalization Privatization Privatization Privatization. Orientation substitution Public-private Industrialization Partnership Trade Protectionism, Free trade Free trade, WTO regime Export subsidy Liberalization GDP Growth 6.80% 4.80% 6.50% 4.60% 8.4%(04/05) Manufacturing 9.90% 5.50% 8.20% 4.80% 12.5%(04/05) Sector Investment 15.90% 17.00% 16.60% 15.3%(04/05) ratio as % of Of which, 10.30% 9.20% 7.50% 4.4%(04/05) Public *1 Investment Of which, 5.60% 7.80% 9.10% 10.9%(04/05) Private *1 Investment *1：Government of Pakistan(2005), Economic Survey 2005 Source：JICA Study Team Orientation of Industrial policy in Pakistan has changed over time, starting from import substitution industrialization after the Independence, via nationalization policy in the 70s and current privatization and Public-private Partnership (PPP). Due to the changes of policy as well as political instability, the growth rates of manufacturing sector were stagnated during the 70s and the 90s, but have changed to upward trend since 2002. Ministry of Industries, Production and Special Initiatives (herein after called Ministry of Industries) announced a draft report of ‘Towards a Prosperous Pakistan: A Strategy for Rapid Industrial Growth’ in January 2005, which shows a strategy for rapid industrialization required to achieve ‘Vision 2030’. 3-1 Ministry of Industries intends to formulate detailed policies based on this paper after obtaining the formal approval of the government.1 The paper proposes ‘incentive approach’ instead of policies to promote specific industries which according to the paper failed to deliver, saying that: ‘An old fashioned industrial policy approach, that seeks to promote specific group of industries at the expense of others, is eschewed for the simple reason that it rarely works. On the other hand, the incentives approach is central to the proposed strategy, but with a contemporary slant. A principal objective of the strategy is to get the incentives right for investing in industry by lowering the costs that inhibit potential investors. The strategy leaves it to the wisdom of the private investor as to which specific manufacturing activity he/she is best suited for.’ (Government of Pakistan (2005), Executive Summary page 1) The paper made specific recommendations for the areas of land, tax, regulation, infrastructure and human resources, but no analysis or policy recommendation was made for specific industries. 3.1.2 Government Organizations (1) Federal Organizations Since the industrial development involves various policy areas such as sector development, trade, tax, and labor, it is common that industrial policy involves various government organizations. In Pakistan, the following government organizations are involved in industrial development (see 2.2. for those related to human resource development): Table 3-2 Organizations Related Industrial Development Organization Function Ministry of Industries, Production and Special Industrial development（Under the Ministry, Initiatives Engineering Development Board（EDB）is responsible for engineering industries, Small and Medium Enterprise Development Authority (SMEDA) is responsible for SMEs） Ministry of Textile Industry Development of textile industry Ministry of Information Technology Development of IT industry, IT infrastructure development Ministry of Commerce Trade and custom（Under the Ministry, Export Promotion Bureau（EPB）is responsible for * export promotion） Board of Investment Investment promotion Central Board of Revenue Tax administration Ministry of Labor and Manpower, & Overseas Labor policy, Labor regulations Pakistanis *Export Promotion Bureau（EPB）is planned to be restructured to Trade Development Authority of Pakistan(TDAP) as an autonomous body. Source：Government of Pakistan The roles and functions of industry related government organizations, namely Ministry of Industry, Ministry of Textile, Ministry of IT, EDB and SMEDA are reviewed below. The focus is placed on demarcation and relations between Ministry of Industries and EDB. 1 As of August 2006, the paper had not been approved yet. 3-2 1) Ministry of Industries, Production and Special Initiatives The Ministry consists of four wings. Functions and related organizations of respective wings are summarized below: Table 3-3 Organization and Function of Ministry of Industries Investment & Policy & Corporate Sector Special Initiative Facilitation Implementation Function ・Monitoring of ・Policy formulation ・Supervision of public ・Implementation of industrial trends /policy review sector corporations Special Projects ・Investment ・Sectoral study ・Privatization ・Non-manufacturing, promotion non-traditional industries ・Coordination with ・Pharmaceutical ・Capacity development the private sector industry of the ministry ・Tariff ・Legal issues ・Cross-sectoral issues rationalization ・Coordination for Trade/WTO issues ・Coordination with chambers Related SMEDA PIDC TUSDEC Organization EDB EPZA NIPDMC Patent and Design PITAC Pakistan Dairy Office Development Company etc. Other public corporations Source：Ministry of Industries（http://www.pakistan.gov.pk/ministries/index.jsp?MinID=13&cPath=142） The present Ministry of Industries is an outcome of merger in 1993 between original Ministry of Industries which was responsible for Industrial policy formulation and Industry related regulation, and Ministry of Production which was supervising public industrial units. In 2004, the Ministry was renamed as Ministry of Industries, Production and Special Initiatives, adding Special Initiative Wing which looks after the special assignment by Prime Minister. As shown above, the organization of the Ministry is divided on the basis of functions and thus is not suitable for promoting respective industries. Although EDB would draft policies for engineering industries, SMEDA for SMEs and others for Ministry of Industries, the authority to approve these draft policies rests with the Minister of Industries. If the policy involves the issues which fall under the other government organizations such as Ministry of Commerce or Central Board of Revenue (CBR), the efforts would be made to involve these organizations from the early stage of policy formulation. After the approval of policies, however, implementing policies are left to the organization in charge, to which the Ministry does not have sufficient leverage, or monitoring mechanism to enforce implementation. Ministry of Industries is interested in letting a private sector take part in formulating as well as executing the industrial policy. However, there are few private industry associations that have both the ability a capability to be counterparts of the government. Perhaps, APTMA (All Pakistan Textile Mill Association) is one of the few private associations that are able to analyze the business trend and to present concrete policy proposals to the government. Ministry of Industries does not seem to consider that the Chambers of Commerce and Industry are good sources of information and reliable partners, because the Ministry believes that many of their members should be traders and those views of industrialists are not fully represented in the organization. Under these circumstances, the relationship between the Ministry and private industry associations is not very intimate. The Ministry just requests business related data from these associations. For instance, the Ministry has been 3-3 monitoring production trend of 32 key products each month, and these production data are mainly provided from industry association concerned. However, the Ministry often finds that these data are not always accurate and consistent. This is another reason why the Ministry does not have confidence that private industry associations would become their reliable partners. The improvement of secretariat of these industry associations should be highly requested. Being frustrated with the industry associations, the Ministry itself has recently established a think tank called Pakistan Business Council, which consists of 18 well-know retired businessmen. The Ministry expects that this council should advise economic policy of the government and act as a bridge builder between the government and the private sector. It is sometimes necessary for the Ministry to coordinate with other ministries and government agencies, but this coordination is not very frequent. Only when the government discusses the budget or the trade policy, the ministries or agencies concerned should get together and coordinate their views and interests. Monitoring of policy implementation is within the purview of EDB for engineering industries and SMEDA for SMEs. However coordination with