Prof. Subrata K. Mitra Department of Political Science South Asia Institute Ph.D. Dissertation Institutional Dynamics of Governance and Corruption in Developing World: The Case of Pakistan Muhammad Tahir Noor Doctoral Candidate Faculty of Economics and Social Studies Ruprecht-Karls-Universität Heidelberg March 2009 Tel: 017629025238 Email: [email protected] “… it is the successful experiment which is decisive and not the thousand-and-one failures which preceded it. More is learned from the single success than from the multiple failures. A single success proves it can be done. Thereafter, it is necessary only to learn what made it work. This, at least, is what I take to be the sociological sense of those revealing words of Thomas Love Peacock: “ Whatever is, is possible.” Robert Merton (1961) Acknowledgements Only worth mentioning solo creation, to the best of my knowledge and belief, is the creation of this universe. Otherwise any work of creation is very much unlikely, if not impossible, with one person’s solo efforts. Similarly, the creation of this work owes heavily to several people whose guidance, support, encouragement, and cooperation proved instrumental in making this work possible. First and foremost, I am deeply indebted (and this is literal too) to the people of Pakistan and Higher Education Commission, Government of Pakistan, who with their generous four years funding made it possible for me to pursue my interests in the prestigious university of Heidelberg; where I was lucky to find a mentor like Prof. Subrata K. Mitra, who not only supervised my academic work, but also knew how to make me work in the right direction. Without his insightful guidance, constructive criticism and constant encouragement it would have never been possible for me to complete this dissertation. He looked after my academic development as well as supported and backed me on many occasions of dire need. I strongly hope that this work might prove the stepping-stone for a life long academic cooperation and intellectual union. I am also deeply grateful to Prof. Dietmar Rothermund who trusted in my abilities, provided me with his extremely helpful and timely recommendations and feedback, and supported me when it was most needed. I would like to express my gratitude to DAAD for their financial support and efforts in assimilating me into the German language and culture and for a smooth administration of my scholarship. I am also highly grateful to Gesellschaft der Freunde Universität Heidelberg for their generous support, during last six months, without which it would have been very difficult for me to complete this work in time. Besides, I am thankful to Rabail Baig for completing the editing work on such short notice. I am also grateful to many friends and well wishers, both in Pakistan and Germany, who helped me during the various stages of my research. Among these are Ali Hassan, Shahram Azhar, Ehtisham, and Hassan Saddi, who helped and assisted me enormously during a long tedious process of data collection; specially Saddi, who was instrumental in the finalization of my questionnaire for the survey. I am also grateful to many colleagues and friends from civil bureaucracy of Pakistan, who helped me in making possible this otherwise very unlikely task of collecting perceptions of civil servants regarding corruption. Few of these friends include, Kashif Noon, Musadiq Tahirkheli, Haroon Rafique, Tariq Mahmood, and Khushnood Akhtar Lashari (then Secretary Health). I am also especially thankful to many officers and officials of Motorway Police, who cooperated with an alacrity, completely unknown to me, especially Mr. Ehsan Tufail (SP North) and Mr. Rifat Pasha (then IG Motorway Police), whose kind help made the second part of fieldwork much easier and less time consuming. Furthermore, I am very much thankful to my brother and friend Dr. Asim Noor and Dr. Hassan Bashir for their timely suggestions and assistance at various stages of my data analysis and dissertation writing. I owe special thanks to Hassan, who introduced me to the academic world of conferences and publications and proved instrumental in enhancing my efficiency by providing me with a faster and safer machine for dissertation writing. I am very much thankful to my family, friends and colleagues from Germany, Ahmed Saeed, Ali Qasmi, Usman Butt and Siegfried Wolf for their consistent help and assistance in every hour of need. I owe profound thanks and gratitude to Reuther family: Dr. Wilma, i Armin, and Sarah Reuther, whose sincere friendship, care and love for me and my family made the life in Germany not only much easier but truly a memorable one, it’s because of them that Germany feels like a second home to me. I am particularly thankful to Sarah for her consistent help and assistance in all the bureaucratic and library matters and her persistent encouragement on various difficult stages of my Ph.D. I am exceedingly grateful to my family in Pakistan, who helped and assisted me in every way possible; especially my parents who never let their love come in the way of my progress and growth and who happily bore my absence in the time when they needed me most. I am also awfully indebted to my bother Dr. Ahmed Naseer who mentored my intellectual growth, since the times I was unable to spell the word properly; and who envisioned avenues, destinations and targets for me, which for most of the time were beyond my imagination. I am also grateful for his, and his best half Jacqueline’s, extremely valuable suggestions and help in building various socio-psychological arguments during the course of this dissertation writing. To Jacqueline, I am extra obliged for the enormous effort she has put in enhancing the linguistic as well as contextual worth of my work through repeated readings. Last but not least, I am exceptionally indebted to my wife Gul, and my children Shaher Bano and Moosa for their understanding, care, love, and patience during last four years. Not only that my wife cheerfully accepted the usual capriciousness of a Ph.D. researcher, but she has also been a source of great help, encouragement, and assistance during the various stages of my dissertation: writing, editing, and proof reading. At the time these lines are being written she is relentlessly busy in proof reading the last few pages of my dissertation. This work would never have been possible but for the patience, love, and belief of her, who believes in my abilities and capabilities much more than I do. I dedicate this work to her. ii Contents ACKNOWLEDGEMENTS ..............................................................................................I LIST OF TABLES AND FIGURES............................................................................ VII LIST OF ABBREVIATIONS .....................................................................................VIII INTRODUCTION............................................................................................................. 1 OBJECTIVES OF THE RESEARCH........................................................................................ 2 THE CASE OF PAKISTAN................................................................................................... 3 HISTORICAL BACKGROUND ............................................................................................. 4 CONTEXT OF THE STUDY.................................................................................................. 7 IMPORTANCE OF THE STUDY ............................................................................................ 9 DATA AND ITS SOURCES ................................................................................................ 11 METHODOLOGY ............................................................................................................. 13 STRUCTURE OF THE DISSERTATION................................................................................ 17 CHAPTER 1.................................................................................................................... 19 THEORETICAL FRAMEWORK................................................................................ 19 1.1 THE PUZZLE ............................................................................................................. 20 1.2 WHY PAKISTAN?...................................................................................................... 24 1.3 THE CORE QUESTION ............................................................................................... 27 1.3.1 Ideal Bureaucratic Model................................................................................ 28 1.3.2 Fundamentals of Structured Institutions.......................................................... 30 1.4 HYPOTHESES............................................................................................................ 32 1.5 THEORETICAL PARADIGM ........................................................................................ 34 1.5.1 Theoretical Perspective of Corruption and Governance................................. 34 1.5.1.1 Definition of Corruption? ......................................................................... 36 1.5.1.2 Need Based Corruption (NBC)................................................................. 37 1.5.1.3 Greed Based Corruption (GBC)................................................................ 39 1.5.1.4 What is Governance? ................................................................................ 40 1.5.2 Theoretical