Has the devolution plan in Pakistan been successful in improving democracy? Has it “empowered the impoverished” and strengthened local control and accountability? Or has it rather reinforced the military regime?
This report from the International Crisis Group analyses the intentions and the results of the Devolution of Power Plan implemented by General Musharraf in 2000. Similarly to devolution plans of previous military rulers, the reform created lower tiers of government at the local level, but unlike them and for the first time, it replaced appointed bureaucrats with elected officials. The Plan was drafted with the technical assistance of the UNDP and backed by the international community, although domestic acceptance and legitimacy is still lacking.
Although the Plan was presented as an instrument to establish local democracy and accountability, it has so far strengthened the military regime, undermining the party system. In particular:
- While focusing on the district and local level, the Plan has bypassed the four provinces, enhancing tensions and undermining the concept of federalism.
- Provincial resentment against a Punjabi-dominated military is fuelling ethnic tensions and regional divisions, with potential risk of violent internal conflicts.
- The non-partisan and indirect nature of the local elections has served the purpose of creating a party-less elite that could be easily mobilised to support the military.
- Due to the lack of checks and balances at the local level and across the different tiers of government, corruption opportunities have increased.
- Although the gap between state and citizen has been reduced, there is evidence of deterioration in delivery of basic social services such as health and education.
- The need to appease internal adversaries, the international community, international donors and non-government organisations (NGOs), rather than a genuine desire for democracy, played a big role in the design of the Plan.
By supporting the devolution plan, international donors have reinforced the power of the Pakistani military. It is therefore necessary that UNDP, international financial institutions and key donor governments:
- Influence the Pakistan government to devolve political, administrative and financial responsibility to the four provinces.
- Emphasise help for wider institutional reforms that address structural problems such as poverty, widespread corruption and public sector inefficiency.
- Exert pressure on the Pakistan government to hold local elections on a party basis and to devolve more administrative and fiscal power to local units, so that they can implement development projects.
- Encourage the Pakistan government to undertake a police reform and provide support to build capacity for investigation and prosecution functions.
- Overtly criticise measures that clearly endanger democracy such as the destruction of the independence of the courts and the separation of powers.
