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1 ACTION RESEARCH REPORT ON HEALTH, EDUCATION, REVENUE AND POLICE DEPARTMENT IMPROVING GOVERNANCE: REFORMING PROVINCIAL CIVIL SERVICES IN PUNJAB
1
ACTION RESEARCH REPORT
ON HEALTH, EDUCATION,
REVENUE AND POLICE
DEPARTMENT
IMPROVING GOVERNANCE: REFORMING PROVINCIAL
CIVIL SERVICES IN PUNJAB
2
Abbreviations and Acronyms ADB: Asian Development Bank
ADLR: Assistant Director Land Record
AEO: Assistant Education Officer
ARC: Arazi Record Center
ASI: Assistant Sub-Inspector
ASP: Assistant Superintendent of Police
ATC: Anti-Terrorism Count
BOR: Board of Revenue
BPS: Basic Pay Scale
BS: Basic scale
CC: Course Coordinator
CID: Crime Investigation Department
CM: Chief Minister
CNIC: Computerized National Identity Card
CPD: Continuous Professional Development program
CPPG: Centre for Public Policy & Governance
CRC: Complaint Redressal Cells
CT: Counter Terrorism
CTD: Counter Terrorism Department
CVP-TDEA: Citizen Voice Program - Trust for Democratic Education and Accountability
DEO: District Education Officer
DHQ: Divisional Head Quarters
DG: Director General
DIG: Deputy Inspector General
DLR: Director Land Records
DMO: District Monitoring Officer
DRC: District Recruitment Committee
DSD: Directorate of Staff Development
DSP: Deputy Superintendent of Police
EDO: Executive District Officer
FIR: First Information Report
GTC: General Teaching Council
HU: Homicide Unit
ICS: Imperial Civil Service
IG: Inspector General
LRMIS: Land Record Management Information System
MNA: Member National Assembly
Manager SD & PR : Social Development & Public Relations
MPDD: Management and Professional Development Department
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NACTA: National Counter Terrorism Authority
NADRA: National Database and Registration Authority
NTS: National Testing Service
PCA: Police Complaint Authority
PCS: Provincial Civil Services
PEEDA Act: Punjab Employees Efficiency, Discipline and Accountability Act
PESRP: Punjab Education Sector Reform Program
PMIU: Program Monitoring and Implementation Unit
PMS: Provincial Management Services
PMU: Project Management Unit
PPSC: Provincial Public Service Commission
PRMP: Punjab Resource Management Program
PST: Primary School Teacher
S&GAD: Services & General Administration Department
SDPO: -Divisional Police Officer
SHO: Station House Officer Sub
SI: Sub Inspector
SMBR: Senior Member Board of Revenue
SP: Superintendent of Police
SPU: Special Protection Unit
SST: Secondary School Teacher
TA: Traveling Allowances
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Contents Executive Summery .............................................................................................................. 11
Introduction ............................................................................................................................ 12
Rationale ................................................................................................................................. 16
AIM OF BASELINE STUDY ............................................................................................... 16
Study Sites ............................................................................................................................... 17
Study Objectives ...................................................................................................................... 17
STUDY DESIGN .................................................................................................................... 18
Methodology ............................................................................................................................ 18
Sampling Methodolgoy ........................................................................................................ 2222
Sampling Size 22
STUDY METHODOLOGY .................................................................................................. 88
Health Department Key Findings 23
Police Department Key Findings 23
Education Department Key Findings 24
Revenue Department Key Findings 24
Part II of the Study 25
HEALTH DEPARTMENT ................................................................................................... 26
GRADE and POSITION .......................................................................................................... 27
Positing of Nursing Cadre ..................................................................................................... 29
Qualification ........................................................................................................................... 29
Recruitment ........................................................................................................................... 30
Training .................................................................................................................................... 30
Transfer .................................................................................................................................... 30
Promotion ................................................................................................................................. 30
KEY FINDINGS ...................................................................................................................... 32
POLICE DEPARTMENT ..................................................................................................... 33
Introduction ............................................................................................................................ 33
Grades and Position ............................................................................................................... 36
Recruitment and Selection .................................................................................................... 38
5
Training and Capacity Building ........................................................................................... 39
Promotion and Transfer ........................................................................................................ 40
Rural and Urban Police Station Comparison ........................................................................... 41
Citizens Perception ................................................................................................................ 475
KEY FINDINGS ...................................................................................................................... 47
EDUCATION DEPARTMENT ............................................................................................ 49
Recruitment .............................................................................................................................. 51
Training .................................................................................................................................... 53
Promotion ............................................................................................................................... 53
KEY FINDINGS .................................................................................................................... 473
REVENUE DEPARTMENT ................................................................................................. 59
Board of Revene ..................................................................................................................... 60
Patwari ..................................................................................................................................... 47
Recruitment ........................................................................................................................... 63
KEY FINDINGS .................................................................................................................... 63
RECOMMENDATIONS ..................................................................................................... 351
Health Department –RECOMMENDATIONS ..................................................................... 751
Police Department- RECOMMENDATIONS ....................................................................... 751
Education Department- RECOMMENDATIONS ................................................................... 75
Revnue Department- RECOMMENDATIONS ..................................................................... 754
Conclusion ............................................................................................................................... 76
Schedule of Study for Health Department ........................................................................... 78
Schedule of Study for Police Department ............................................................................ 78
Schedule of Study for Health Department ........................................................................... 78
Schedule of Study for Education Department ..................................................................... 80
Schedule of Study for Revenue Department ........................................................................ 81
Participants Observation ....................................................................................................... 82
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List of Figures
Figure 1 Comparison of 4 Departments ................................................................................. 123
Figure 2 Distribution of Seats According to Pay scale ............................................................ 16
Figure 3 Map of Districts of Punjab......................................................................................... 18
Figure 4 Health Department ..................................................... Error! Bookmark not defined.
Figure 5 Number of Respondents (Health) .............................................................................. 28
Figure 6 Gender Proportion of Respondents (Health) ............................................................. 29
Figure 7 Sanctioned and Filled Nurses Positions ..................................................................... 29
Figure 8 Problems Identified by Citizens ................................................................................ 32
Figure 9 Problems of Nursing Cadre ....................................................................................... 32
Figure 10 Current Nurse : Patient Ratio ................................................................................... 33
Figure 11 Total Filled Position ................................................................................................ 33
Figure 12 Police : Population Ratio ......................................................................................... 36
Figure 13 Police Grade and Position ........................................................................................ 36
Figure 14 Police Department Interviews ................................................................................. 37
Figure 15 Interview Statistics ................................................................................................. 37
Figure 16 Hierarchy of Police .................................................................................................. 38
Figure 17 Perception of Citizens about police ......................................................................... 46
Figure 18 Department Interviews (Education) ......................................................................... 51
Figure 19 District-wise teaching staff ..................................................................................... 52
Figure 20 District and grade wise teaching staff in Sheikhupura ............................................ 52
Figure 21 Non-salary budget sample school ............................................................................ 55
Figure 22 Factors Hampering Service Delivery....................................................................... 57
Figure 23 Field visits to revenue department ........................................................................... 60
Figure 24 Hierarchy of subordinate cadre (Revenue) .............................................................. 61
Figure 25 Administrative Hierarchy (Revenue) ....................................................................... 62
Figure 26 Division of Land ..................................................................................................... 62
Figure 27 Difference in process of issuance of Fard and Mutation ......................................... 67
Figure 28 Issues in service delivery (Revenue) ....................................................................... 70
Figure 29 Schedule of study for health department ................................................................. 78
Figure 30 Schedule of study for police department ................................................................. 80
Figure 31 Schedule of study for education department ........................................................... 80
Figure 32 Schedule of study for revenue department ............................................................. 82
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Figure 33 Participants observation .......................................................................................... 82
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Acknowledgements
We gratefully acknowledge the United States Agency for International Development (USAID)
for funding the “Improving Governance: Reforming Provincial Civil Services in Punjab” project
under USAID Grant Number AID – 391- C -11- 00001.
We are particularly indebted to our consultants on the project, Mr. Tariq Mahmud, Mr. Shoeb
Syed, Mr. Sarfraz Ahmad and Mr. Khawaja Khalid Farooq for their vigor and effort to liaison
with officials from the respective departments under study as well as their useful comments and
suggestions on drafting of the report. We remain indebted to the Core Working Group members
for the continuous advice and support throughout the duration of the project.
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Report Format
Part I of the baseline provides the summary and includes research methodology, research
questions, objectives of the study, sample size and such details, besides the key findings in each
of the department. The details about the targeted departments, research related interviews, focus
group discussions, citizen perceptions and seminars are provided in Part II of the document along
with key findings and recommendations in an elaborate manner. The information provided in
Part I presented the research findings in a comprehensive manner which is further strengthened
with elaborate details of each in Part II of the document.
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Executive Summary
Bureaucracy is pivotal for governance and sustainable development in any state. A
professionally competent and well-trained bureaucracy could work for public welfare and build
trust between citizens and the state. Trust deficit could result in adversarial relations between the
citizen and the state and promote negative perceptions about public servants. In Pakistan, the
public perception of bureaucrats is one of corrupt, inefficient and hostile towards public. The
state is seen as unreceptive to public needs and its service delivery is on the decay. The 18th
Constitutional Amendment offers Punjab and all provincial governments an opportunity to
reform the provincial civil service and brighten the prospects of improving governance and
service delivery.
This research departs from earlier works on the subject as it articulates to pursue a bottom up
approach to induce behavioral and structural change in the provincial civil services for
improving governance. It aims to formulate an evidence based civil services reforms plan which
is owned by all the stakeholders.
Much of the administrative reforms and improvement in public service introduced in any country
originated from few fundamental points that accelerated the success of civil service reforms.
These included adoption of a new mindset and paradigm of thinking. The case study of public
administration reform in Malaysia significantly highlights this fact and shows that in order for
civil service reform to flourish seven fundamental values were internalized among its public
servants, which included quality, productivity, innovativeness, discipline, integration,
accountability and professionalism1. Such values were inculcated so as to create a flexible,
forward driven and motivated public service that could meet the challenges of the new age
development.
The setting up of an independent administrative and manpower-planning unit (MAMPU) brought
about the structural change in the Malaysian civil service2. MAMPU assisted the government in
suggesting measures to improve administrative hurdles. Some direct measures were also
introduced which included non-discrimination, new performance appraisal system,
comprehensive remuneration system providing performance incentives, enhancement of staff
training and development and the development of public service code of conduct to name a few.
The case of Pakistan highlights many points that need to be catered to when we consider
enhancement of efficiency, effectiveness and productivity of bureaucracy. In a country such as
Pakistan new projects on any level leave no room for improvement in existing structures and
mechanisms. The government has to realign its agenda for policy implementation and service
delivery and abandon the idea of having uniformed approaches for every sector, for example
1Zheng (2013).Reforming the civil service. Centre for Public Policy Studies, Asia strategy and Leadership Institute Policy paper series. 2Malaysian Administrative and Manpower Planning unit (MAMPU)
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police, health, education and revenue. These public departments require varied approaches due to
varied beneficiaries.
There is growing consensus that civil service reform is crucial for improving governance and
service delivery. However, most of the existing literature, in our assessment, erroneously lump
Grades 1-16 of the district service without adequate attention to their needs, skill sets,
aspirations, authority and behavioral aspects. Instead, there is a need to evaluate, assess and
propose reforms of the provincial bureaucracy according to their assigned roles, responsibilities
and performance. This implies that the Grades 5-16 and Grade 17 need to be treated separately.
Since it is the civil servants belonging to the subordinate cadres that represent the face of the
state and are the first point of contact with the citizens, the study focuses
subordinate cadres (Grade 5 - 16) in the departments of health, education, police and revenue.
The overall objectives of this project were;-
1. Strengthen citizens‟ voice through, among others, oversight of public bodies that leads to
advocacy for policy/legislative reforms and improved performance in terms of reducing
corruption and strengthening transparency and accountability mechanisms.
2. Increase public-private connections, or linkages, between and among state and non-state
actors for more effective accountability.
Centre for Public Policy and Governance conducted the baseline survey of civil servants in the
departments of health, police, education and revenue in four districts of Punjab, including
Lahore, Sheikhupura, Kasur and Faisalabad. The purpose of the study was to assess the job needs
and responsibilities, identify the challenges and issues in recruitment, training and promotions of
subordinate civil servants in the respective departments. Another equally important objective of
this exercise was to identify their capacity development and career planning needs and
challenges. The exercise also helped establish a baseline for future assessments of key
recruitment, training and career planning challenges of subordinate civil servants. The findings
of the study helped in the identification of future reforms in recruitment, training and capacity
building, particularly in line with the needs of the subordinate bureaucracy.
The baseline assessment benefited from a variety of data sources including literature review,
quantitative and qualitative survey techniques, participants‟ observation and in-depth interviews
with selected civil service officers especially from the lower cadre within grades 9-16.
An overall selection of common grades and positions (BS 9, 14 and 16) chosen from across all
the four departments is as follows;-
Table 1
Basic Pay
Scale Education Health Police Revenue
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9
Primary
School
Teacher
LHV/Junior
Technician
Assistant
Sub-
Inspector
Patwari
14
Elementary
School
Teacher
Senior
Technician
Sub-
Inspector
Naib-
Tehsildar
16
Secondary
School
Teacher
Charge
Nurse Inspector Tehsildar
Figure 1 Comparison of 4 Departments
During research, questionnaires were developed followed by personal interviews of relevant
staff/officers from the aforementioned departments. In addition, recruitment policies, operational
policies and the role of the training institutes of civil servants were also closely examined. The
baseline assessment for all the four departments was conducted between July 2015 and
September 2015.
The key findings common to all the departments included the delay and / or lack of any system
for career progression; poor salary and employment benefits and working conditions for the
junior cadre had a direct impact on the level of motivation. The lack of qualified staff, poor
human resource management, political interference and other governance issues were identified
as common denominators during the study.
The health department key findings revealed that shortage of human resource, especially the
nursing cadres, was overburdening the day to day work at the medical facilities and there was no
solution in the site in the absence of effective human resource management systems. They delay
in promotion to the higher grade and non-payment of postgraduate allowance was hampering
both career and education prospects. It was also highlighted that people are forced to take
journeys to seek medical assistance simply because to lack of such facilities near their homes.
The key findings for the police revolved around the disparity between the sanctioned strength
and the one that was available for duty, long duty hours, limited opportunities for promotion,
non-comparative salaries, poor working conditions, political interference in posting, transfer and
promotions and scarcity of resources and training opportunities, all of which contributed to the
low self esteem and motivation among the junior cadres. The education department key findings
revealed inadequate training for the teachers to perform the task, disconnect in pre-service and
in-service training, lack of motivation due to uncertain career progression, low budget for the
sector, assigning duties besides teaching, poor infrastructure, political inference and prevailing
low self esteem among the teacher.
The prevalent disconnect between the training / skill development of the Patwari and the
important role of the position was identified among the key finding. Other findings included
meager salary and employment benefits, limited prospects of career progression, political
interference, prevailing environment of corruption and on-going ban on recruitment of Patwari.
The computerization of the land revenue record was identified as one of the major steps forward
in the revamping of the revenue department.
In the light of the baseline findings, it is recommended that decentralization of the departments to
the district level be the first step towards improving service delivery at various levels with
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immediate focus on ensuring the qualified staff recruitment is carried out to make up for the
shortage at every level of service delivery. It is recommended that service structure should be
developed for every tier at the junior cadre and where it exists, it would be implemented to
ensure that staff office timings are strictly observed and employees are compensated for duties
performed beyond the office hours, all employees are granted training opportunities that are
need-based and result in improving the prospects of promotion to higher grades. At the same
time to sustain commitment of the staff and employee retention, the good performance of staff
should be incentivized and recognition should be institutionalized.
Introduction The civil services reforms are a complex and sensitive process, both in developed and the
developing countries. The edifice of British colonial administration was built on the Imperial
Civil Service (ICS) in undivided India. The ICS was described as the „steel frame‟ through which
colonizer‟s governed India. On gaining independence in 1947 both India and Pakistan inherited
this „steel frame‟. Over almost seven decades of Pakistan‟s existence, several reform
commissions have been constituted to bend this „steel frame‟. However, the primary focus of this
reform effort had been the senior bureaucracy of Pakistan. This study departs from the
established path and aims to draw attention towards the real „face of the state‟, the street level
bureaucrats. The provincial and local public servants are the real face of the state as they are the
first point of contact for the public. In the past three decades several factors have contributed to
the deteriorating law and order situation in the country, including Punjab. This has created a
public perception that civil servants at all levels of government are, „arrogant‟, „corrupt‟,
„inefficient‟ and „anti-public‟. This has widened the gulf between the citizens and the state and
the citizens lack trust in the state. To what degree this lack of trust is real or perceptual? Would
reforming bureaucracy at this level improve governance and change public perception? This
study explores these critical questions.
A typical street-level bureaucrat includes teachers, police officers and other law enforcement
personnel, social workers, judges, public lawyers and other court officers, health workers and
many other public employees who provide government services.3 As Lipsky points out that one
of the main reasons why people choose to be street level bureaucrats is to serve the community.
Being a teacher or a police officer is socially useful and serves the purpose of being direct
service to the public. This point holds merit as exploratory visits to four chosen districts in
Punjab revealed that the prime motivation for teachers who entered the education sector and
nurses was to serve the community. Yet at the same time it was realized that the same street
bureaucrats who chose such a profession face ample pressure in terms of workload, customer
grievances, extended duty hours and minimal resources which ultimately defeats their purpose as
a service worker.
3 Lipsky. Street level bureaucrat: Dilemmas of the individual in street level, 2010bureaucracy .pg 3-50
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Lipsky correctly argues that personalized service delivery is unimaginable since the street level
bureaucrat must be ready to serve the collective population. As is the case of a teacher or a police
officer Lipsky points out, “teachers should respond to the needs of the individual child, in
practice, they must develop techniques to manage a classroom of children. Police officers should
respond to the presenting case, in reality, they must develop techniques to recognize and respond
to various types of confrontations, particularly those that threaten their authority or may pose
danger.”
This seems especially true considering 1:50 teacher-student ratio in classroom in Pakistan where
the teacher has to accommodate all children in a short period of time and space. While such
struggles are real, the question is how to improve service delivery amidst the limited resources
while keeping the public schools teacher motivated in career as a teacher.
It is important to place reliance on the street level bureaucrats as playing an essential part in the
uplift of the social policing of the state. Not only do the salaries of the street level bureaucrat
form a large chunk of the entire public budget but also the scope of public service of these
officials has increased over time. This is essentially true in the case of Pakistan where the non-
Gazetted officer from cadre 1-16 comprises 80% of the entire strength in Punjab. Therefore
catering to their training needs, capacity building and career progression opportunities is
essential to build a skilled and motivated force to deliver effective and accountable public
service.
The 18th
Constitutional Amendment provides provinces an opportunity to build political,
administrative and fiscal capacity at all levels to improve policy making and governance
processes. The real test for the Punjab government is to provide civil service reforms that are
essential to improve service delivery reshape the state-society relationship and sustain the
provincial roles and responsibilities. In that context it will be only appropriate for Punjab
government to consider adopting a bottom-up approach to reform the provincial civil services. It
must be recognized that civil service reforms cannot take place by reforming the senior civil
service cadres in a vacuum.
A street level bureaucrat is inevitably stuck between two worlds during his tenure of service.
There is one that is his world of aspirations and the other of corruption and favoritism that will
define his daily routine if he succumbs to it. Lipsky states that majority of the street-level
bureaucrats service time is spent in the “corrupted world of service”.4 The role that these street-
level bureaucrats play is special in term of making public policy. Lipsky correctly identifies that
by training, street-level bureaucrats should respond to the individual needs or characteristics of
the people they serve or confront. In practice, they must deal with clients collectively, because
work requirements prohibit individualized responses. Teachers should respond to the needs of
the individual child, yet in practice this is not possible, as they must develop techniques to
4ibid, pg 1
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manage a classroom of children. Police officers should respond to the presenting case, in reality,
they must develop techniques to recognize and respond to various types of confrontations,
particularly those that threaten their authority or may pose danger5. This is particularly prevalent
in Pakistan where the police officers, to tackle various challenges, end up inventing modes of
mass processing that more or less permit them to deal with the public fairly, appropriately and
thoughtfully. However at worst times, they give in to favoritism, stereotyping, convenience and
converting to routine all of which serve their own or agency purposes.
While there have been numerous civil service reforms plans that advocated in the past, even
some of the most well organized reforms have shown little improvement in the state-citizen
relationship. The capacity and performance of civil service cannot be improved in isolation by
focusing only on the senior bureaucracy (Grade 17 and above). There is in fact, a need for
overarching reforms that should focus at gauging, improving and advocating civil service
reforms using a bottom-up approach especially after the 18th
Amendment. Three recent reports,
namely Kardar (2007), Laking (2007) and ADB (2009) draw attention towards provincial
reforms in Punjab. However, the key limitation of these studies has been that they lump Grade 1
to 16 under the district service without paying adequate attention to their needs, skill sets,
aspirations, authority and behavioral aspects.
Countries with successful ongoing civil service reforms have one thing in common, which is
commitment and consistency to reform by the top leadership. The “Look East” policy has
benefitted countries such as Japan, Korea and Malaysia. This policy instills eastern values and
work ethics that translate into improvement in all fronts in provision of effective public services.
These points can similarly be inculcated in the governance structure of the Pakistani
bureaucracy. Cultures develop as a result of external influences, custom and practice, history,
and so on. They become established over time and can exert a powerful influence on the
behavior of populations and workforces. At present there is an observable lack of commitment to
reform at the senior levels of the public service. Punjab has 1,018,579 sanctioned civil servants
positions, of these 362,175 are at the provincial level and 657,824 at the respective 36 district
governments.
The figures in Punjab from BS 1- 22 are illustrated below:
Table 2
Pay Scale Positions Percent of Total
BS 1-15 903,274 83.4
5 ibid pg 13
16
BS 16-22 115,305 16.6
Total 1,018,579 100.0
Figure 2 Distribution of Seats according to Pay Scale in Punjab
Source: Management and Professional Development Department report 2010
On the whole, the province of Punjab has nearly 83.4% of the civil servants employed in BS 1-
15 category. In the provincial departments around 16.6 % positions are distributed between BS
16-22. Therefore, this study contends and pleads on carefully analyzing the role, responsibilities
and needs of these cadres - the subordinate services that are the face of the state.
Rationale The purpose of this study was to examine the recruitment procedures, structure and functions of
provincial bureaucracy, posting/transfers, career prospects and how they impact performance of
the street-level bureaucrats in the delivery of services. What can be done to improve the capacity
and quality of these public officials? The study focused the following four departments;-
Education
Health
Police
Revenue
The rationale for focusing these departments was that more than 80 percent of the civil servants
form the bulk of these four departments. Similarly, civil servants in the subordinate cadres
(Grades 5 to 16) form a large part in these departments. Also, given the issues in public service
delivery and the fact that these civil servants are the first point of contact for ordinary citizens
and the face of the state, it was increasingly important to examine why adequate attention had
not been paid to improve and reform the subordinate cadres.
The real test for the Punjab Government is to provide civil service reforms that are essential to
improve service delivery to reshape the state-society relationship and sustain the provincial roles
and responsibilities following the 18th
Constitutional Amendment. In that context it will be only
appropriate for Punjab government to consider adopting a bottom‟s up approach to reform the
provincial civil services. It must be recognized that civil service reforms cannot take place by
reforming the senior civil service cadres in a vacuum.
Key Research Questions
In light of this study the following key research questions were developed;-
1. Is recruitment of the subordinate cadre BPS 5- 16 the function of the department?
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2. Are there any department specific benchmarks for recruitment, assessment and training of
lower cadre?
3. To what degree does the Punjab Public Service Commission (PPSC) hold a key in
recruitment of the lower cadre?
4. Does the department handle the posting/transfers of the lower cadre and are they based on
merit/political patronage/territorial based/district based?
5. Is there a structure for promotion or career progression?
For citizens view the questions were as follows;-
1. How does the department treat them in terms of service delivery?
2. How long does it take for the department to complete its task and deliver a service to
you?
3. What are the complaints of citizen against the department?
4. Does the citizen believe the department is well equipped and trained to provide them the
service they need?
Study Sites
Punjab is Pakistan‟s most populous province with almost 58 percent of the total population of the
country living in 36 districts. However, given the constraints of funding and practical needs, this
study was limited to four districts. This baseline selected four districts, including Lahore,
Sheikhupura, Faisalabad and Kasur. Figure 1 presents the geographical distribution of 36
districts and highlights the four districts chosen for this baseline study.
Figure3 Districts of Punjab Province
Study Objectives
The overall purpose of the study was to gain a deeper understanding of the citizen-state
relationship by examining the structure and functioning of the provincial bureaucracy in Punjab.
Identify gaps and missing links and explore the prospects of improvement and reform.
Specifically this study was designed to;-
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Analyze the role, responsibilities and performance of the lower cadres (the subordinate
bureaucracy as identified above) of the provincial bureaucracy in Punjab. In that sense
departing from most of the literature on civil service reforms that focuses on the higher
echelons of bureaucracy.
It will focus on the subordinate cadres (BPS 9-16) of the four departments namely;
education, health, police and revenue. Examine their recruitment procedures,
postings/transfers, career prospects and how the performance of these „junior‟
bureaucrats impacts the lives of ordinary citizens. Could reform and capacity building of
these „junior bureaucrats‟ improve governance and delivery of service in Punjab?
Study Design
Methodology
The study was qualitative, analytical and descriptive in nature. The literature review was carried
out alongside the empirical and evidence based data collection to assess the governance and
performance of the civil services in Punjab. The qualitative data was collected through open-
ended questions and semi-structured interview protocol. The research was preliminary and drew
samples from four districts of Punjab, including Lahore, Sheikhupura, Kasur and Faisalabad. It
followed a stratified random sampling technique.
The research teams observed the four departments to understand organizational culture, service
structure and interviewed provincial bureaucracy. Interviews were also conducted to assess the
stages of recruitment, training, and assessment along with the working of lower cadre of the civil
service.
The following data collection tools were employed for research purposes;-
Planning Meetings
The research teams reached out to the senior bureaucrats of all the four target departments to
conduct planning meetings in liaison with the consultants with an aim to develop a better
understanding of their thoughts on service delivery issues at the subordinate cadre.
The health department meetings were arranged in the health department, District Health
Headquarters, District Complex, Director General Nursing Lahore, EDO Health Office in
Lahore, Kasur, Sheikhupura and Faisalabad. The senior officers of the Police Service of Pakistan
of the rank of Deputy Inspector General and Additional Inspector General of Police were met at
the CPO in addition to a retired IGP and AIG. The education department meetings were
conducted at provincial education department, School Education Department, PESRP,
Sheikhupura District Complex, and Directorate of Staff Development (DSD) and Management
Professional Development Department (MPDD). Similarly, the research team held meetings with
senior officials of the BOR, senior official at the Directorate General of Punjab Kachi Abadi and
19
officials of Project Management Unit (PMU) of Land Record Management Information System
(LRMIS).
Perception Interviews
An open ended set of questions (40 in total, though not limited) was developed for the purpose of
qualitative data collection. The questionnaire was developed in the light of the available
literature and discussion with the Core Working Group and group of consultants for the project.
In addition to this self-developed semi-structured interview protocol was used to collect the
qualitative data for the study. The draft questionnaire was peer reviewed with the consultants and
comments from CVP-TDEA were also incorporated.
A two-part questionnaire was prepared, one for the bureaucrats in the four respective
departments and one for the citizens‟ response regarding effective public service delivery. The
questions for the bureaucrats aimed specifically at the Grade 9, 14 and 16.
The modules of the questionnaire are listed below:
Grade Composition
Recruitment
Training
Career Incentives
Promotion
The questions for the citizens perception focused on how they are treated by the department, how
long does it take to complete their task and their complaints regarding the department? The
CPPG collected perception of ordinary citizens through 20 interviews based on their interaction
with the bureaucracy and service providing government departments.
Participant Observation
The research teams spent five days observing each of the four departments to understand the
institutional culture. Processes and working. The assessment was carried out as observers.
The observation for the health department was carried out at two government hospitals in Lahore
(Jinnah Hospital and Services Hospital), district hospital and district health headquarter (DHQ)
at districts of Faisalabad, Sheikhupura and Kasur. The convenient sampling technique was used
for the selection of hospital. The respondents for this citizen survey were patients / common
citizen seeking health service at these locations.
A similar sampling technique was used for the police department in Lahore, Kasur, Sheikhupura
and Faisalabad. The research teams visited the police stations to observe the working in order to
understand the administrative practices and daily routine of the subordinate ranks. The
20
respondents for the citizens‟ survey were common people visiting police stations for matters
pertaining to crime reporting/ lodging FIR and for basic inquiries regarding matters related to
police investigations.
For education department four public schools were selected in the target districts. The convenient
sampling technique was used for the selection of schools, which were further divided into two
male and two female public schools. The respondents for this survey were the students and their
parents. In Lahore, the participant observation was carried in two male and female public
schools. The teams spent two days at the school education department of Punjab, one day at
training institute DSD and one at PESRP. Furthermore one day was spent in Sheikhupura
observing the schools and district administration of the school department.
Similar sampling technique was followed in the revenue department in the target districts. The
teams visited the Patwar Circles and Land Record Management Information System (LRMIS)
for participant observation in Lahore. The respondents were ordinary citizens visiting the Land
Record Management Information System (LRMIS) and the local Patwar Circles (Patwar
Khanas) for basic inquiries regarding land record and obtaining land record documents.
Policy Dialogues
Two policy dialogues were conducted during the process. The first dialogue on “Challenges of
Efficiency and Organizational Culture in the Provincial Bureaucracy” was held on June 11, 2015
and attended by provincial and federal bureaucrats, human rights workers, lawyers and civil
society members. The purpose of the dialogue was to build consensus among relevant
stakeholders regarding ways to improve governance, transparency and accountability in Punjab
Civil Services and to identify some of the major challenges in terms of recruitment policy and
prospects, tenure certainty and promotion. The participants and the speakers suggested ways to
overcome the challenges of efficiency and organizational culture in the provincial bureaucracy.
The second policy dialogue on “How can the performance of the Punjab bureaucracy be
improved” was held on August 10, 2015. The participants of the dialogue included provincial
and federal bureaucrats, human rights workers, lawyers, officials from the lower cadre (9-16) and
civil society members. The purpose of the dialogue was to identify ways in which governance,
transparency and accountability can be improved in the Punjab Civil Services. The views of the
stakeholders were expected to contribute to Punjab Civil Service Reforms Plan. Since the project
focused on civil servants in the subordinate bureaucracy, participants and speakers were
requested to identify some of the major issues related to their recruitment, training, incentive
structure, institutional culture and relationship with superior bureaucracy. The participants and
the speakers were requested to suggest ways to improve the performance of provincial
bureaucracy that would eventually form part of the Punjab Civil Service Reform Plan. The
findings of the dialogue revealed that emphasis should be laid on the recruitment and training of
21
the lower cadre of the four departments. The issue of administrative clerks was also highlighted
regarding their use of protest as a tool to push for their demands.
Focus Group Discussions
Four focus group discussions (FGD) were conducted during the project period. The FGD for
education department was held on August 26, 2015, with 20 participants representing lower and
higher tier public primary, elementary, secondary teachers, principals and Punjab Teachers
Union. The discussion focused on major impediments faced by the teacher in the cadre of 9- 16
in the performance of their duties, In a nutshell teachers concerns existed out of the delay in
promotion, stagnation in one grade, extra duties and deteriorating respect in society.
The FGD for the revenue department was scheduled in the first week of September 2015, which
included Patwaris and revenue officers as part of the discussion. A total of six officials (BPS 9-
16) attended the FGD in which the issues in effective service delivery, including recruitment and
selection, promotion, the introduction of the LRMIS and its repercussions for the Patwari, were
discussed. It was stressed that the new computerized system of LRMIS should be in sync with
the Patwari system and Patwari should not be alienated from integrating with the computerized
system.
The FGD for police department was held on October 6, 2015, which was attended by 10
participants, including a former IGP, two SHOs, two ASIs, one HC and four constables. The
discussion revolved around the challenges faced by the police staff including long duty hours,
lack of specialized training and promotion opportunities that resulted in poor motivation and
performance, especially among the lower cadres. The issue of salary structure not corresponding
to the important role of each of the various positions, especially of the SHO, was also discussed.
The participants also highlighted the political interference in police affairs that hampered the
creation of a positive image of the civil armed force among the general public.
The FGD for the health department was held on October 7, 2015. The total number of
participants was 28 and comprised of middle to lower tier cadre of BPS 9 till 16. The discussion
focused on impediments faced by the paramedic staff in their daily routine such as training
structure, lack of promotion policy, extra duties and non-implementable service structure.
Quality Control
The questionnaires were routinely checked, complied and completed on a daily basis, often
supervised by consultants who assisted with the on-going field visits within the four districts of
Lahore, Faisalabad, Kasur and Sheikhupura. If some inconsistencies were identified, the research
22
team revisited the departments/personnel to gather a comprehensive response from the respective
interviewees.
Sampling Methodology
The samples were drawn from all the four target districts of Lahore, Kasur and Sheikhupura and
Faisalabad, and were narrowed down to junior technicians, Lady Health Visitor, senior
technician and charge nurse for the health department; ASI, SI and Inspector for police, primary
school teacher, elementary school teacher and secondary school teacher for education and
Patwari, naib-Tehsildar and Tehsildar for the revenue department.
Besides, interviews were also conducted with senior and junior bureaucrats from the four
departments. For instance police officers from the rank of IGP, AIGs, DIGs, SSPs, DSPs to Head
Constables and Constables, education department officials from the rank of EDO‟s, DEO‟s,
AEO‟s, DMO, head master to provincial secretary for the education, revenue department officers
from the rank of Senior Member BOR, Director Land and Revenue, Secretary Revenue, Director
Kachi Abadi to Gardawar and Qanoongoh were interviewed.
Sample Size
The research teams conducted 217 interviews from the four departments, encompassing the
provincial bureaucracy (segregated according to Grades 9, 14 and 16 and 17) and Grades 5, 7, 9,
11 and 16 in the police, Grades 9, 12, 14 and 16 in the health, Grades 11-13, Grades 14-15 and
Grades 16-17 for revenue and Grades 6 – 15 in the education department. The sample size
chosen for citizens‟ surveys was five for all the departments.
The total sample size for the health department was 71, which includes interviews with DG
Nursing Department, provincial health department and citizens‟ survey. The sample size for the
police department was 42, including 20 respondents from ranks between BPS 5-16 and as many
as 15 officers of the superior cadre BPS 17-22. In addition to the above five perceptions
interviews were also conducted with common citizens.
The sample size for education department was 78, including 20 samples each of junior cadre
between Grade 5-16 from the four districts. Similarly, interviews were conducted with clerks
association and associations of PMS Officers besides the citizens‟ perception survey.
The sample size for the revenue department was 26 respondents with 11 from varied
cadres/positions from BPS 5-16. At the same time 13 officials of the superior bureaucracy BPS
17-22 of the revenue department were also interviewed, in addition to the citizens‟ perception
interview.
Schedule of the Study The CPPG research team concentrated on the four departments for two months, observing them
23
to understand organizational culture, interview provincial bureaucracy (separated according to
grades for each of the department). For the purpose of baseline assessment the schedule of the
study included a total of 217 interviews, five citizen surveys for each of the department (for the
health department the number increased to 15) and five-day participant observation for each
department. For the education and revenue department interviews were also conducted with 12
union representatives (Teachers Union, All Pakistan Clerks Association, and Punjab Provincial
Management Association), 14 members of civil society, members of bar association and
prosecution department, 14 high ranking provincial and federal officers and retired officers.
The baseline for the four departments, including interviews and participants observation, was
completed between April and September 2014. Annex A for details.
24
Part II
Part II of the document provides elaborate details of the research conducted for this baseline with
the four targeted department in the targeted districts. It provides introduction to the working of
the four departments, key components that one must learn to understand the culture and work
ethics of each department besides the findings of the baseline interviews, perception surveys,
focus group discussions and seminars. The key findings in each of the department are provided
in a detailed manner while the recommendations are also extensive.
25
HEALTH DEPARTMENT Punjab is the most populous province of the country. Its current population is estimated to be
over 100 million. It has an area of 205,345 square kilometers, consisting of 36 districts and 127
tehsils. Despite an extensive network of public healthcare facilities of 340 hospitals, 2606 BHUs,
337 RHCs, 282 MCHCs and 1201 dispensaries, the overall health status of its population is
below the desired level.6
According to Pakistan Economic Survey 2013-14, Pakistan is the sixth most populous country in
the world with a projected population of 188 million. According to World Population Data Sheet
2013, Pakistan with population of 363 million in 2050 is expected to retain the same position.
The population growth rate in Pakistan is 1.95 %, which is higher than average growth rate of
South Asian countries. For Punjab, the growth rate is around 1.6%. The number of people
utilizing public sector services continues to increase every year and the department is working
under continuing pressure to meet the growing demands of the people and combat the challenge
of double burden of disease (communicable and non-communicable). The rapid growth of
population at the current rate reinforces the need for additional trained staff, nurses, dispensers,
emergency staff etc to meet this progression. These are the lower cadres that exist between BS 9
and 16, that are required the most in order to meet emergency and timely public service delivery.
The Punjab Health Department employs over 100,000 people including
management/administrative staff, general cadre workers and specialist staff. Harnessing this
huge strength to work cohesively is a major challenge for the department. Recruitment and
retention of the correct skill mix in the right ratio still continues to be a challenge. The
department is aware of the fact that migration of workers, training issues and improper
geographic distribution of staff are all having an impact on the quality of service being provided.
To focus specifically on these issues and to maintain an up to date profile for the province the
department has set up an HR Management Information Center to document electronic records of
all the staff in the province.7
One of the major factors affecting the healthcare at BHUs includes staff absenteeism, limited
time (8 AM to 2 PM) of service provision at BHUs and poorly trained staff. Only 74% of total
sanctioned positions were filled in public sector health facilities of Punjab8. Some of the essential
staff positions such as medical officers, women medical officers and vaccinators were vacant as
almost 51% sanctioned positions of MOs and 20% sanctioned positions of vaccinators were
vacant in Punjab during 2014. The situation in Sheikhupura was not much different. 79 positions
of medical officers were sanctioned at BHU level in the district while only 44 were filled.
Similarly only 84 vaccinators were present in Sheikhupura against 109 sanctioned positions.
6 Bureau of Statistics, Government of Punjab, Statistical Pocket Book of The Punjab, 2013 7 Annual Health Report 2013-14, Health Department Govt. of the Punjab 8 Need Assessment and Evidence Budgeting-Sheikhupura Report-Sub National Governance May 2015
26
GRADE and POSITION
“Street level bureaucrats are public sector workers who interact directly with citizens in the
course of their jobs and who have substantial discretion in the execution of their work” (Lipsky)
For the purposes of the study we focused on the recruitment, promotion, training and career
planning of the following BSP 9-16. These were selected due to the proximate and intricate role
they play in providing service delivery one on one to the citizen. In the three-tier structure of the
health department these all cadres fall under the tertiary care unit. However considering the
frequency, need and requirement such positions were found in almost all the service delivery
structure of the health department.
Table 4
GRADE POSITION
BPS 9 Junior Technician /Lady Health
Visitor
BPS 12 Surgical Technician
BPS 14 Senior Technician
BPS 16 Charge Nurse
Figure 4 Health Department
Service Delivery Structure
In Punjab, health services are provided through a tiered referral system of healthcare facilities
with increasing levels of complexity and coverage from primary to secondary and tertiary health
facilities. The primary care facilities include basic health units (BHUs), rural health centers
(RHCs), government rural dispensaries (GRDs), mother and child health (MCH) centers and TB
centers. All of these provide OPD services for preventive and a limited number of curative
services. RHCs provide a broader range of curative services 24/7. Primary care facilities also
provide outreach preventive services to the communities, through vaccinators, sanitary inspectors
and the sanitary patrol. Tehsil and district headquarter hospitals provide increasingly specialized
secondary healthcare, while teaching hospitals form the tertiary level tier.
The cadre from tertiary healthcare service was chosen for the study as BHU were not accessible.
A majority of the respondents were from the hospitals and district headquarters in the four
chosen districts of Punjab.
Medical Education
27
Health department remains actively involved in the development of human resource for the
health system in Punjab. The department runs a number of public medical and dental colleges,
nursing schools and paramedical schools to meet the requirements of the province. The teaching
facilities and the number of schools include 16 medical colleges, 58 teaching hospitals, 45
nursing schools and six paramedical schools in Punjab.
Respondents for the Interview
The departments chosen for the study of the lower cadre were narrowed down according to cadre
BPS 9, 14 and 16. A total of 71 respondents were interviewed. The segregation of the
composition of type of person interviewed is illustrated through a pie chart below.
Figure 5 Number of Respondents (Health)
For BPS 16, charge nurse was chosen due to the fact that it offers a straight link between the
state and the citizen. The real backbone of the entire health structure depends on the nurses.
Therefore analyzing the role of this cadre was essential. In this regards Director General Nursing
and its role in nursing was analyzed. The figure above illustrates the number of people
interviewed in each department. A majority of those respondents were BPS 16 charge nurses.
Five interviews were conducted at the S&GAD with assistant superintendent (BPS 16) was
interviewed alongside section officer of BPS 16 and 17.
Around 12 staff members from BPS 12 and below were randomly interviewed. The position for
this grade included stenographer, Lady Health Worker (LHW) and Lady Health Visitor (LHV),
junior technician and senior technician.
Gender Division
Of the total number of respondents interviewed in the health department, 55% were female and
5
7
5
6 12
15
Number of Respondents (Health)
S&GAD
Doctor (Administrators)
Nurses (Administrators)
BPS-12 AND Below
BPS-16
Citizens
28
45% were male. The health department especially the cadre of nurses BPS 16 and above remains
pre-dominantly female.
Figure 6 Gender Proportion of Respondents
Positions of Nursing Cadre
The table below shows that the number of nurses working on adhoc basis was more than
permanent employees. This poses two challenges. First, the government has three different
parallel system of recruitment running (PPSC, contract basis and adhoc). Once adhoc the nurses
remain stuck and do not fall in any specific service structure, which undermines their career
progression. Through PPSC the BPS 16 falls in a service structure which provides gradual
progression once the seats via PPSC are advertised. Second challenge was that due to the
existence of three systems, the scarcity of nurses’ remains regardless, which leads to workload
and ineffective service delivery.
Figure 7 Number of Sanctioned, Filled and Vacant Posts Source: Director General for Nursing, Health Department
Qualification
Following are the qualifications of the cadre 9, 14 and 16
a. Charge Nurse (BS-16)
B.SC (4 years of nursing qualification), including three years of diploma in nursing and
one year midwife course
45%
55%
0% 10% 20% 30% 40% 50% 60%
Male
Female
Gender Proportion of Respondents
Sr.
No.
Basic Scale Sanctioned Filled Vacant
1 20 6 5 1
2 19 22 3 19
3 18 98 79 19
4 17 1359 899 460
5 16 11065 10181 884+1489 (Adhoc)=2373
29
b. Biomedical Technician (BS-11)
Matriculate with three years diploma in electro-medical engineering. The recruitment is
through a selection committee
c. Lady Health Visitor (BS-09)
F.Sc pre-medical with relevant diploma and registration with Pakistan Nursing Council
Recruitment
The recruitment for post of BS 16 (charge nurses) takes place through PPSC. In August 2015,
charge nurses in BS 16 were appointed on adhoc basis for one year through the district
recruitment committee.
Training
The nursing schools are present in each district and offer a 4-year nursing training program,
which includes 3-year nursing diploma and one year midwife course. The students with
intermediate qualification, pre-medical, are inducted in such schools. All these trainees are given
stipend on monthly basis. However one of the main problems identified with these nursing
schools was their lack capacity to train nurses in adequate numbers. These institutions produce
merely 2500 graduates every year (DG Nursing) while the number of medical college graduates
stands at 4000 doctors annually.9 Moreover these nursing schools also lack infrastructural
facilities such as hostels for nursing students.
Pakistan Nursing Council oversees the curriculum development of nursing diplomas. The
curriculum designed for the 4-years degree program of nursing is well-defined and
comprehensive. But this degree program is currently being offered only in nursing colleges, not
in nursing schools.
The on-job training programs are offered to a very limited number of nurses, mostly hailing from
Lahore and its peripheral areas. Most of the refresher courses offered to medical staff are related
to various disease drives i.e. dengue, and other communicable diseases. Hence, it can be seen
that these refresher courses focus more on prevention and patient management of certain viral
diseases rather than general nursing care.
Transfer
All postings and transfer of charge nurses within the district are done by the EDO (Health). The
Health Secretary Punjab does all the inter-division postings and transfers of charge nurses.
Promotion
For a charge nurse to be promoted to BPS 17 depends on the availability of seats. In April 2015
around 500 seats were advertised for BS 17. The BS 16 charge nurses were eligible to apply
9 interview with Director Nursing Punjab August 2015
30
provided they fulfilled the required qualification. For recruitment in BS 17 M.Sc nursing or
equivalent qualification is required from a recognized university along with three years of
practical experience as a charge nurse or B.Sc nursing post, registered nurse with at least four
years of experience as a charge nurse or a registered nurse or midwife with diploma in ward
management along with recognized and valid registration from Pakistan Nursing Council.
Access and Quality of Health Services: A Citizen perspective
The citizen perception survey was conducted among 15 citizens, in an attempt to evaluate the
level of their satisfaction with regard to public service delivery. The survey was conducted in
two public hospitals i.e. Jinnah Hospital Lahore and Services Institute of Medical Sciences,
Lahore. All respondents were attendants to the patients and the ones who had to deal with the
hospital staff for all matters regarding the treatment of their patients.
Of the 15 respondents, nine belonged to cities other than Lahore. The patients were referred by
local hospitals to Lahore. When asked whether they had any medical facility near their home, the
most frequent response was “Yes, but it is in shambles”. With the exception of metropolitans, the
nearest working medical facility for most of the people were District Headquarter Hospitals,
however, these remain inadequately equipped in medical staff and machinery.
All the respondents admitted that the doctors and nurses were always present on duty and
facilitated the patients when they needed them. But the respondents differed on the question of
the quality of services being provided. Ten out of 15 highlighted the rude behavior of medical
staff. Three respondents also stated that the lower staff i.e. sweepers and guards, demand bribes
from the attendants when they want to be with their patients during the visiting hours of senior
doctors. Two respondents stated that the doctors check the patients properly, but the nurses have
a practice of not attending to the patients properly i.e. they do not administer the patients
medicine properly and forge entries in the patient files.
All the respondents highlighted over-crowded public hospitals. They had to wait for long
durations even for basic medical tests. This crowding also becomes a problem for the patients
seeking admission for treatment. Three respondents claimed petty administrative hindrances for
the delayed in redress of their demands.
It was stated that in order to get admission, a patient has to go to various offices for signatures,
which adds to undue fatigue for citizens. One respondent, who came for medical fitness
certificate, complained that there was only one public hospital in Lahore authorized to issue such
certificates which resulted in long queues at all the times. Such applicants also waited in queues
with common patients, which increased the burden of laboratories and other facilities. The
31
general demand was from the government to authorize other hospitals to issue these certificates
as well.
Of the respondents, five were clearly satisfied with the health facilities of the hospital. They were
of the view the public pressure makes the staff behavior rude and people should exercise
patience while seeking treatment. One respondent stated that he was visiting Jinnah Hospital for
the last fifteen years and was always provided satisfactory treatment.
All respondent were of the view that in-spite of all the hurdles, the public hospitals perform
better than private hospital on account of free medical check-up and competent doctors. However
it was important to note that most of the bottlenecks especially in primary healthcare service
delivery were governance related and improvement in governance was likely to improve the
quality of service delivery.
The pie chart below shows the daily problems faced by a common citizen in a public hospital.
Figure 8 Problems Identified by Citizens
KEY FINDINGS
1. Problems in the nursing cadre
When asked about the problems faced by the nurses in their day-to-day service, around 44
percent of the total respondents said it was shortage of staff with which they were overburdened.
As many as 22 percent said they were not provided with postgraduate allowance if they wished
to improve their qualification. Around 28 percent of the nurses interviewed blamed the delay in
promotion as the biggest hurdle in their careers.
Figure 9
39%
33%
28%
Figure 8: Problems Identified by Citizens
Overburdened Facilities Rude Behaviour of Staff Administrative Hindrances
32
Figure 9 Problems of Nursing Cadre BS-16
Note: This was a sample size drawn from the four districts and includes responses from nurse of
cadre BS 16 (and 17 and 18).
2. Scarcity of nurses and staff
The table below shows the dearth of nurses regardless of the appointments made. Normally there
should be one single nurse serving up to more than 11 patients. However field observations in
hospitals highlighted this point more evidently where one nurse was serving up to more than 40
(1:40) patients in one ward. Field visits to Kasur, Faisalabad and Sheikhupura revealed that the
shortage of nurses was alarming and hampered the appropriate service delivery to the patients. In
DHQ Kasur, the required strength of medical staff was 247, but only 108 seats were filled while
139 were vacant. Similarly at the Allied hospital, Faisalabad, it was found that there were
approximately 590 charge nurses (BS-16) and 300 students. But 134 seats of charge nurses were
vacant. The shortage of nurses‟ remain acute and definitely a factor in lack of effective and
adequate public service delivery.
Current Nurse Patient Ratio (according to Director General Nursing)
Sr.
#
Total No. Of
Patient Bed in
Punjab
Total No. of
Hospitals
Total No. of
Staff Nurses
General
Nurse Patient
Ration
Requirement of
charge nurses
according to PNC
1 30,875 Sp. Inst.= 21
DHQ = 36
THQ = 109
RHC = 301
(11065
Regular)
(1489 Adhoc)
1:11 19,990
Figure 10 Current Nurse Patient Ratio (According to DG Nursing)
3. Problem of Human resource
In Punjab, BHUs are faced with a significant shortage of doctors and other paramedic and
nursing staff. On an overall basis only 74 percent of all sanctioned positions were filled. The
28%
22%
44%
6%
Problems of Nursing Cadre BS-16
Delayed Promotions
No Post-graduation Allowance
Shortage of Nurses
No Administrative Powers of DG Nursing
33
table below shows that majority of the posts of cadre below BS 16, proportionately amounts to
50 percent (LHV, dispenser, vaccinators, midwives) of the sanctioned staff strength. The details
are as below;-: Total filled pons against the sanctioned strength
Figure 11 Total Filled Positions against the Sanctioned Strength
Source: MIS Cell, Health Department, and Government of the Punjab, 2015. EPI Cell, PHIS
4. Political interference (Governance and Management Issues)
The management and administration of health services in the district is the responsibility of EDO
(H). He has the authority to manage and implement all the health projects in the district in the
supervisor to District Officer Health (DOH), but political interference at the district level has
restricted the authority to be exercised by these health mangers. This results in delayed health
projects causing problems to the end users.
This was evidently highlighted during the visit to EDO (H) office in Kasur where the EDO had
an argument with a local politician over transfer of his nominated person. This incident
highlights two important things. One, the political involvement in administrative issues ties the
hands of administrators, and they are stuck in such matters neglecting the real work of the
departments. Second, the attitude of politically backed government servants was markedly
derogatory towards their seniors, which led to departmental inefficiency and indiscipline.
5. Effective HR Management
It was observed that the lack of effective HR management undermined the service delivery in
almost all the four districts. People at district level were not trained in administrative and HR
policies. The HR positions sanctioned by the health department were not filled as doctors and
other staff was unwilling to serve in rural areas despite the incentives offered by the government.
This causes overstaffing in urban areas and understaffing in rural areas. Moreover, chronic staff
absenteeism and critical shortage of female health professionals from health facilities was also
hampering the output of health sector.
34
Conclusion
The data assessment indicates that people tend to benefit more from medical facilities that are
located near their homes and it also reduces burden on the public hospitals. If was further
highlighted during the interviews that the level of satisfactory medical services were only limited
to major hospitals.
Five of the respondents were satisfied with the health facilities of the hospital. They were of the
view the public pressure makes the staff behavior rude and the citizens should be patient for their
treatment. The respondents found the services provided at the public hospital better as compared
to private hospital. However, the issues of primary health care can only be addressed with better
human resource management, adequate recruitment, employment benefits and career progression
for the junior cadres.
35
POLICE DEPARTMENT
Introduction
Police is the coercive arm of the state in combating crimes and maintaining law and order. In
Pakistan there is a huge communication gap between the police and the common citizens due to
persistent corruption, inadequate skills, poor infrastructure and training which add to inefficient
service delivery and lack of satisfactory performance by the police officials.10
Pakistan‟s police
force lacks training of personnel, there is a shortage of adequate staff, along with professional
shortcomings, mainly attributed to outdated equipment and deficiencies in effective intelligence
gathering.
According to Abbas (2012), police reforms and the reform mechanism was never prioritized.
Given the current dynamics of the security situation in Pakistan, rising crime rates and the
general law and order situation, investing in the police service reforms and infrastructure remains
the need of the hour. Surprisingly no one has ever questioned the authorities concerned regarding
the general trend of not investing in the capacity enhancement of the police as a premier law
enforcement agency.11
The main emphasis has been considerably on the capacity building
initiatives for the superior cadre of the Police Service of Pakistan (PSP) and there were limited
capacity enhancement programs geared towards the subordinate cadre.
A well functioning civil service is imperative for good governance. Reforms in the civil service
have to be well structured and transparent in order to ensure merit across the board and instill a
sense of accountability among the public servants. This will in turn enhance their capacity to
deliver in an efficient manner focusing on a „citizen friendly‟ approach.12
This study focused on the reforms of the lower cadre of the Punjab police regulated under the
Police Order 2002 and constituted under the Police Rules of 1934. The Central Police Office is
headquartered in Lahore which constitutes of a number of branches that include the Legal Affairs
Branch, Finance and Welfare, Establishment, Operations, Training and the Research &
Development Branch. The respective Additional Inspector General‟s of these units report to the
Inspector General of Police directly. The IG of Police is ex-officio Secretary to the Government
of Punjab. The main police formations are as follows;-
Central Police Office (CPO), Punjab
Police Regions
Counter Terrorism Department (CTD)
Elite Police
10
Tariq Khosa, “Police Politics and the People of Pakistan,” PILDAT (2015): 1-27 11
Hassan Abbas, “Stabilizing Pakistan through Police Reform,” Asia Society (2012), accessed June 2nd
, 2015. 12
Saeed Shafqat, “Pakistani Bureaucracy: Crisis of Governance and Prospects of Reform” The Pakistan
Development Review 38:4 (1999).
36
Traffic Police
Punjab Highway Patrol
Investigation Branch
Special Branch
Telecommunication Branch.
There are 667 police stations across Punjab and police to population ratio slightly better than the
national figure but still abysmal in comparison to several other countries.
Country/Province Police to Population ratio
Bangladesh 1:1138
India 1:728
Philippines 1:665
Japan 1:563
New Zealand 1:416
Singapore 1:416
Malaysia 1:249
Thailand 1:228
Hong Kong 1:220
Pakistan 1:625
Punjab 1:529
Sanctioned strength of Punjab (PO 2002) 1:450
Figure 12. Comparison of police to population ratio in some countries
The research focused on induction, job descriptions, trainings and promotions of the subordinate
cadre in the police department and the issues pertaining to effective service delivery in the
subordinate cadre (BPS 5-16) which includes constables (BPS-05), head constables (BPS- 7),
assistant sub- inspectors (BPS-9) and sub-inspectors (BPS-14) and inspectors (BPS-16). The
main focus was however on the office of „SHO‟ as the position remains lucrative in terms of
authority and various roles and responsibilities with immense nuisance value and undue
administrative power.
Grade and Position
The research focused on the following subordinate cadre of the police department;-
Grades Positions
BPS-5 Constable
BPS-7 Head Constable
BPS-9 Assistant-Sub Inspector
BPS-14 Sub-Inspector
37
Figure 13 Grades and Positions
Department Interviews
Figure 14 Field Visits
Figure above shows the details of the field visits conducted for the research. A majority of the
interviews (62%) were conducted in the field formations/police stations, which included
interviews with police constables, head constables, assistant sub-inspectors, sub-inspectors and
inspectors. It was followed by interviews with senior officers of the Police Service (Grade 17-22)
which accounted for 38 percent of the interviews and included officers of the rank of DSP to
IGP.
BPS-16 Inspector
62%
38%
Interview Statistics of Police
Subordinate Cadre (BPS-5 to BPS-16)
Senior Officials (BPS-17 to BPS-21)
38
Figure 15 Interview Statistics according to Grades (BPS)
Figure 15 above further details the interviews/field visits conducted according to the Grades or
Basic Pay Scales (BPS). A majority of the officers interviewed (26%) belonged to Grade 16,
including inspectors, followed by officers in Grade 9 (ASIs) who accounted for 19 percent of the
total interviews. Some 13 percent of the interviews were conducted with Grade 7 officers (Head
Constables). As many as 10 percent of the interviews (each) were conducted with officers of
Grade 21 (Additional IGs), Grade 20 (DIGs) and Grade 17, who comprised of officers of the
rank of DSPs. Some six percent of the total interviews were conducted with Grade 19 officials
(SSP) and the interview conducted with Grade 22 officer (IGP) accounted for three percent.
3% 10%
10%
6%
10%
26%
3%
19%
13%
Interview Statistics according to grades
Grade 22 officials
Grade 21 officials
Grade 20 officials
Grade 19 officials
Grade 17 officials
Grade 16 officials
Grade 14 officials
Grade 9 officials
Grade 7 officials
39
Figure 16 Hierarchy of Subordinate Cadre in Police Department (Source: Punjab Police)
The organogram above details the subordinate cadre in the police department (BPS 5-16), with
inspector being the highest ranking official in the lower cadre (BPS 16) and the constable as the
lowest grade (BPS 5).
1. Recruitment and Selection
The minimum educational recruitment criterion for the induction of constables in the police
department is Matriculation. The physical requirements are as follows:
Height: 5ft 7inches
33-34.5 Chest
Maximum Age (below 25 years)
A selection board is constituted and presided over by an officer of the rank of DIG and assisted
by two Superintendents of Police (SPs)13
to ensure transparency across the board and encourage
recruitment based on merit. At least one of the officers designated as a board member has to be
selected from another district.14
Constables are recruited at district level and the concerned DPO
heads the selection board. ASI and Sub Inspector are recruited through PPSC and the concerned
RPO looks after the recruitment. About 6000 constables were recruited in 2014, and they were
scrutinized through NTS. Recruitment through NTS or PPSC ensures a transparent process, but
13
Interview with Mr. Mr. Saleem Niazi (Station House Officer Police Station A Division Sheikhupura) & Mr.
Zubair Nazir (Assistant Superintendent of Police UT), dated June 20, 2015. 14
Interview with Mr. Nawaz Warraich, DIG Establishment CPO Lahore, dated June 10, 2015
Inspector Grade 16
Sub Inspector
Grade 14
Assistant Sub Inspector
Grade 9
Head Constable
Grade 7
Constable
Grade 5
40
still 100% transparency cannot be insured.15
NTS Test is now introduced for recruitment of
Constables- SI.16
The candidates have to pass written test with at least 60-70 percent marks. For
the physical fitness test, the candidates are required to complete a 3km run in an allocated time.
Only such candidates who pass with the highest percentile are selected.17
Recently a psychologist
was designated by the departmental board to conduct the psychological test during recruitment of
constables.18
According to the SHO Model Police Station A-Division Sheikhupura, the
recruitment process is always competitive and based on merit. The heirs of police martyrs are
granted extra marks in the recruitment process.
Previously, the Punjab Public Service Commission (PPSC) directly recruited assistant sub-
inspectors (ASIs) through a competitive exam. However, following an amendment in Article 7 of
the Police Order 2002, PPSC will now be able to recruit policemen for the rank of sub-inspectors
and more than 200 posts of sub-inspectors have been advertised for direct recruitment (Punjab
Police, 2015). The advertisement for the general public clearly spelled out the eligibility criteria
for selection.
A police officer of the rank of inspector heads the medical board for the police recruits. There are
proper checks and balances and accountability mechanisms in place to ensure that the medical
exam is conducted on the set criteria and the officer in charge is bound to follow the procedures
in place to ensure merit based selection across the board.19
2. Training and Capacity Building of the subordinate cadre
Police recruits are trained at specialized academies in Chung, Farooqabad, Sihala, Multan,
Manawan and Sargodha respectively.20
The police training school in Hangu is presently not
functional. It is a nine months long rigorous training program which includes the following
trainings;-
1. Physical training (PT)
2. Parade (March past)
3. Saluting test
4. Law classes and other academic courses.
Elite Force has a separate training facility at Bedian Road Lahore. The Elite Force personnel are
trained in commando training tactics. The Elite force commandos (BPS 5-16) get an additional
allowance of Rs 2000 - 3000 per month. After successful completion of training the newly
recruited police personnel are posted across the province. The constable - sub-inspector are also
15 Ibid. Mr. Mansoor Ahmed and Mr. Masood Khalid
16 Ibid. Mr. Mansoor Ahmed & Mr. Masood Khalid
17 Ibid Mr. Saleem Niazi & Mr. Zubair Nazir
18 Ibid Mr. Nawaz Warraich
19 Ibid Mr. Saleem Niazi & Mr. Zubair Nazir
20 Ibid. Mr. Mansoor Ahmed & Mr. Masood Khalid.
41
provided refresher courses such as „Field and Craft‟ course which specifically entails training in
using tactical weapons. The newly appointed ASIs are referred to as TASI (Temporary Assistant
Sub-Inspectors), with a probationary period of three years. On the successful completion of duty
and to the satisfaction of their superior officers the probationary period comes to an end and they
become part of the regular police force.21
For the capacity building and on-job training of subordinate ranks, Moharar has to pass the
„Moharar Course‟ conducted at the concerned Police Lines, Elite Police officials (BPS 5-16)
have to undertake Elite Police refresher courses and the regular police officials have to pass the
finger print course as well.22
The subordinate ranks (BPS 5-16) as well as the officers of Police
Service of Pakistan (PSP, BPS 17-22) have to strictly follow the SOPs and the orders of their
superior officers. The police force is a highly organized and disciplined force and any violation
to the protocols or laps in the performance of the duty to the satisfaction of the superior officers,
results in disciplinary action. The punishments in accordance with the Police E&D Rules of
197523
can range from minor to major, entailing pay cuts, demotion in rank to dismissal from
service with no chances of reinstatement.24
3. Promotions &Transfers
The constables have to pass „lower course‟ for promotion to the rank of head constable. The
ASIs have to pass an intermediate course for promotion to the rank of sub-inspector. There have
been instances when officials inducted as ASIs rouse through the ranks and promoted to DSP,
SP, SSP and in some cases even made it to the ranks of DIG. The rapid promotions are highly
dependent on the educational qualifications, good reports, outstanding performance in
departmental promotion exams and an exemplary service record. Negligence in performing
duties to the satisfaction of the superior officers can result in „bad entries‟ in their service record
which hampers chances for promotion and postings.25
Junior ranking constables and head constables, who are graduates, can also apply for promotion
through the P-Cadet scheme and can rise up the ranks easily (Constables–ASI and head
constables directly to sub-inspectors).26
The P-Cadet scheme was initiated in early 1990s. The
constables who have more than three years of service are required to take the A-list exam and/or
the B1-list exam for promotion to the next higher rank (head constable). The head constables
have to take the head constable course or lower class course for promotions to the next rank. The
candidates who secure the 1st position in the promotion exams are selected to enroll in a further
21
Ibid. Mr. Saleem Niazi and Mr. Zubair Nazir 22
Ibid. Mr. Mansoor Ahmed and Mr. Masood Khalid 23 Ibid. Mr. Mansoor Ahmed and Mr. Masood Khalid. 24
Ibid. Mr .Saleem Niazi and Mr. Zubair Nazir 25 Ibid. Mr. Mansoor Ahmed and Mr. Masood Khalid. 26 Ibid.Mr. Nawaz Warraich
42
six months course in the district. Their probationary period is also waived off. A policeman can
resign from service with the permission and consent of the concerned DPO.27
The District Police Officer is the competent authority to order postings of the policemen in his
district. The postings are mostly carried out in accordance with the service records of the police
force personnel and based on good or poor performance and efficiency. A policeman can be
posted to different districts across the province.28
The maximum tenure of a police official in the
subordinate cadre (BPS 5- BPS 16) in any police station is one year. The police department is a
highly disciplined organization and cases of insubordination, not complying with SOPs and
unsatisfactory performance can lead to disciplinary action being initiated against the official.
Rural and Urban Police Stations – a comparison
The research team visited the urban police station of Old Anarkali in Lahore. Due to the
proximity of the police station to the CPO (IG office), the building was well maintained despite
being constructed back in 1861. The SHO and Admin Officer apprised the research team that the
average strength of a police station in urban areas depends upon the area of jurisdiction and the
crime rate. The Old Anarkali Police Station had a sanctioned strength of 65 policemen and the
available strength varied from 40-45 policemen. The reasons for the shortfall can be attributed to
issues in policy making circles and lack of recruitment drives initiated by the government.
Usually there are 2 – 3 crimes reported at the Old Anarkali Police Station on a daily basis,
ranging from street crime incidents to accidents and property disputes.29
On a question directed towards the police 15 helpline service, the officers provided a
comprehensive insight regarding the system. There is a Criminal Record Office (CRO branch) of
the police department which has a proper command center through which all calls and inquiries
are routed to the relevant police station having jurisdiction to the area where the caller is calling
from and where the crime has been reported or assistance is requested. Unfortunately the police
operators receive fake calls as well.
The Old Anarkali Police Station has only two official vehicles. The more reliable and new
vehicle remains deputed on VVIP protocol duties and makes it difficult to perform constant
patrolling owing to the shortage of vehicles. Each vehicle was sanctioned 11-12 liters of petrol
on a daily basis. The police station was assigned female staff since the IGP issued circular for
female police wardens and officers to be posted at police stations and HQ and not in the field
following a harassment incident of female traffic wardens.
The average operational cost of running a police station is Rs. 200,000/- approximately.
Although budget is allocated for the maintenance and bearing the operational cost of a police
27 Ibid. Mr. Saleem Niazi and Mr. Zubair Nazir 28 Ibid. Mr. Zubair Nazir 29 Interview with Mr. M. Nauman, S.H.O Old Anarkali Police Station, dated June 18, 2015.
43
station, it is never disbursed. Hence the police stations operate on „self generated funds‟ and the
element of corruption is imbedded in the system due to this flaw in policy.30
During a visit to a rural police station in Hayer Village on the periphery of Bedian Road Lahore
the research team observed that the police station was not in a good condition. The building was
in shambles and not well maintained. The SHO and Admin Officer apprised the research team
that maintenance budget is pre-allocated for the police stations but is never disbursed to the
police stations. Most of the furniture present in the police station is arranged by the police station
officials themselves.31
During a visit to two police stations in Faisalabad the research team was apprised that there are a
total of 40 police stations in Faisalabad, whereas the total population is 5,429,547 persons as of
1998 (PBS). The rule of six people to one police constable according to the Police Act 1861
remains null and void considering the shortage of manpower and the burgeoning population. At
present the police to population ratio is 1:558. There are 25 villages in the jurisdiction of
Khurianwala police station which has the following strength:-
Sanctioned Strength Available Strength
2 Inspectors 1 Inspector
6 Sub Inspectors 4 Sub Inspectors
8 ASI 13 ASI
12 Head Constable 11 Head Constable
80 Constables 70 Constables
The nature of crime in the jurisdiction varies from murder, attempted murder to house robberies.
The premises of the police stations were also not in a good condition.32
The overall administrative and organizational activities carried out in all the police stations was
found to be more or less uniform apart from the issues of building maintenance and strength of
police force which varied across the police stations visited.
Model Police Stations (MPS) in Lahore, Kasur and Sheikhupura
30 Ibid. Mr. Mansoor Ahmed and Mr. Masood Khalid. 31
Interview with Mr. M. Fayyaz, ASI (Admin Officer), PS Hayer Bedian Road Lahore, dated August 19, 2015. 32 Interview with Mr. M. Abid (DSP Khuriyan Wala Faisalabad) and Mr. M. Younis (S.H.O Sargodah Road Faisalabad), dated September 9, 2015.
44
MPS D.H.A Phase V Lahore:
During visits to Model Police Stations (MPS) in Lahore Kasur and Sheikhupura, it was observed
that the MPSs have proper and well furnished buildings, each of the SHO of MPS has a
sanctioned PKR 50,000 - Rs 60,000 per month maintenance budget. The MPSs strictly follow
the Standard Operating Procedures. The strength of the police force at the MPSs was adequate
and proportionate to the local population and the crime rate. During a visit to MPS DHA Phase V
Lahore, the SHO apprised that three vehicles were sanctioned for the MPS and authorized 12
liter petrol daily for patrolling and police raids alone. The investigation wing of the MPS had
separate vehicles for performing their tasks.
In every model police station and a normal police station, an ASI is deputed as Admin Officer,
who facilitates the complainant before an FIR is registered by Moharir. The Admin Officers are
deputed to ensure that the registered FIRs are legitimate since according to the SHOs, fifty to
sixty percent of complaints are not based on facts or based on petty issues ranging from personal
enmity to land feuds of the complainants.
Police station assistants (PSA) have been recruited on contract for one-and-a-half year and
deputed in the MPS DHA Phase V for enhancing public service delivery and assisting the
visitors at the MPS. They are well qualified civilians recruited through NTS, and usually hold
graduate or post-graduate qualifications. A PSA is assigned to assist the complainant and listen
to the issues and prepare a report. Separate female PSAs are deputed to facilitate women
complainants. Prior to their postings in MPS, PSAs are enrolled in a three months training
program at PITB, Lahore, and trained by the senior officials of police. The PSAs receive a salary
of PKR 32000/- monthly and strict job timing of 9-5pm. Every MPS maintains a visitors book,
in which the complainants / visitor expresses their views about the conduct of the staff of the
police station.
Police System of Beat
Punjab Police introduced the „beat system‟ to improve the service delivery and also the image of
the police. The area of jurisdiction of one police station is divided into four beats, and in every
beat one sub-inspector, one ASI and 10 constables are deputed to carry out surveillance and
combat crime. Every beat is provided with one wireless set, two motorbikes and hand cuffs. The
beat system ensures the quick response of police in case of emergency. Along the lines of the
Citizens Police Liaison Committee (CPLC) Punjab police has introduced another robust
mechanism in which a „maslahati‟ (consultative) committee has been formed comprising of
honorable and respected citizens in the locality of the police station. The „maslehati committee‟
helps in resolving the petty issues reported to the police stations. Another committee of „Awami
Tahfuz‟ has also been formed, which comprises of influential and respectable citizens from
within the jurisdiction of the police station. The main purpose of the committee is to ensure
vigilance of the police and the committee members in curbing crime and maintenance of law and
45
order. For making a strong network of information, 50 people from the locality of the police
station are selected and named as beat coordinators.33
MPS A Division Sheikhupura
The MPS A-Division Sheikhupura was well maintained and the building was recently renovated
with a large parking area. The sanctioned strength for the A-Division Model Police Station
Sheikhupura stood at 61 policemen, whereas only 41 policemen were deployed at the time of the
visit. The MPS SHO informed that the performance of the police station with a wide jurisdiction
and far flung rural areas was being affected due to shortage of staff. This situation further affects
the performance of the police in combating crime and maintaining law and order.
The A-Division Model Police Station Sheikhupura has an allocation of Rs.60,000/- per month as
maintenance allowance, which was visible with the police station is well maintained, clean
toilets, white washed walls and proper furniture.34
During the visits to the three MPS in Lahore, Sheikhupura and Kasur, it was observed that the
buildings of all MPS were well maintained and there was not much difference in the sanctioned
strength and available strength of the policemen deployed at the respective MPS. The research
team found the MPS DHA Lahore to be the best MPS, since the building was constructed and
furnished by the Defense Housing Authority and the PSAs who deputed in MPS DHA Lahore
were not present in the MPS in Kasur and Sheikhupura.
Station House Officer (SHO)
The Station House Officer is usually an officer of the rank of an inspector or a sub-inspector
depending on the area of posting. The SHO belongs to the „upper subordinates‟ rank and is
classified in the Basic Pay Scale (BPS-16) which is a „Class II Gazetted Post‟35
. The SHO is in
charge of a Police Station. In Pakistan it is generally observed that the position of SHO is of
immense importance and although the SHO is an officer of the subordinate cadre (BPS-16), the
position entails vast control and authority. If a person deputed in-charge of the police station has
to conduct duty within the limits of the jurisdiction of the police station. The SHO is bound to
record the FIRs, detect, apprehend and bring offenders to justice.36
According to the Police Order 2002, there was a separation of investigation and watch/ward at
the police station level, however this was rescinded through certain amendments in the Police
Order and the investigation wing was henceforth placed under the general command and control
of the SHO at the police station level.37
This definitely gave added powers to the SHO which
33 Interview with Mr. M. Zahid, S.H.O MPS D.H.A Phase V Lahore, dated August 18, 2015. 34 Ibid. Mr. Saleem Nawaz. 35 http://www.finance.punjab.gov.pk/system/files/Civil_Service_Rules_Vol1_0.pdf 36 http://pg.punjab.gov.pk/?q=node/319 37 CPDI, “The Police Order 2002: An Introduction,” CPDI Pakistan (2014), accessed August 19, 2015
46
may lead to interference in the investigation functions. However at the same time it has been
observed that the investigations officers work with certain independence and the investigation
wing still remains responsible to its own hierarchy for investigations and is monitored by the
designated SP Investigations.
The registration of the First Information Report (FIR) is carried out in accordance with the
Section 154 of the Criminal Procedure (CrPC). The SHO has an important role in overseeing the
registration of a FIR once a cognizable offence is committed.
Admin Officers
The post of Admin Officer was recently created by the provincial government. An officer of the
rank of ASI is deputed at all the police stations as Admin Officer with the responsibility of
monitoring and filing/lodging FIRs. Moharar is supervised by the Admin Officer to ensure
transparency across the board and reduce the incidence of corruption,38
as he overlooks the
registration of the First Information Report (FIR) and maintains transparency in the process.
Lodging a legitimate FIR is the right of all the citizens. Usually 20 applications are received on a
daily basis for the registration of a FIR (average in a typical urban neighborhood with moderate
crime rate).39
FIR records are maintained and cannot be destroyed and there is a constant monitoring of FIRs
by superior officers. However, according to one Admin Officer, most of the cases registered in
the FIRs were not based on facts. Lodging a FIR is a very sensitive matter as it becomes a
permanent record and subsequently legal proceedings have to be initiated. People usually use this
instrument to settle personal scores such as land feuds and personal enmities. Once the FIR is
registered it is binding upon the police to take legal action according to the nature of the crime.
That is why the police officials deputed at the police stations are hesitant to lodge FIR and do so
only after ascertaining the facts. The Admin Officer is in charge of registering a FIR. The
process of registering a FIR is very comprehensive. The aggrieved party submits
grievances/complaints to the Admin Officer, who then contacts the accused party, conducts
interrogations, establishes the facts and investigates further. Through this process if he finds that
the case is legitimate, he marks it and the Moharar is advised to register the FIR.40
Since the incidences of registering FIRs on false information are increasing, therefore the police
officials are directed by the department to ensure that proper investigation and interrogation of
the case is carried out and both the parties are questioned accordingly in the proceedings before
an FIR is launched. The SHO is the final authority on ascertaining whether the FIR is legitimate
or not and gives the final approval to lodge a FIR. According to Mr. Zubair (ASP UT), if
38 Interview with Mr. Mansoor Ahmed (Admin Officer, ASI) and Mr. Masood Khalid (Head Constable CPO) dated
June 16, 2015. 39 Ibid. Mr. Saleem Niazi 40 Ibid. Mr. Mansoor Ahmed
47
someone lodges a false FIR and the authorities find out that the concerned party lodged that FIR
on dubious grounds, the fine for the perpetrator is a mere Rs 2000/- according to the Pakistan
Penal Code (PPC).41
Citizens Perception
Assessment of data collected from Citizens
As many as 10 citizens were randomly selected and interviewed from the district of Lahore and
their respective responses were recorded. These were citizens who either visited the police
station. The pie chart below shows the perception of citizens about police. 30 % of the people
said that police was harsh and rude, 26 % were of the view that it was corrupt, 22 % said it was
inefficient, 13 % percent said it was non-cooperative and about 9 % said that police was
incompetent.
Figure 17 Perception of Citizens about Police
KEY FINDINGS
1. Shortage of Police force
The police department faces serious issues of shortage of sufficient man power. The police force
to population ratio remains very low. A large number of policemen are deployed on special
duties to guard important buildings, shrines, mosques and detailed on VIP protocol duties which
further increase the workload. As a practice the policemen deployed to secure
important/sensitive installations or are detailed for VIP protection duty and surveillance, are
41 Ibid. Mr. Mr. Saleem Niazi and Mr. Zubair Nazir
corrupt 26%
Rude and harsh 30%
Illetrate and incompitent
9%
non cooperative
13%
Inefficient 22%
Figure 17: Perception of Citizens about Police
48
dropped at the site, but have to arrange for their own transportation back to the police
station/police lines. They are also not provided any food while on duty which sometimes extends
to 6-10 hours. This severely hampers the service delivery.
Although a new police unit, Specialized Protection Unit (SPU) is currently being raised to
provide protection to the VIPs and sensitive installations, which will reroute the deployment of
the police force currently on VIP duty to their respective field formations still it will be a burden
on the meager resources of the police department.
2. Prolonged Duty Hours and Leaves
The police force is required to perform duties day in and day out. The minimum duty time is 12
hours.42
In practice the police force is practically on duty 24/7, with minimum time for rest and
recreation.43
The police officers in the subordinate cadres (BPS 5-16) have to perform double
shifts in order to get their sanctioned leaves. There is no relief mechanism in place for the
welfare of the policemen. A police official is sanctioned 30 casual leaves in a year, which are
seldom granted to them.
Police is accused of harsh attitude and behavior towards public, the harsh behavior is perhaps the
result of extra workload. A rest period of 23 hours a week was sanctioned by a former IG, Jawed
Iqbal, but that has been converted to duty hours. If any subordinate officer complains about the
issue, he is either ignored and in extreme cases, disciplinary action is initiated against him. There
are only two shifts in the duty, and one person has to perform the duty for continuous 12 hours.
Police officials are on duty even on religious and social festivals and complain that they are not
able to spend time with their families. The department grants no special allowance for those
police officers who perform duties on such festivals, and demand that there should be some
monetary compensation for the extra duties.
3. Issues in effective service delivery
During interviews with the subordinate cadre (BPS 5-16), it was observed that the police force
was wrecked with multiple issues which hamper their service delivery and efficiency.
Training
During an interview with an ASI, the team learnt that he was trained at Sihala where the living
conditions were deplorable. There was no proper water management or residence, with no time
allocated for rest. The overall schedule followed at the training centre was very hectic and
sometimes the health of the trainees was affected owing to tough living conditions.44
The police training program was not up to the mark and not in accordance with the international
standards. The trainees use obsolete ammunition and the modules and subjects taught are not
contemporary.45
However it was observed that the training imparted at the Elite Training School
42
Ibid. Mr. M. Abid. 43
Ibid. Mr. Saleem Niazi 44 Ibid. Mr. M. Fayyaz 45 Ibid. Mr. Abid
49
was comprehensive and up to the mark. It was at par with the international police training
standards.46
Promotions and Postings
Although there is a promotion policy of the government regarding the promotion of Punjab
police officials, it is not taken into account in actual promotions of the subordinate cadre and
there is no specified time beyond which an official has to be promoted.47
There exists disconnect
between the rapid promotion of the PSP cadre and that of the subordinate staff (BPS 5-16). The
officers of PSP are promoted according to a rapid promotion criteria based on the number of
years of service, whereas the lower cadre officers have to wait for several years to get promoted
to the next rank. For instance it took 35 years for a constable to get promoted to the rank of
inspector.48
The postings of police officials are also sometimes carried out due to political
pressures or vested interests of the politicians or influential stakeholders.
Operational/Maintenance and Stationery Budget
Regarding the maintenance of regular police stations the money allocated for the maintenance
budget does not reach the police stations. The officer in charge of the police station has to
procure and arrange the furniture and carry out the maintenance of the police stations on his own
which promotes corrupt practices. Similarly, the stationery allowance is non-existent for regular
police stations. Once a FIR is registered, 15 copies of the FIR have to be made according to the
SOPs. However the police stations are not provided any allowance for the photocopying and
hence the photocopies are made through the personal funds of the Moharar, again giving impetus
to corruption. Only 11 - 14 liters of fuel per vehicle are allocated per day for a regular police
station which makes patrolling a challenge. The barracks of the subordinate cadre were not
properly maintained. The living conditions in these barracks were extremely inadequate.49
Salary, Facilities and Low Motivation
The regular police force remains underpaid. The salaries of the subordinate cadre range from
(and depending on the number of years of service):-
1. Constable (Rs. 18000 per month, for fresh recruits)
2. Head Constable (RS ?? depending on the years of service)
3. ASI (Rs 24000 per month starting salary)
4. SI (Rs 26000 and above depending on seniority and years of service)
5. Inspector (Rs 26000- 45000)
The salaries of the police officials are not promising and according to most of the officials
interviewed (BPS-5-16) the workload and the salary incentives are not proportionate. In 2008,
although the salaries were doubled but at the same time miscellaneous allowances were
46 Ibid. Mr. M. Fayyaz. 47 Ibid. Mr. Abid. 48 Ibid. Mr. Saleem Niazi. 49 Mr. Mansoor Ahmed.
50
abolished, e.g. 40 percent special branch allowance, 40 percent Elite Force allowance, 20 percent
wireless operation allowance and 20 percent driving allowance were abolished.50
The officers of the subordinate cadre in the police department are not given educational or
medical allowance for their families. Facilities to a police official are far less than that of an
army soldiers and JCOs. There is no medical or educational facility provided to the family of a
police official and no proper residential facilities. The police force usually suffers from low
motivation mainly attributed to harsh working conditions, low pay and perks, uncertainty about
the promotions and job security and less time to attend to social commitments (few leaves and
hectic duty hours). The future of traffic wardens (ASI level) is also bleak. They have no service
structure and the increase in salaries is not in line with the years of service and seniority, which
has resulted in a state of uncertainty. At the same time accountability of the police often invites
disproportionate actions even for minor mistake.
50 Interview with Mr. M. Irfan Gill, S,H.O Sakhem Police Station Kasur, dated September 7, 2015.
51
EDUCATION DEPARTMENT
Over the period of years, there has been an immense focus on increasing the number of schools
and enrolled students in Pakistan. But these efforts have not shown any substantive results. Even
Punjab, the most literate province, shows a dismal figure of merely 54.2% of literacy rate. 51
However, there have been some political initiatives by the government in order to uphold the
popularity graphs of the political leaders.
Primarily it is the low enrolment rates at the primary level, wide disparities between regions and
gender, lack of trained teachers, deficiency of proper teaching materials and poor physical
infrastructure of schools that is majorly responsible for the poor performance and ineffective
service delivery of this sector. The table below shows the total number of primary, middle and
high schools in Punjab. The number of schools is further sub-divided into male and female
schools.52
School Level No. Of Schools in Punjab
Male Female Total
High 3355 2770 6125
Middle 3556 4774 8330
Primary 17586 19036 36622
Total 24497 26580 51077
Source: School Education Department, Government of Punjab
The total number of public schools namely in Lahore, Sheikupura, Kasur and Faisalabad is as
follows
Source: School Education Department, Government of Punjab
51 Punjab Development Statistics 2014, Bureau of Statistics, Punjab, p. 149. 52
*The table excludes high secondary and mosque schools from the total number of schools in Punjab. This is
mainly due to the fact that the study is lower cadre focused and these schools do not represent Grade 9-16.
Total Number of Schools
District No. Of Schools
Lahore 1239
Sheikhupura 1427
Kasur 1502
Faisalabad 2326
52
The educationists are of the view that in order to enhance the quality of education, there must be
standardization and uniformity of education. The key pillars of education system are teachers.
The public schools teachers in the lower cadre fall primarily between BPS 9 till BPS 16. Our
data assessment shows that the bulk of the strength of teachers exists in the primary and
secondary education, Grade 9 and 14 and 16 respectively. Teachers are the backbone of any
education system and are central for the enhancement in children‟s critical thinking and
cognitive skill building. The government remains unable to train teachers according to the needs
of the system. Currently in Punjab, teacher training is imparted through Directorate of Staff
Development (DSD). This institution has a chain of 30 Government Colleges for Elementary
Teacher53
, offering B.Ed. and M.Ed courses. Moreover Directorate for Staff Development (DSD)
also organizes various short training workshops and refresher courses of 1 to 4 months but a
large number of teachers are still unable to adapt to modern modes of educations. Most of them
lack basic computer skills. Earnest efforts are required to equip teachers with modern teaching
skills, as unless the educators are educated, the country will remain uneducated.
DSD is the premier training institution for the training of the lower cadre 9- 16 Grade teachers.
While the DSD trainings may enhance the existing skills and inspire confidence in the teachers
yet it remains unable to improve prospects of promotion/career in teaching. This is due to lack of
coherence in the promotion structure. The haphazard and mixture of promotion policies has led
to stagnation in promotion and frustration amongst the teachers.
In addition to providing training to teacher, there is also a need to provide incentives. Career
prospects are limited for teaching cadre. Mostly, they are recruited on contractual basis and the
contracts are merely extended on expiry. The lack of service structure dissuades competent
people from joining the education sector.
For the purpose of the study the research questions were based around induction, job
descriptions, trainings and promotions of the subordinate staff in the education department and
the issues pertaining to effective service delivery in the subordinate cadre (BPS 5-16).
The figure below shows the details of the field visits conducted for the research. A majority of
the interviews were conducted in Lahore and Sheikhupura with the DEO‟s, EDO‟s, AEO‟s and
school teachers (25%), followed by interviews in S&GAD Department Lahore, which included
section officers (BSP 15 and 16) and superintendents (BSP 16). The remaining interviews were
conducted at Punjab Education Sector Reform Project (PESRP) and teacher training institutes
such as MPDD and DSD (11% each).
53 http://www.dsd.edu.pk/pages/contents/8. Accessed on 20-05-2015
53
Figure18; departmental interviews
Challenges in Recruitment
The recruitment of primary, secondary and elementary school teachers falls under the domain of
the District Recruitment Committee (DRC). Under the Teacher Recruitment Policy 201454
District Governments are primarily responsible for the whole recruitment process. The DRCs
and Complaint Redressal Cells (CRCs) at divisional level have also been constituted in order to
assure the transparency of the recruitment process.
Entry test has been introduced for the first time in Punjab. Candidates securing 50 percent marks
in the entry test qualify and be called for interview by the District Recruitment Committee. The
entry test is recognized and organized by NTS. Pre-interview lists are prominently displayed in
the offices of the District Monitoring Officer (DMO) and Executive District Officer (EDO)
Education. The post-interview merit lists are displayed at the offices of DMO and EDO
Education.
Political interference in hiring and performance of the teachers remains a key factor for the poor
state of affairs. One of the Assistant District Education Officers (DEO) bluntly stated, “the hand
of politicians has to be off the teachers recruitment at any level, if we want to improve the quality
of elementary education”. Another District Education Officer (Kasur) remarked, “Positive
change in education standards can come about only if supervision is strict, teachers know their
subject and are regular in teaching it”. Similar sentiments were echoed in citizens‟ perception
survey as one of the interviewees stated “ teachers‟ are willing to work but many quit their job
too soon”.
The test for recruitment of lower cadre is entirely subject oriented rather than taking into account
the personality and/or teaching traits of the teachers. The emphasis on interview is minimal.
The table below shows the total strength of teaching staff from cadre 9 to 16 in Punjab. It can be
analyzed that the bulk of the teachers fall under BPS 9, 14 and 16. Many teachers who are newly
54 http://schoolportal.punjab.gov.pk/pdf/Recruitment%20Policy-2014.pdf
21%
11%
11%
25%
11%
18%
3%
Proportion of Departmental Interviews S&GAD
DSD
PESRP
Sheikhupura School Visit
MPDD
APCA
LUMS
54
recruited into BPS 9 remain stagnated in same grade for decades due to lack of proper promotion
structure, political favoritism and lack of streamlined policies for each province.
Strength of Teaching Staff in Punjab
Pay Scale Strength
PST (BPS-09) 105,022
BPS-10 1,588
BPS-11 287
BPS-12 47,842
EST (BPS-14) 84,648
BPS-15 23,678
SST (BPS-16) 38,203
The bar chart below represents the grade wise teaching staff in Lahore existing between cadres 7
to 20. The cadre strength in BSP 9 represents the highest number of PST‟s recruited in 2014-
2015. The second highest is BSP 14 which primarily represents the senior school elementary
teacher. The higher the numbers of post against a certain BSP scale represent the higher demand
for primary and secondary school teacher.
Figure 19; district wise teaching staff. Source: PMIU/PESRP GASC 2014-2015
The table below shows the grade wise teaching staff in Sheikhupura existing between cadres of 7
to 20. The cadre strength in BSP 9 represents the highest number of PST‟s recruited in 2014-
2015. The second highest is BSP 14, primarily representing senior school elementary educators.
2 28
4877
140 23 1693
3693
1170
2585
927 420 143 9
0 7 9 10 11 12 14 15 16 17 18 19 20
No
. o
f P
ost
s
Pay Scale
District and Grade wise Teaching Staff in Lahore
55
Figure 20; district and grade wise teaching staff in Sheikhupura. Source: PMIU/PESRP GASC 2014-2015
The scale of a public school primacy teacher starts from BPS 9. The promotion is subject to
increase in qualifications. However within the system the service structure does not provide any
opportunities of promotion for the years of service. Some PST‟s are stagnated in the same grade
for the last two decades. Those teachers who fall in BPS 14 are either directly recruited or have
been upgraded after decades of service. The complacency from both the teachers and the
Government is a stark reminder of haphazard polices and promotions made on whim rather than
performance, qualifications or even seniority.
Challenges in Training
The directorate for staff development (DSD) provides training to the lower cadre of BS 6 to 16.
The teams visited the DSD for learning about the courses for PSTS‟s and SST‟s. The teachers
are provided two kinds of training a) induction training b) promotion linked trainings that are
also called refresher courses.
The MPDD offers trainings to Grade 16 and below but compulsory promotion linked trainings
were only reserved for Grade 17 and above. The criteria for selection of cadres for training
remains undemocratic and teachers are handpicked at will (sometimes with political
involvement) for training. Furthermore the current training had a poor system of assessment and
evaluation whereby pass / fail criteria is set55
.
Challenges in Promotion
It is interesting to note that for successful promotion linked training, merely the completion of
training is required and not what score was attained during the training itself. The training even
when linked with promotion is not performance based. There is no active participation and
therefore those attending the training for promotion have no stake in it and do not own it. This is
deemed to be ineffective and hence does not cater to what is actually required in the field from
the teachers. This poses a challenge for both the trainer and the trainee. Furthermore there is no
55 Interview with FarooqAlvi, Director Academics, MPDD dated 23 June 2015
0 13
2464
52 15 1118
1979
557 805 285 153 45 4
0 7 9 10 11 12 14 15 16 17 18 19 20
No
. o
f P
ost
s
Pay Scale
District and Grade wise Teaching Staff in Sheikhupura
56
proper structure on the timescale of promotion. Many of the trainings provided are also not
geared towards providing career progression opportunities. The system needs to link
performance and increased qualification with career progression. There have even been those
cases where a teacher with a masters or M.Phil degree and yet was working at a lower grade and
position. The positions need to commensurate with the qualifications.
Key Findings Inadequate Training
1. The trainees are not assessed on their performance per se in trainings. The system of
performance appraisal and evaluation along with follow up on trainings needs to be
integrated as a part of trainings of teachers. The quality of trainings includes subject
trainings as well as motivation, leadership skills and communication training as part of
the curriculum. The trainings at DSD aim to bring about an attitudinal change from
within the teachers so as to make them more responsive and accountable.
During various visits to DSD and MPDD it was observed that the prototype of teacher
that enters the market was not well trained, as the syllabus offered in universities is not
aligned with the demands of school education. Many of the governmental resources are
wasted on teacher training rather than enhancement of their soft skills and will to work.56
Disconnect between pre-service and in-service training
2. Bachelors in Education degree is required to become a teacher as a pre-service condition.
Once recruited DSD carries out the in-service training. Various officials at DSD were of
the view that those teachers who already had a Masters in Education need not go through
the process of in-service training, as a M.Ed. should suffice and given credit.
The trainings offered by the DSD lack in enhancing the level of motivation among
teachers. Moreover, the timings of trainings are not well coordinated mainly due to
administrative issues. The administration wants the selected teachers to join service with
the start of educational year, which leaves little time for post induction training. Here it is
important to note whether the trainers imparting skills/training to teachers at DSD or
MPDD are skilled and motivated themselves or not. The visits to the DSD and MPDD
showed that the background of trainers themselves plays a huge role in imparting skills to
teachers so on and forth. The trainers of the teachers of school education department must
be role models for the trainees.
56 Interview with AzmatSiddique, Course Coordinator (CC) CPD Implementation, Directorate for Staff Development (DSD)
dated 22 June 2015
57
Furthermore the structure of trainings is such that they are designed uniformly for the
whole province without considering the needs of specific areas of a district which is
crucial for bridging the gap between implementing policies, improving governance and
bringing reforms in education. This standardization hampers the provision of quality
trainings. Another, major issue was the facilities available at the training centers.
Lack of motivation
3. From the questionnaire administered in training institutes it was observed that problem
primarily does not solely lie in the training of teachers but their lack of will57
. The
teachers do not consider the trainings as a way of self-progression or as an enhancement
in their careers. The approach toward trainings is further tainted when many of those
attending trainings are political appointees and are there to only to fill up the space.
Lack of motivation was identified as the biggest impediment in public sector education.
Despite the fact that public schools teachers are well paid, well trained and have job
security (especially when compared to the private schools teachers,) they still lack the
will to work. Those joining BPS 9 with MA/MPhil degree do it as a matter of expediency
and stopgap arrangement. One MPhil said, “Although I have an MPhil in science I
decided to become a teacher and joined the education department at the grade of BPS 9
because no other opportunity was available.
There is direct correlation between lack of motivation and lack of career prospects. It was
observed that increase in pay raise was not sufficient to motivate, since it also stems from
external factors such as working environment and surrounding infrastructural facilities.
Many teachers interviewed were dissatisfied with the classroom facilities and libraries
which demotivated and hindered them in effective service delivery. One of the
interviewee said; “Public school teachers do not feel obligated to come to school”.
Budget Constraints
4. Budgeting is a major factor in improving the service delivery in the school education and
consequently in the harnessing the conduct and performance of teachers (lower cadre).
The non-salary budget of schools remains limited to such an extent that it becomes
difficult to manage schools.
Below are the details of a sample school in Sheikhupura district of Punjab that shows
lack of basic facilities such as electricity and the consequent payment of utility bills. The
chart shows that not a penny had been allocated for free textbooks and charges for Rs 2
million. Travel allowance, which forms 15 percent of the entire sample budget, was
poorly provided to the education officer and teachers, which hampered the provision of
education. Consequently, teachers end up performing extra-duties other than their
assigned tasks e.g. polio vaccination campaigns, etc. to make up for the cost.
57 Interview with AsifaMauji, District Monitoring officer (DMO), Sheikhupura District dated 20 June 2015
58
Figure 21; Non-salary budget of sample school; Source District Education Officer Sheikhupura office 2015
Lack of career prospects
5. Lack of career prospects amongst the teaching cadre was one of the stark findings that
portrayed a sense of demotivation amongst them.
On interviewing teachers in two districts, it was observed that much of the lack of
motivation stemmed from lack of career progression. Why would a teacher train a student
in the absence of a tangible or an intangible gain? What incentive was there for a teacher
to enhance his qualification to move up a grade? Where the progression within the grade
such as teachers remains dismal, the persons‟ will to work diminishes. Despite the budget
constraints it was observed that teachers lack basic infrastructural facilities, good staff
rooms and access to libraries. It was observed that many who opted for teaching such as
PST‟s and SST‟s stay in one grade for many years. This was primarily due to dismal
career prospects and no future motivation from within the system. Their sense of
ownership was curtailed and limited to merely teaching. Many who taught the curriculum
did not own it, as they had not been considered to be part of the process of developing it.
The sense of complacency and unwillingness to change was deep rooted within the
system and the teaching cadres.
It was observed that the tests conducted for the recruitment of primary schools teachers
were designed solely according to the university syllabus. While the objectivity in
5000
50000 20000
125000
100000
0
250000
20000 5000
20000
50000
10000 20000
Non-Salary Budget of a Sample School
Postage and Telegraph
Telephone and Trunk Call
Gas
Electricity
Travelling Allowance
Transportation of Goods
P.O.L. Charges
Stationery
Newspapers Periodicals and Books
Others
Transport
R & M Of Machinery and Equipment
Furniture and Fixtures
59
questions may test a subject specific skill, such method of testing loses out on judging the
soft skills and teaching aptitude of the teacher. Furthermore the DRC awards five marks
(05) out of a total of 100 to interview. The interview, which ought to be huge part of
recruitment process, was given less weight in order to reduce political intervention. In
improving service delivery the teachers‟ interview process was one of the key domains in
recruiting the right type of teacher. Interview process acts as a filter to maintain quality
yet recruitment process was marred due to lack of it. It is an important process of judging
the personality of the candidate, so mere five marks for interview makes it difficult for
the candidates to make a difference with their soft skills. Moreover, in practice, most of
the DRCs award equal marks to all candidates in interviews so that merit can be solely
based on the marks obtained in written examination.58
This extra-ordinary importance
given solely to written test is not just spreading the culture of memorizing but also
affecting the quality of people being inducted as teachers.
Extra Duties
6. The teachers are overburdened with extra tasks and duties that conflict with their capacity
to deliver at schools. This point was more poignant when during the focus group
discussion all 20 participants were in consensus that teacher were made to perform 12
extra duties, which include polio vaccination, dengue awareness campaigns, carrying out
election survey, private school surveys, population surveys etc.
Infrastructure and Environment
7. Lack of proper infrastructure requirements such proper access to staff room for teachers
and libraries were some of the findings that revealed the issues teachers faced.
Dilapidated buildings and outdated tables, chairs and classroom walls caused a great
concern and affected the condition and motivation level of the teachers.
Cultural conundrum
8. The nobility of imparting knowledge is regarded highly world over. Literally a child‟s
future is in the hands of teachers. Yet it is faced with steady erosion of respect for
teachers. This can be seen from the salaries they are paid in elite public schools, access to
facilities, working conditions etc. The findings in our study led us to explore that what
motivates teachers was not just mere increase in salary but by something more
substantive. Many teachers interviewed indicated the lack of respect that students had
nowadays for teachers. This can be seen as a limiting factor and linked culturally as to
how we view teachers and position of the profession in our society. Generating and
58 Interview with Assistant Program Director M. Asif, PESRP dated June 16 2015
60
giving respect to teachers will allow them to have control over their work and resultantly
enhance performance of students as well.
For the study purpose both close and open-ended questions were included in the
questionnaire. Some of the essential factors that hindered the effective public service delivery
of a teacher are illustrated as follow in the figure below.
Figure 22: Factors Hampering Service Delivery
The respondents were asked to give opinion regarding the factors that hampered the effective
service delivery of the teacher. Motivation (16%) and delayed promotion (18%) were the factors
most emphasized by the respondents. Responding to this question one District Monitoring
Officer from Sheikupura stated; “Teacher lack self-motivation despite the provision of adequate
salary to them”.
There exists no proper structure of promotion for teachers. On promotion a primary school
teachers of BSP 9 who had been serving in the same scale for 18 years stated; “There is no time
scale or structure through which our promotion can take place. Up gradation primarily only
happens on the demand of the union”. Another respondent on promotion stated; “It took me 24
years to be promoted from BPS 16 to BPS 18. The time scale of promotion is tough and tedious”
Many teachers and DEO‟s also complained of lack of non-salary budget (13%) as a factor that
hampered their day-to-day functioning. The overhead costs are such that overpower the job at
hand and as a result some teachers end up working privately after school hours. Majority of the
respondents also showed concerns regarding the dilapidated condition of the schools and
buildings.
5%
18%
13%
16% 13%
13%
5%
13%
1% 1% 2%
Factors Hampering Service Delivery
Lack of Training
Delayed Promotions
Work Overload
Motivation
Lack of Non-Salary Budget
Lack of Working Facilities
61
Around 13% percent of the respondent teachers stated that due to increased workload and extra
duties assigned they were not able to focus on the job at hand. These duties included organizing
political functions, rallies, community dinners, vaccination campaigns etc.
The initial findings from the data assessment indicate lack of motivation, delay in promotion,
career progression, poor working conditions and budgetary constraints restrict and choke the
effectiveness of service delivery. All these indicators pointed towards lack of prevalent effective
measures to ensure efficient service delivery.
CONCLUSION
Schooling quality, location and teachers presence affect parents‟ decision to send their children
to school. The issues on the supply side include appropriate and high-quality curricula, the
presence, quality, effectiveness of teachers, and efficient school management. While reform in
civil service in the education department cannot be isolated, yet the emphasis needs to be on the
quality of teachers recruited rather than the quantity to maintain and sustain an efficient and
effective public service working force. Motivation and career progression need to be inculcated
within the structure as effective service delivery measures.
62
REVENUE DEPARTMENT In this day and age, with the advancement in technology, documents are being computerized but
still if we look at government departments, offices are engulfed by piles of paper and the day to
day work is being „governed‟ by paper.59
Land is one of the most precious possessions and
categorized as an important asset for any individual and country alike. The economic
development of a country is dependent on effective land management and its usage through
effective tax collection. The process of manual land administration has been wrecked with
corrupt practices, inefficiency and the processes are time consuming and prone to neglect and
exploitation, thereby creating a negative public perception and discontent among the citizens.
Ownership patterns govern the access to land which is systematically separated into different
categories for economic and administrative purposes.60
According to Dale (1988)61
Land
Information System (LIS) is an instrument for legal, economic and administrative decision
making. It assists the officials in planning and developing a database which includes spatially
marked data pertaining to a well defined area of land and the procedures and techniques for
collecting, processing and updating the data. Land administration entails all the processes
relating to recording and gathering all the information about the land ownership and its value. It
includes settlement of property rights, land surveys, attributes of land along with their systematic
and detailed documentation. 62
Land regulation, management and the use of land, land revenue
collection through lease and sales along with taxation and conflict resolution related to the use
and ownership of land are also part of the intricate mechanism of land administration system.63
If we look at a case study from Nigeria, land record management administered through a manual
system is usually susceptible to cumbersome procedures resulting in various bottlenecks,
rampant forgeries, „document laundering,‟ and fraudulent dealings in land transactions and
transfer procedures. It is also coupled with cases of multiple land allocations, pending
applications, issues of encroachments and issues in effective revenue generation.64
In the case of
India, ensuring accountability, transparency and efficiency in an age-old embedded system of
land record and administration is a difficult task. To overcome several issues concerning the land
administration, computerization of land record was initiated as a robust reform mechanism,
following which the workload of the revenue functionaries reduced along with a marked
59 Ibid. Matthew S. Hull. 60Chiemelu and Onwumere, “Land Information System for Efficient Lands Administration and Revenue Generation: A Case Study of Trans-Amadi Industrial Layout, Port Harcourt, Nigeria,” Journal of Information Engineering and Applications (2013). 61 Dale P.F and McLaughlin J.D, “Land Administration,” (New York: Oxford University Press, 1988) 62 Ibid. Chiemelu and Onwumere. 63 Ibid. Dale P.F and McLaughlin J.D. 64 Anthony A Adeoye, “Abuja Geographic Information Systems (AGIS) as a tool for Good Governance in Nigeria (2006). https://www.fig.net/resources/proceedings/fig_proceedings/accra/papers/ts22/ts22_02_adeoye.pdf . Accessed on 25.07.2015. ;
63
decrease in land disputes and lowered cost of land transactions leading to an improvement in
service delivery. However the system is not infallible, there are some inherent issues pertaining
to updating land data, online mutation etc.
The interviews and discussions with officials associated with the revenue department focused on
induction, job descriptions, trainings and promotions of the subordinate staff and issues
pertaining to effective service delivery in the subordinate cadre (BPS 5-16) which includes
Patwaris (BPS-09), Qanoongoh / Gardawar (BPS- 11), Naib Tehsildar (BPS-14) and Tehsildar
(BPS-16). The main focus of the study remained, however, on the position of a „Patwari.‟
Although Patwari is the lowest ranking official in the revenue department (BPS-09) the position
itself is lucrative in terms of authority and various roles and responsibilities with immense
nuisance value.
Figure 23; Field visits revenue department
Figure above details the field visits conducted for the research. A majority of the interviews
(42%) were conducted in the field offices of the revenue department, which included interviews
of Tehsildars, Naib Tehsildars, Qanoongoh, Gardawar and Patwaris. It was followed by
interviews with senior officers of the Board of Revenue Punjab (23%). The remaining interviews
were conducted at LRMIS, PMU and ARCs (19%) followed by interviews with officials of
Punjab Resource Management Program (PRMP) and interviews of the common citizens (8%
each).
Interviews with Board of Revenue
During formal interviews with senior officers at the Board of Revenue Punjab (BOR), the
research team was given a detailed background of the revenue department. The land settlement
program was initiated during the time of British rule in India. Subsequently the Directorate of
Land Records was established and is working since 1884. Survey of India was the main baseline
conducted by the British for revenue collection, including different data for „Chak‟ and „Mauza‟
(different categories of land). Land, which was not occupied, was automatically taken over by
the government. The department demarcates boundaries of the unmeasured and unoccupied land.
8%
48% 26%
9% 9%
Field Visits
LRMIS
Field offices
BOR
Common citizens
PRMP
64
First barrage was constructed in 1870 under the directives of the British Cabinet.65
The Board of
Revenue is the successor of the office of „The Financial Commissioner” which was constituted
under the provisions of the West Pakistan Board of Revenue Act 1957. After the dissolution of
One Unit in 1970, the Board of Revenue Punjab was established. The BOR is the controlling
authority in all matters pertaining to land administration, collection of land taxes, revenue,
preparing land record and the custodian of the rights of the land holders.66
According to a senior
member BOR Punjab, the department has a large canvas and was designated to look after the
land record management across the province. The BOR is also the highest revenue court in the
province. Due to the devolution process, the functions of the revenue department went into the
background and there were instances of weak supervisory roles of the officers. Recently the
department was overhauled and revived from the inefficient red-tape and lack of
monitoring/accountability mechanisms.67
A more proactive approach is now in place, officers of
the department are effectively carrying out inquires and monitoring the cases under the Punjab
Employees Efficiency, Discipline and Accountability Act, 2006 (PEEDA, 2006).
Figure 24; Hierarchy of Subordinate Cadre (Source: Board of Revenue, Punjab)
The organogram above details the subordinate cadre in the revenue department (BPS 5-16), with
Tehsildar being the highest ranking in the lower cadre (BPS 16) and the Patwari as the lowest
grade (BPS 9) official.
Punjab Revenue Department adheres to the rules of business provided in the Land Record
Manual of 1967. The district (Zilla) is headed by district coordination officer and Tehsil by an
65 Interview with Mr. Maqbool Ahmed, Director Land Records Board of Revenue Punjab, dated June 10 2015. 66http://www.punjab-zameen.gov.pk/ Accessed on August 20, 2015 67 Interview with Mr. Nadeem Ashraf, Senior Member Board of Revenue Punjab, dated June 10 2015.
Tehsildar
BPS 16
Naeb Tehsildar
BPS 14
Gardawar
BPS 11
Patwari
BPS 9
65
assistant commissioner. One Tehsildar is designated for one Tehsil and is assisted by Naib
Tehsildar who further manages the Patwaris in the Patwar circles.68
Figure 25; Administrative Hierarchy (Source: Board of Revenue, Punjab)
Figure above shows the administrative hierarchy of the revenue department with province being
the highest administrative unit and the Mauza being the lowest administrative unit in managing
the land records.
Number of Districts 36
Number of Tehsils 143
Number of Qanoongoi circles 823
Number of Patwar Circles 8006
Number of Mauzaas 25914
Figure 26: Division of Land (Source: www.pbs.gov.pk)
Table above gives the details of the number of districts, number of Tehsils, Qanoongoi circles,
number of Patwar circles and number of Mauzas in Punjab. There are 36 districts, 143 Tehsils,
823 Qanoongoi circles, 8,006 Patwar circles and 25,914 Mauzaas in Punjab.
68 Interview with Mr. Anjum Zaka Butt, Tehsil Dar Ferozwala, Sheikhupura District, dated June 26, 2015.
Province
Division
District
Tehsil
Sub Tehsil
Kanoongoi
Mauza
66
Patwari
Patwari is the custodian of land records and the first interface of revenue department which deals
with the public.69
Patwari is the lowest ranking official of the revenue department carrying a bag
typically holding 15 registers related to various land records and works under the district
registrar. The director land record manages the land records and IG Registration looks after the
registration branch while all registrars and sub-registrars report to him. The Director Land
Records (DLR) supervises the printing of all papers relating to land record in vernacular form
and distributes them. All record pages of the Patwaris are also printed under the orders of the
DLR. The record sheet has specific columns to record data and update data pertaining to land
with the Land Record Manual being the basic document for the purpose.70
Senior Member BOR described Patwari as „the linchpin of the revenue department, designated
with an important role.‟ The general perception about the Patwaris being corrupt can be
attributed to the fact that they have monopoly over certain revenue matters which often results in
exploitation.71
It is imperative to establish the fact that although Patwari is the lowest ranking
official of the revenue department associated with one of the lowest grade BPS-09, the position
is in fact the most „sought after‟, with regard to recruitment. This can be attributed to the myriad
roles and responsibilities associated with the position of a Patwari and most importantly the
degree of power, commanding undue authority and the element of immense „nuisance value.‟
Hence making the apparently low paid, lower grade post the most coveted position among the
potential candidates.
Recruitment
The process of written tests and interviews are conducted for all recruitments at the department
and field formations. The job descriptions of all the vacancies are advertised to initiate the
process.72
Patwar School
According to the DLR and senior member BOR, the potential candidates who are matriculate,
enroll in a „Patwar School‟, a makeshift arrangement operating in rented facilities. In 1995 the
Patwar schools were established for the last time at divisional headquarters. On average there are
eight makeshift Patwar schools in a divisional headquarters jurisdiction.73
A Patwari has to
undergo one year training and pass an initial exam. The training course is administered and
conducted by the revenue department and not through PPSC or NTS74
. The instructors/teachers
69 Ibid. Mr. AnjumZaka Butt 70 Ibid Mr. Maqbool Ahmed 71 Ibid. Mr. Nadeem Ashraf 72 Ibid. Mr. Maqbool Ahmed 73 Ibid. Mr. Maqbool Ahmed 74 Ibid. Mr. AnjumZaka Butt
67
at the Patwar Schools are Tehsildars or Naib Tehsildars. Since 2003 no Patwar school has been
established.75
KEY FINDINGS The research highlighted the disconnect that exists between the training and skill development of
the Patwari and its practical implementation, importance and extensive role of the position. The
makeshift arrangements of the Patwar schools, with no formal training institute specifically
established to cater to the training needs is a stark reminder of the fact that no serious effort is
being made to formalize the training process for recruitment to the post of a Patwari.
1. Selection and Training
i. Once the candidates pass the course, waiting lists are prepared and the best candidates are
selected for duty as Patwari in BPS 9 and posted across different districts.76
ii. According to the law, the assistant commissioner is the appointing authority of a Patwari,
however, it has been observed that due to the deep-rooted nexus between the elite and the
Patwar system, recruitment does revolve around political patronage and vested interests
of the „stakeholders‟ involved.
iii. After three years of service, a probationary Patwari is regularized as a confirmed Patwari,
by the respective assistant commissioners following satisfactory performance assessment.
The Patwaris are able to appear in the Qanoongoi test after three years of service as
confirmed Patwaris for promotion to the rank of Qanoongoh . The Qanoongoh can appear
for promotion test to the position of a Naib Tehsildar, but it has been observed that they
are hardly ever promoted.77
iv. Once the officials of the lower cadre are inducted in the revenue department, they
undergo no formal training courses or refresher courses.
v. There are no on the job training offered to the subordinate staff in the revenue
department. Recently some ministerial staff was sent for training at MPDD. There have
been instances in which clerks or officials in the lower cadres managed trainings on their
own initiative.78
vi. On the other hand the Tehsildars (BPS-16) are recruited through Provincial Public
Service Commission (PPSC) and these officials are more competent since they are
recruited through merit based recruitment process. The revenue record reading is very
important for all officials of the revenue department.79
2. Functions of Patwari
75Interview with Mr. SardarJameel Ahmed, Tehsil Dar Shahdara Lahore dated July 9 2015 76 Ibid. Mr. Nadeem Ashraf 77Ibid Mr. SardarJameel Ahmed 78 Ibid. Mr. Maqbool Ahmed 79 Ibid. Mr. Nadeem Ashraf
68
On average a Patwari looks after one to six Mouza‟s (a piece of land constituting one or two
villages or towns). In Tehsil Ferozwala there are 112 „Mouzas‟ being managed by 35
Patwaris. A Patwari maintains different records like the record of rights, shajra parcha, field
book, roznamcha waqqyati, roznamcha qanoongoi, roznamcha partal, measurement
instruments, gardawri register etc. Along with this indirectly, the Patwari plays an important
role in Ramzan bazaar management, flood management, assisting in elections, processions,
revenue collection, collection of agriculture tax etc which at times overshadow their actual
duties and responsibilities.80
Land Record Documents Prepared and Managed by Patwaris
A Patwari has to update three kinds of roznamcha on daily basis, which include;-
1. Roznamcha Partaal.: This is a register maintained by the Patwari containing land record
data which is duly checked and inspected by the senior officers. The Naib Tehsildar,
Tehsildar and other officers check this register and enter their observations in the „Note
Partal Tasdiq,‟ hence ensuring all tiers of inspection.
2. Roznamcha Waqaiti.: This register contains a periodic record with corresponding serial
numbers and comprehensive reports on the outbreak of diseases in the area, incidents of
robbery, settlement of feuds etc.
3. Roznamcha Hadayat: (Ahwal-e-Hadayat). Register containing all the notifications and
orders issued.
4. Roznamcha Qarguzari: Register in which the Patwari writes about his daily routine and
the work accomplished.81
Extra Duties
Patwari is a pivotal position for not only maintaining land records and revenue collection but
also to perform equally critical social, political, financial and administrative tasks. According to
the account of various Patwaris, the extra duties are an impediment in ensuring smooth service
delivery of the revenue department. Patwari has to get the banners printed and prepare the
hoardings for political rallies, make logistic and administrative arrangements and „raise‟ money
for any visit by senior government officers, political leadership or other dignitary. This includes
managing the venue and food arrangements, transportation costs for the motorcades of the
officials and the like. These expenses sometimes amount to millions of rupees which cannot be
simply paid through the Patwari‟s personal resources hence they are pushed to „forced
corruption.‟ In addition, they are assigned special duties such as inspection of sugar / flour and
80 Ibid. Mr. AnjumZaka Butt 81Ibid Mr. SardarJameel Ahmed
69
such other commodities, which consume a lot of time and hampers the conduct of real duties
pertaining to land record management.
The element of corruption is further catalyzed when funds are not disbursed to the Patwar circles
for renting the „Patwar Khana‟ facilities and there is no budget apportioned for paying the utility
bills and maintenance/operational cost of the Patwar Khana82
.
3. Ban on Recruitment
The senior member BOR apprised the research team that the current political leadership under
the orders of the Punjab Chief Minister has directed the Board of Revenue to place a ban on the
recruitment of Patwaris owing to the public perception about the alleged rampant corruption
within the ranks of Patwaris. At present there are 3000 positions for Patwari lying vacant
following the rejection of the request for requisition by the Government of Punjab under the
directives of the chief minster.83
There is a proposed revision in the induction of Patwaris with
regards to upgrading the minimum educational requirement from matriculation to intermediate.84
One of the Tehsildar during FGD85
claimed that, “There is 100 % political interference in the
recruitment of Tehsildar ad Patwaris”. Another Patwari in a frustrating tone said, “The
government needs to find the right person for the right job”
4. Land Record Management Information System (LRMIS)
The Land Record Management Information System has been established to assist e-governance
and efficient service delivery for matters pertaining to the revenue department. The old land
record system was archaic and recording and maintaining all the data relating to land records and
management was a cumbersome process. Humanly, it was very difficult to arrange and manage
the manual records.
i. Register Haqdaran-e-Zameen
All data of the land owner, Qoum, land size, inheritance etc. and their mutation was maintained
separately and after four years it was updated by the Patwaris in the respective Patwar Circles.
Due to this cumbersome process, the concerned officials did not manage the process periodically
and mostly the data was not updated manually, the Patwaris just used to write brief notes against
each update, in some cases the writing was illegible. Parat Patwari is kept by the Patwari and
the Parat Sarkar is submitted to the respective Tehsildar.86
ii. Intervention by LRMIS
82 Interview with Mr. Jameel Ahmed, PatwariPakkiThatti Circle Lahore dated July 92015 83 Ibid. Mr. Nadeem Ashraf 84 Interview with Mr. Ahmad Ali, Secretary Revenue dated June 10 2015 85 FGD held on 7th October 2015 86Interview with Ms. Nadia Ahmed Cheema, Manager SD&PD PMU LRMIS, dated June 29 2015.
70
Jamabandi, including Farad and mutation procedures is now being computerized by LRMIS.87
In the new computerized system the following documents are being issued;-
1) Farad Malkiat
2) Mutation (Inteqal)88
LRMIS teams procured the „Parat Sarkar‟ from the respective districts, scanned all the
documents and then computerized the data. A robust system was put into practice whereby a
state of the art software was developed based on a „double data entry protocol‟ whereby the data
was rechecked in two different tiers and the inherent feature in the software flagged the possible
inaccurate data which is further verified and corrected. The software is meticulously designed to
correct the errors pertaining to division of land and pointing out errors in land measurement and
division which is then further straightened out by the LRMIS teams. The computerization was
initiated at the Mauza level and now the scope is being expanded to the Tehsil level. At LRMIS
centers, a Farad is issued at the fixed amount of Rs. 50 per transaction. The charges of obtaining
a mutation depend on the value of the land and the computer generated income tax amount which
is printed on the forms to ensure transparency and curb corrupt practices.89
With the establishment of computerized centers (LRMIS), Farad issuance process now takes 30
minutes. Transactional Farad is prepared with photo of the applicant along with a unique code
and time of issuance. The entire mutation process takes 50 minutes through the new
computerized system.90
To sensitize the citizens and make them more aware of the processes and fee structure of the
services provided by LRMIS, instructions are displayed at every LRMIS center. Currently there
are 143 LRMIS centers known as „Arazi Record Centers‟ in 143 Tehsils across Punjab. The land
record management information system is also streamlining the personal details of the land
owners and matching it with the information on CNIC. In most instances it was found that the
real name of the owner was not written on the land records, for instance if the land owner‟s real
name is Allah Ditta on the CNIC, he might have registered it as „Dittu‟ in the land records. The
LRMIS team is using the computerized system to sync the real names of the land owners as
registered in the CNIC with their land records. To facilitate the citizens, now Tehsildars have
been authorized to correct the names of the citizens on the land records matching their CNIC.
ADLR calls the buyer and seller to the LRMIS center where they go through a biometric
verification process (thumb impressions are recorded from both parties) their photographs are
taken and their record is subsequently updated.
87 Ibid. Mr. Ahmad Ali. 88 Ibid. Mr. Maqbool Ahmed. 89 Ibid. Ms. Nadia Ahmed Cheema. 90 Ibid. Mr. Nadeem Ashraf
71
Processs of Mutation at an ARC
•Verbal Request at any Counter
•Automated Verification biometric capturing
•Automatic Calculation of Fee
•Attestation at Centre
•Record Updated instantly
•Time taken only 50 minutes
Process of Mutation at Patwar Khana
•Request to one person i.e. Patwari
•Verification by Patwari from Record
•Manual Calculation of fee
•Attestation at Public Assembly
•Record updated after four years
•Time taken not defined
Figure 27; Difference in the process of Issuance of Fard and Mutation (Source: LRMIS,2015)
Figure above shows a comprehensive comparison of the process of obtaining a „Farad‟ and
„Mutation‟ from the Patwari and the LRMIS Arazi Record Centers (ARC) respectively. The
figure details the systematic procedure and the ease with which the citizens are facilitated by the
ARC in obtaining the „Farad‟ and „Mutation.‟ The new computerized system is more cost
effective, less time consuming and it minimizes the interface of Patwaris, hence improving the
service delivery of the revenue department.
iii. Inheritance and Women Empowerment
Inheritance process now takes approximately 15 days in which the LRMIS management sends
the documents for field verification in the respective areas and hence the interface of the Patwatri
is curtailed. LRMIS has undertaken certain steps for the empowerment of the women. In order to
ensure that the women get their due inheritance, the new system and procedure at LRMIS
verifies all inheritance data with NADRA to ascertain the status of the family members in line
with the inheritance. In the past the people used to bribe Patwaris to make fake records which
entailed that the womenfolk in the inheritance have „died‟ and the male family members used to
usurp their share of the inheritance as well. Now the new system requires the women to be
physically present to process the inheritance and they have to biometrically verify if they have
waived off their right to inheritance. „Chalans‟ issued at the LRMIS centers are computerized,
displaying the legal fee with all the taxes. LRMIS is working for maximum community outreach
Fard Issuance Processs at ARC
Verbal Request at any counter
Automated verification
biometric capturing
Automated Fee Calculation
Payment at cash counter
Printed Fard issued by SCO
Fard Issuance by Patwari
Request to Patwari
Verification by Patwari from
Record
Manual Fee Determination
Payment of fee to Patwari
Hand Written Fard issuance by Patwari
72
by using mass media techniques and it has received quite an overwhelming response from the
ordinary citizens gauged through the citizens‟ perception interviews.91
5. Patwari System versus LRMIS
Patwaris welcome the introduction of the new computerized system (LRMIS), but they find a lot
of inherent issues in the new system. According to them, land revenue recovery has directly been
affected by the computerization of the land records. As the public interface of Patwari is being
removed and replaced by assistant director land records (ADLR) appointed at the Arazi Record
Centers, it is becoming difficult for the Patwari to collect revenue as Patwari is not being seen as
important figure now.
A Patwari is usually appointed at a place where he belongs to and knows most of the people of
the specific locality, which makes it easy for him to manage the land records whereas the ADLR
is not aware of the ground realities. According to the Patwaris computerization has created more
complexities and there are more chances of corruption. The land scam of Rakh Sultanki in
Bahria Town and Rakh Jo Jo are a stark reminder of the corrupt practices within the ranks of the
LRMIS staff, whereby several officials of the LRMIS were apprehended by the police and put
behind the bars owing to their involvement in a mega corruption scandal. They also apprised the
research team that there are a number of other duties which cannot be performed through
computerization such as;-
1. Girdawri (collection of agri tax, there are two types of Girdawari, Rabi Girdawari done in
October and Khareef Girdawari done in March)
2. Nishaan Dahi (demarcation)
3. Taqseem Jaat ( distribution of land)92
According to Patwaris, the process of Inteqal (Mutation) takes more time and more money
demanded from the people through touts in ARCs. Before the introduction of the computerized
system, there was an element of respect among the people for the Patwaris. The public dealing of
the Patwari was also better, since the Patwari used to respond to the requests of the citizens in a
timely manner and all the transactions were undertaken in a congenial environment. With the
introduction of the computerized system by the LRMIS, a lot of issues surfaced. Errors in data
and procedural issues are quite evident. Power outages with no backup resource restrict and limit
the work at the ARC. People coming from far flung areas often have to wait for days in order to
get their work done. There have been instances of rampant corruption and negligence in duty at
the ARCs.93
6. Issues
91 Ibid. Ms Nadia Ahmed Cheema. 92Interview with Mr.Haji Hassan Deen (Patwari), Mr. SafdarHussain Shah (Girdawar), Mr. Rana Muhammad Sajjid (Tehsildar)
& Mr. Rana Khalid Ahmed (NaibTehsildar) Patwar Circle Raiwand Lahore District, dated June 29 2015 93Ibid. Mr. SardarJameel Ahmed
73
Salary of a Patwari is meager and not enough to make ends meet. In most of the instances after a
service of 25 long years, he receives Rs 25000 per month inclusive of all benefits. Patwaris are
given minimal annual increments. There is an annual increment of just Rs 7.50. There have been
no promotions since 2007 as the government is vowing to end “Patwari Culture”. Partwaris do
not get stationery allowance. All stationery has to be procured by the Patwari through his „self
generated‟ funds. The offices are not in a good shape and mostly established in rented facilities
(rent is borne by the Patwari from his own pocket). It is binding upon the Patwari to complete his
assigned tasks, working unsocial hours and there is no payment for working overtime.94
On senior member BOR‟s personal initiative, the Government of Punjab approved the traveling
allowances (TA) of the Patwaris from Rs 6000/- to Rs 14000/- per month as a fixed travelling
allowance. Motorcycles have also been sanctioned to Patwaris. Directives have been issued to
increase the Basta allowance (Stationery allowance) for the Patwari from a meager Rs. 5 per
month to Rs. 1000 per month.95
However although the notification of Basta allowance of Rs.
1000 per year, increment of Rs. 6000/- and motorcycle for commuting of Patwari has been
issued but there is no implementation of this notification yet.96
Hence whenever the „employment
is subsidized‟ the problems of corruption increase.
The element of apathy towards this lower cadre is one of the biggest deterrents in their
professional development and undermines their efficiency. There are no training programs for
the lower cadres of the revenue department. The staff has limited knowhow of the laws
pertaining to land and revenue and there is no training of these officials vis-a-vis public service
delivery. The general public interacts with this lower cadre staff on daily basis and the
government is ignoring their legitimate training right.97
During the course of our FGD conducted one Tehsildar candidly laid down his frustration against
the system in which he was working in by stating, “There is no criteria for promotion, no
appreciation and no system in place”
2. Analysis of the Interviews
94Ibid. Mr. Jameel Ahmed. 95Ibid Mr. Nadeem Ashraf 96Ibid Mr. Jameel Ahmed. 97 Ibid. Mr. Nadeem Ashraf
74
Figure 28: Issues in Service Delivery
Figure 12: Analysis of interviews entailing the „Issues which lead to inefficiency in service
delivery in the Revenue Department.‟
Figure above details the responses of 21 interviewees regarding their perception about „what
issues lead to inefficiency in service delivery in the revenue department.‟ It was interesting to
note that majority of the respondents (35%) considered extra duties of the lower cadre staff,
especially the extra duties and responsibilities of the Patwari to be the main deterrent in effective
service delivery. It was followed by work environment (32%), most of the officials in the lower
cadre are of the view that Patwar Khana‟s established on rented facilities were not in a good
shape and most of the buildings were in shambles with no budget allocation for operational and
maintenance costs. Only 24% of the respondents considered low salary to be a deterrent in
effective service delivery and a meager 9% consider lack of promotion and training in the lower
cadre to be an issue which limits their efficiency in service delivery.
24%
35%
32%
9%
Issues in Service Delivery
Low Salary
Extra Duties
Work Enviornment
Lack of Promotion & Training
75
RECOMMENDATIONS
Health Department –RECOMMENDATIONS
1. Decentralization - It is recommended that the District Health Authorities (DHAs)
proposed as a local government tier under the Punjab Local Government Act (PLGA)
2013, must be implemented forthwith in letter and spirit. The service delivery at the
district level is severely affected by centralization at the provincial level. If DHAs are
established and sufficient decentralization of authority and power is allowed along with a
robust monitoring and evaluation system, the Primary Health Care service delivery at
least is likely to improve.
2. Staff Recruitment - The identified key health findings show that primarily it is the
unfilled staff positions and promotion especially of nurses (BS 16) that require critical
thought and action. This is some of the critical areas, which require improvement. These
issues have now also been prioritized in the Punjab Health Reforms Roadmap, 2014.
3. Institutionalize Recognition - The nurses, lab technicians and emergency dispensers
need recognition, resources and respect for their service as it is the routine and
discretionary practices of these lower cadre that ultimately shape and become public
policy rather than formal written rules. It is imperative to view policy change from the
lens of the “street bureaucrat” such as nurses and technicians so that they are not
excluded from the process of policy change.
Police Department- RECOMMENDATIONS
1. Perks and benefits - As an incentive to curb the incidence of crime and arresting the
criminals, the police department regularly gives out prize money to the raiding parties of
the police force and the policemen with exceptional service record. This practice should
be put into place more effectively to ensure that the motivation level of the police force
remains high.98
2. Duty Time - There should be a shift system so that the person on duty can perform his
duties in an effective way. There should be weekly rest on rotational basis, the police
official who performs duty seven days a week is unable to fulfill his household tasks and
other personal matters, which affects his efficiency.99
98 Ibid. Mr. Saleem Niazi and Mr. Zubair. 99 Ibid. Mr. M. Zahid.
76
The National Highway and Motorway Police (NH&MP) is a highly disciplined and
professional police force which is respected by the citizens and the government
departments. It is considered as the „Model Police Department.‟ Regular police officials
are posted to NH&MP and the reason for their efficiency and the lack of corruption in
this department can be attributed to the good working conditions for all ranks (Especially
subordinate cadre BPS 5-16), market competitive salaries and perks, pick and drop
facility and favorable work hours (8am-4pm), shift or the night shift respectively. They
get ample rest and recreation time and can easily attend social commitments. 100
The regular police force (BPS 5-16), especially the constables, head constables and ASI‟s
on the contrary have to perform their duties day in and day out, under harsh
circumstances, brave the cold and stand guard in the scorching heat. If they are deployed
for VVIP protocol duty, they are dropped at their pspecific posts in a Police van, but once
their duty is finished, they have to go back home on their own expense and most of the
time it is late into the night. They should be provided extra allowances for the VIP duties.
3. Training - The police training institutes focus should be on inculcating the highest moral
and ethical values among the recruits. Moharar should be provided refresher courses to
sensitize them in effective service delivery and public dealing. Training should be
revamped with a particular focus on academics and soft skills. Modules should be
modified taking into account the current dynamics. In order to improve public interaction
of the police force and improve basic provision of service to the local citizens, officials of
the lower cadre should be provided refresher and in-house training courses.
4. Promotions - Promotions in the subordinate cadre should be speedy in order to ensure
job satisfaction and motivation. Rapid promotion policy as in the case of PSP officers
should be replicated in the subordinate cadre. Promotion criteria for the subordinate cadre
officers should be linked to their performance, training and effective service delivery.
5. Selection of officers of the lower cadre and bridging the gap between the PSP and
lower cadre - There is no functional human resources department in police which sets
the criteria in the interview process pertaining to specific questions which will ascertain
the cultural and social background of the prospective candidate in selecting the police
recruits.
The Government should try to incorporate certain questions in the interview, so as to
ascertain the educational, social background of the potential candidates and assess
100 Ibid. Mr. Mansoor Ahmed.
77
whether they are well rounded individuals with high morals, values and honest in their
dealings.101
If we need an improvement in the police, the officers of higher cadre (PSP) should be on
board in leading and providing mentorship to the lower cadre (Constables- Inspector), so
that there is a sense of belonging in the lower cadre towards the police department and
the policies drafted at the senior level should be in sync with the needs and aspirations of
the lower cadre.
Since the lower cadres interact with the common citizen and are the street level
bureaucrats there is a dire need to focus on the policies aimed at reforming the lower
cadre and analyzing the problems and the difficulties faced by them on the job.
Education Department – RECOMMENDATIONS
1. Training in soft skills - It is recommended that leadership and soft skills be imparted
amongst the teacher during trainings. Moreover, huge emphasis needs to be on the
leadership qualities, personality traits of the teacher, when interviewing for recruitment
process. Various studies have highlighted the need for leadership skills amongst the
teacher for improvement in better service delivery.
2. Creation of linkages between pre-service and in-service training - The training
imparted amongst teachers between Grade 6 till 16, needs to be in sync with the ground
realities and the job description. In England and Scotland there is General Teaching
Councils (GTC) that under the law acts as a connecting bridge between what is needed
and what is required from the teachers and their requisite training. The GTC are
concerned with pre-service and in-service or induction training, initial teacher education
and training, and continuing professional development. Similarly in Punjab, the quality of
training can be enhanced with the assistance of teacher training council that can connect
the pre-service training to what is required from the teachers in the field. The content that
is taught to the teachers before joining the service does not commensurate with the
ongoing service requirements.
3. Trainings need to be cluster specific rather than generic – There are no benchmarks
for trainings imparted as teachers from the lower cadre are selected randomly at whim by
the district. The trainings do not cater to the particular job description of the teachers.
Furthermore the “one size fit all” approach is the norm. There is a need to assess the
101 Interview with Mr. Sohail Khan, Additional IG Finance CPO Lahore, dated June 10, 2015.
78
requirement of each district and training rather than standardizing training for the entire
province. Uniformity in trainings is a hurdle in service delivery. This has led to stagnated
growth in the research and development of the education department. Focus ought to be
on quality of trainings rather than the number of people trained.102
4. System of follow-up after trainings – There is no follow of trainings provided to the
teachers through various trainings institutes, such as MPDD and DSD. There is a need to
embed a follow up mechanism where the outcome of training can be monitored and
checked through expeditious means. The system of checks and balances needs to be
incorporated for minimizing the gap between the need and want in trainings in order to
ultimately improve governance and public service delivery.
5. Incentivize structure and instill motivation - In order to curb the lack of motivation
amongst teachers there is need to incentivize the teachers not merely through pay raises
but by allowing them to feel part of the system and ownership. It was observed in many
interviews that majority of schools teachers did not feel the need to improve their pay
scale and were complacent to change their skills set and attitude. No signs of career
progression are due to lack of incentive which ultimately leads to poor public service
delivery. Many who opt to become teachers remain in the same post for many years due
to job security and monthly salary no matter how meager.
On a policy level the governance structure needs to be incentivized in order for career
progression to take place within the teaching cadre. One way of achieving is to link
progression through promotion-based training, which will give them a constant sense of
association with their jobs. However one of the prime concerns in improving governance
structure through incentives would be to find practical ways in which teachers, for
example, will feel motivated to work and delivery their best. One case is “recruit quality
to deliver quality” and the other case is to build within the system “motivation triggers”
that create better career prospects. Provision of better infrastructure facilities, better
access to libraries and giving them key decision-making power such as in the
development of the curriculum are ways to enhance their motivation and promote
efficient public service delivery. For the teachers to feel motivated, the governance
structure needs to be such that allows them to “own” and retain rather than alienate and
dislocate.
Revenue Department – RECOMMENDATIONS
102 Interview with Dr Rukhsana Zia Ex Director DSD dated 19 May 2015
79
1. Training and Capacity Building - The lower cadre of revenue department is in a dire
need of capacity enhancement through focused training programs. According to the DLR
and other officials of the BOR the following training initiatives should be carried out for
the subordinate staff;-
1) Extensive training on land records.
2) Training on effectively carrying out land settlement.
For the lower cadre staff, only typing or ability to use a computer is not enough and the
subsequent improvement in the service delivery. Land Acquisition Act is very important
and all the staff members of revenue department should go through this document. There
are 84 prominent laws of revenue which are frequently used.
2. Training initiatives for Patwaris - Patwaris usually follow the model of „training by
learning‟, which is of course a self initiative. The Patwar Schools should be formalized,
proper training facilities should be established and qualified instructors appointed to
provide specialized training to the candidates aspiring to be selected as Patwaris. This
will in turn bring about an improvement in the skill set of the candidates. Thus in order to
bring about a major reform in the revenue department, the focus could be on increasing
the quantity and improving the quality of the Patwar Schools.
The capacity of the Patwari could be enhanced in an ongoing capacity institutionalization
process and they need to be provided formal trainings on;-
1) Land record manual.
2) Land record rules.
3) Stamp Act.
4) Registration rules.
5) Knowledge of all laws pertaining to land management.
6) Laws compendium. 103
3. Service Delivery - In order to improve the standard of service delivery among Patwaris,
the government needs to establish proper training facilities (Patwar Schools/Academies)
along the lines of their counterparts in other provincial government departments and
appoint well trained instructors equipped with robust training programs.
Proper budget allocation for establishing Patwar Khanas is the need of the hour. All the
Patwar Khanas established on rented facilities should be provided alternate office spaces
in buildings of the revenue department. Operational/maintenance allowance should be
provided to each Patwar Khana to ensure smooth running of the revenue functions and
103 Ibid. Mr.Maqbool Ahmed
80
curtailing corruption, along with a periodic mechanism of checks and balances on each
Patwar circle.
In order to bring about reforms within the ranks of Patwaris, it is important to understand
that the corrupt practices prevalent within this cadre. The extra duties are forcefully
imposed on the Patwaris by their superior officers. The Patwaris and the subordinate
cadre of the revenue department do not get any allowance to undertake these tasks.
Rather they are required to „generate‟ funds for the „activities‟. One patwari bluntly said
during FGD104
, “Patwaris have to forcefully „generate‟ funds for the formal and informal
political „activities”.
The reform mechanism needs to focus on ensuring that the Patwari only performs the
designated responsibilities and duties that too in an accountable manner with necessary
checks and; balances by the superior officers.105
A few officials of the lower cadre
suggested that, if Patwari‟s pay is increased to Rs. 50,000 or more per month, the element
of corruption will be lowered to some extent.106
The Patwari used to have instruments for land measurement that included the „Jareeb‟- a
key instrument for measurement of land. In the case of any issue pertaining to land
measurement, the Patwaris used this instrument which looks like a marked stick of a
standardized length, the concerned Patwaris then used the Jareeb to measure the land and
record it accordingly. But now the Patwaris have no proper instruments for such tasks,
these instruments should be sanctioned to the Patwaris for better service delivery.
The Land Revenue Act of 1967 is a robust act, it contains the constitution of the Board,
superintendence and control of revenue officers and revenue courts and the powers of the
Board are also governed through this Act. The Act also establishes the guidelines for the
conduct of business, with prior approval of the government while the Board has the
authority to make rules. The Revenue Act of 1967 can be modified taking into account
current dynamics of land record management and reintroduced in the revenue
department.
Systematic monitoring of Partwari‟s daily work should be carried out. The „Kitab
Karguzari Patwari‟ that contained monitoring remarks of the deputy commissioner is no
longer maintained. This practice should be revived. Hence reforming the old system and
making it more robust is the need of the hour. LRMIS is indeed a robust system which
should be further refined and streamlined. It would be a good idea to integrate the Patwari
104FGD held on 7th October 2015 105 Ibid. Mr. SardarJameel Ahmed. 106Ibid. Mr.Haji Hassan Deen, Mr. SafdarHussain Shah, Mr. Rana Muhammad Sajjid& Mr. Rana Khalid Ahmed.
81
in the new system, instead of alienating them. Patwari system and computerized system
should go hand in hand rather than in complete isolation of one another.107
Conclusion The performance of the street-level bureaucrats has a direct bearing on the citizen-state
relationship. In order to improve this relationship, the street-level bureaucrats who represent the
face of the state need to show a marked improvement in the service delivery.
The delay in promotion was a finding that cuts across all the four departments. Furthermore the
overall problem regarding the dearth of human resource, limited career progression, extended
hours of duty beyond regular work schedule, political interference and poor salary structure and
working environment aids to affect the self-esteem and morale of the junior bureaucrats.
In the health department the baseline identified gaps in service delivery that exist in the quality
of cadres 9-16 and highlighted the inadequate training and unreasonable staff strength working at
1:40 nurse-patient ratio. Similarly, for the police department the study identified insufficient
numbers of personnel, limited resources, institutional disconnect with the public, political
interference, corruption and lack of modernization. The thrust of the study aimed at enhancing,
and effectively improving the work of the lower cadre that existed between grades 9-16. The
focus of the reform should be junior officers as they largely carry out the investigative fieldwork.
The junior ranked officers do majority of the work while most of the international training were
currently being offered to senior supervisory officers. This pattern needs to be reversed so that
junior officers have significant training opportunities and perform better in public service
delivery.
The baseline for education highlighted issues concerning the recruitment and training of the
lower cadres and their public service delivery. The need to create linkages between pre-service
and in-service trainings remains essential for efficient and effective public service delivery.
Furthermore, the system of follow-up after trainings was seen to be the missing element, which
the training institutes were aware of and realized the need for it to be effectively built into the
system. The quality of education, location of schools, teachers‟ presence, besides other factors,
affect parents‟ decision to send their children to school. The issues on the supply side included
appropriate and high-quality curricula, the presence, quality and effectiveness of teachers, and
efficient school management. While reform in civil service in the education department cannot
be isolated yet the emphasis needs to be on the quality of teachers recruited rather than the
quantity to maintain and sustain an efficient and effective public service working force. The
motivation and career progression needs to be inculcated within the structure as effective service
delivery measures.
In the recent years the Punjab revenue department underwent certain administrative and
structural reforms, which had a positive impact on the service delivery of the department. The
107Ibid. Mr. SardarJameel Ahmed & Mr. Haji Hassan Deen.
82
computerization of the land record management data has to some extent curtailed corruption. The
introduction of LRMIS streamlined the process of obtaining land records and facilitated the
citizens in getting effective and efficient services. Still, the office of the Patwari holds a key
position and it must form part of the reforms that would help improve service delivery while
addressing the genuine employment needs of the staff.
Ends/
83
ANNEX A
Schedule of study for Health Department
For this baseline study a total of 71 interviews were conducted in the four target districts of
Punjab, during July-September 2015. The number of interviews increased as the study moved
forward. The citizen survey carried out included 15 respondents. The following tables show the
interviews conducted in each department and district over a period of three months.
Figure 29 Schedule of Study for Health Department
Schedule of the Study for Police Department
For the baseline study of police department a total of 42 interviews were conducted in four
districts, during the month of June, July, August and September 2015.
Sr.
#
Place Date Department Name of Officials Designation Grade
(BPS)
1. Lahore
Urban
10th June
2015
CPO (IG
Office)
Mr. Nawaz Warraich DIG
Establishment
20
2. Lahore
Urban
10th June
2015
CPO (IG
Office)
Mr. Sohail Khan Additional IG
Finance
21
3. Lahore
Urban
10th June
2015
CPO( IG
Office)
Mr. Sarmad Saeed Additional IG
(Retd)
21
4. Lahore
Urban
10th June
2015
CPO (IG
Office)
Mr. Sahebzada
Shahzad Sultan
DIG (RPO
Sheikhupura)
20
Department People Interviewed Time Period Place
S&GAD 5 health
superintendents
August-
September
Lahore
4 public
Hospitals
15 citizens, 21 Charge
nurses and 12 lab, x-
ray technicians
August-
September
Lahore, Kasur,
Faisalabad
EDO health 4 EDO‟s August-
September
Lahore, Kasur
and Faisalabad
Director general
Nursing
2 administrators August-
September
Lahore
84
5. Lahore
Urban
16th June
2015
PS Old
Anarkali
Mr. Mansoor Ahmed ASI (Admin
Officer)
9
6. Lahore
Urban
16th June
2015
CPO (IG
Office)
Mr. Masood Khalid Head Constable. 7
7. Lahore
Urban
18th June
2015
PS Old
Anarkali
Mr. Muhammad
Nauman
S.H.O 16
8. Sheikhupura
Urban
20th June
2015
Model PS A
Division
Mr. Saleem Niazi S.H.O 16
9. Sheikhupura
Urban
20th June
2015
PSP Mr. Zubair Nazir ASP (UT) 17
10. Lahore
Urban
18th August
2015
Model PS
DHA Phase V
Mr. M. Zahid S.H.O 16
11. Lahore
Urban
18th August Model PS
DHA Phase V
Mr. M. Zulfiqar ASI (Admin
Officer)
9
12. Lahore
Urban
18th August Model PS
DHA
Mr. M. Azhar PSA (Police
Station
Assistant)
-
13. Lahore
Rural
19th August PS Hayer
Bedian Road
Lahore
Mr. M. Fayyaz ASI (Admin
Officer)
9
14. Lahore
Rural
19th August PS Hayer
Bedian Road
Lahore
Mr. M. Mukhtar Head Constable 7
15. Kasur Urban 7th
September
RPO Office Mr. Sahibzada
Shahzad Sultan
DIG (RPO
Kasur)
20
16. Kasur Urban 7th
September
DPO Office Mr. Ali Nasir DPO Kasur 19
17. Kasur Urban 7th
September
DPO Office Mr. Raza Abbas
Naqvi
DSP HQ 17
18. Kasur Urban 7th
September
DPO Office Mr. M. Qadeer Inspector Legal 16
19. Kasur Urban 7th
September
Model PS A
Division
Mr. Tariq Mahmood S.H.O 16
20. Kasur Urban 7th
September
Model PS A
Division
Mr. Zia Ullah ASI 9
21. Kasur Rural 7th
September
PS Shaikham Mr. Irfan Gill S.H.O 16
85
22. Lahore
Urban
11th
September
CPO Lahore Capt (Retd)
Muhammad Usman
Khattak
Additional IG
(Training)
21
23. Lahore
Rural
11th
September
Elite Police Qaswer Chohan SI 14
24. Faisalabad
Rural
9th
September
PS
Khuriyanwala
Mr. Muhammad
Abid
DSP 17
25. Faisalabad
Urban
9th
September
PS Sargodah
Road
Mr. Muhammad
Younis
S.H.O 9
26. Faisalabad
Urban
9th
September
PS Sargodah
Road
Mr. Muhammad Ejaz ASI 9
27. Faisalabad
Urban
9th
September
PS Sargodah
Road
Mr. M. Younis Head Constable
(Moharar)
7
28. Faisalabad
Urban
9th
September
RPO Office
Faisalabad
Mr. Sajid Rehman District Security
Officer
Faisalabad
19
29. Lahore
Urban
June-
September
PSP Mr. Khawaja Khalid
Farooq
Inspector
General of
Police (Retired)
22
30. Lahore
Rural
16th
September
PS Hayer
Bedian Road
Lahore
Mr. Mian Qadeer S.H.O 16
31. Lahore
Rural
16th
September
PS Hayer
Bedian Road
Lahore
Mr. M. Ashiq Constable 5
32. Lahore
Urban
17th
September
Police Lines
Qilla Gujjar
Singh
Mr. Muhammad
Tayyab
ASI 9
Figure 30 Schedule of Study for Police
Schedule of the Study for Education
A total of 78 interviews were conducted in two districts of Punjab i.e. Lahore and Sheikhupura,
during April to June 2015.
Department People Interviewed Time Period Place
S&GAD 1 ex-Chief Secretary, 1 Secretary, 1 Deputy
Secretary, 1 DCO, 1 Superintendent, 1 Section
officer
17-26 April 15 Lahore
DSD 1 ex-Program Director, 1 Additional Program
Director, 1 Course Coordinator
19 May-22 Jun 15 Lahore
PESRP 1 Additional Program Director, 1 Director 16-20 Jun 15 Lahore,
86
Coordination, 1 DMO (Sheikhupura) Sheikhupura
Sheikhupura Visit 1 EDO Education, 1 DDEO, 1 DEO, 1 AEO,
2 PST‟s, 1 Assistant
20-Jun-15 Sheikhupura
MPDD 1 Director Academics, 2 Instructors 23-25 Jun 15 Lahore
APCA 4 Clerks, 1 Assistant 17-Jun-15 Lahore
LUMS 1 Professor 5-Jun-15 Lahore
School Education 21 teachers of Grade 9, 14 and 16, teachers
union Punjab
25-08-15 Lahore
Figure 31 Schedule of study for Revenue Department
Schedule of the Study for Revenue Department
The interviews were conducted from June till August 2015.
Sr.
No Place Date Department
Name of
Officials Designation
1
Lahore 10th June,
2015 Board Of Revenue
Mr. Maqbool
Ahmed
Director land Records
and IG registrations
2
Mr. Nadeem
Ashraf
Senior member Board Of
Revenue
3 Mr. M. Dogar Senior Officer
4 Mr. Ahmad Ali Secretary
5 Lahore
23rd June,
2015 DG Kachi Abadis
Mr. Rashid
Mahmood Director Kachi Abadis
13 Lahore
23rd June,
2015 to 29th
June, 2015
Project Management Unit
(LRMIS) and ARC
Mrs. Nadia
Ahmed Cheema Manager SD & PR
6 Mr. M. Nadeem
In charge Arazi Record
Centre
7 Lahore
24th June,
2015 PRMP
Mr. Ali Jalal Deputy Program Director
8
Ms. Naima
Rashid Assistant Director
9
Ferozwala,
District
Sheikhupura
26th June,
2015
Office of Tehsildar,
Ferozwala
Mr. Anjum Zaka
Butt Tehsildar
10
Mr. Muhammad
Saleem Reader to Tehsildar
11
Mr. Anwar
Hussain Saleem Naib Tehsildar
12 Mr. M. Liaquat Patwari
14 Lahore 10th June,
2015 to till
now
Pakistan Administrative
Service
Mr. Tariq
Mahmood
Retired Government
Officer
15 Lahore
23rd June,
2015 & 26th Common Citizens
Mr. Munneb Ali Taxi Driver
87
16
June, 2014
Mr. M .Bilal Masters' Student
17
Lahore 9th July
Patwar Circle, Mauza
Paki Tathi, and Patwar
circle Raiwind Tehsil
District Lahore
Sardar Jamil
Ahmed Tehsildar, Shahdara
18 Amir Azhar Qanoongo, City Lahore
19 Jamil Ahmed
Patwari, Mauza Paki
Tathi, District Lahore
20
Haji Hassan
Deen
Patwari Raiwind, District
Lahore
21
Sarfaraz Hussain
Shah
Girdawer, Raiwind,
District Lahore
22 RanaSajjad Tehsildar, Raiwind
23 Rana Khalid Naib Tehsildar, Raiwind
24
Lahore 20-Aug LRMIS PMU
Mr. Rao M.
Yousuf
Land and Law Revenue
Expert
25
Mr. Zainul
Abideen Mobilization Officer
26 Lahore 28-Aug ARC ZillaKatcheri
Mr. Rana
Nadeem
Assistant Director Land
Records
Figure 32 Schedule of study for Revenue Department
Participant Observation Name of Person Area of Residence District
1. Muhammad Ahmed Sherpao bridge, Lahore Cannt Lahore
2. Hassaan Ahmed Tajpura , Lahore Cantt Lahore
3. Khizer Hayat Usman wala Kasur
4. Muhammad Fahad Ferozwala Sheikhupura
5. M.Shazed Qadous Garden Town Lahore
6. Aesun Ali Iqbal Town Lahore
7. Hafeez ur Rehman
Haadi
Johar Town Lahore
8. Muhammad Waqas Jarranwala Faisalabad
9. Muhammad Naeem Pial Kalan Kasur
10. Waqar Gillani Bakar Mandi Lahore
88
Figure 33 Schedule of study for Revenue Department
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