WITH a renewed focus on conducting local government elections, the issue of grassroots governance has bounced back into the news and policy cycles. This is reflected in the various aspects of LGs being dissected by political and civil society stakeholders, and activities — including protests by political parties — to find better and lasting ways to improve local governance.
Historically, the local bodies, first introduced during Gen Ayub’s military regime, have waxed and waned in line with the wider political schemes of state managers. It is an open secret that LGs are strategically renewed by military governments for undermining the established local political elite and manufacturing into existence a new layer of more pliable grassroots leadership. Meanwhile, elected governments and political parties too have neither looked kindly on the prospect of LGs taking root for similar fears that their locally established leadership might be challenged by new political actors.
However, irrespective of the intention behind the strategic diminishment and resurrection of LGs, the consensus across the political and academic spectrum is that local bodies are the linchpin of service delivery and the chain of political representation. Moreover, their role as connectors of higher-tier government structures and grassroots also remains unchallenged. In this respect, while many aspects of LG service delivery roles are being pored over, the role as a deliverer and administrator of social protection programmes has not been given the attention it deserves.
In Western democracies, the political governance landscape is based on local parish and councils. It is unimaginable to see them knocked out of the political representation and service delivery chain. In the UK, without local councils administrating education, social welfare systems etc, the whole edifice of a unitary state would come crumbling down. In Pakistan, however, LGs have been turned off and on like tap water, discouraging the exercise of people’s right to local representation.
With LGs, Ehsaas can have a greater reach.
The role of LGs in the administration of social welfare programmes is by now also well established in the developing world. Brazil is both associated with introducing participatory budgeting at the municipal level and the use of LGs in the administration of its famed cash transfer programme Bolsa Familia. This model has been copied in the rest of Latin and South America with municipal offices playing an ever-greater role in the roll-out and administration of similar cash transfer programmes. Brazil’s municipalities are at the front and centre in managing its social registry, carrying out a broad set of functions including identification of low-income areas, registration of beneficiaries, data collection and verification, training and outreach etc.
In Colombia, LGs are responsible for processing new applications and updating existing beneficiaries’ data on a rolling basis. Each municipality signs an agreement with the national cash transfer programme, committing to specific obligations and responsibilities. Committees are also established at the municipal level to handle complaints and allegations of ineligible beneficiaries.
In Pakistan, however, the role of LGs in the roll-out and administration of cash transfer programmes has been not systemically thought through. One of the key reasons for this is the evolving and expanding nature of the Ehsaas or Benazir Income Support Programme and the uncertainty about the continuance and longevity of LGs.
However, now that LGs seem to be back in fashion, steps should be taken to make them a permanent feature of political representation and service delivery chains. Only when the LG system is allowed to put down roots and firm up its uninterrupted presence can we begin to think about ways to shoehorn social protection programmes into LG structures for ease and confidence of its beneficiaries.
As the Ehsaas programme expands, LGs can provide it with a firm foothold, acceptability and greater reach among the public. Pakistan should definitely learn from the pragmatic fusion of local bodies and social protection programmes for better service delivery and generating wider public involvement (and hence support) at local levels. Political parties also need to change course and see LGs as the permanent enhancer of representative and service delivery aspects of democratic governance rather than as competitors of established local elites. In the longer term, there is also a long-overdue requirement for conducting research into how the absence of LGs has contributed immensely to the crisis of democratic governance and falling standards of centralised service delivery that we see today.
Intense polarization and Pakistan’s democratic future
Pakistan has been a polarized polity and consequently, a divided society for the past half century, and even longer if we look back deeply into its history. It started with the serious differences among the political elites of the country over the character of the state, quality of federalism, relationship between religion and governance and ideological choices. One may argue that it could be a normal process in a diverse nation’s struggle to take a definite direction and achieve stability in the formative phase. But one wonders why it would take nine years in writing the first constitution and then its annulment within three years without any general elections or transfer of power happening under it.
Without getting into the details, it was the inability of the ruling elites, their diverse regional backgrounds, personal vested interests in power grabs, and for that purpose, engineering of political manipulation to wreck governments and forms new ones.
Factions of the same elite under different party platforms kept displacing one another from power endlessly until the military took over in 1959. There is another view that political elites were innocent and they were actually played against one another as puppets by the civil and military bureaucracy.
This is too charitable a perspective to excuse the political elites and their never-ending factionalism, which continues to this day, after a long history of 74 years. If they had played by the rules, demonstrated political solidarity on principles and forged a political consensus, the democratic norms and convention would have gelled over time. The recent ouster of former prime minister Imran Khan, despite the fact that he had the largest party in the parliament with 156 members losing power to a motley group of political factions, the closest second having only 86 members and forming the new government, speaks a great deal about persistent polarization. The sad story of Pakistan is that naked factional elite interests have shaped these power plays, often by seeking friendly intervention from the powerful judicial and security institutions.
Generation after generation, coming from the same feudal-tribal social background, Pakistan’s political elites have promoted political values that run counter to nation and state-building.
The normal and expected role of the political elites in any form of political system is working toward stability, order, national unity, solidarity and continuity along with ensuring progress, social and economic development.
The Pakistani elites have done quite the opposite: polarizing and dividing people along ethnic, religious, ideological and narrow political lines. Generation after generation, coming from the same feudal-tribal social background, they have promoted political values that run counter to nation and state-building in ethically and demographically diverse society.
Ultimately, it is the rapacious character of the Pakistan ruling classes, their low commitment to rule of law and accountability and access to power as means of material benefits that have stunted the growth of democracy. In such conditions, the military has assumed the role of ‘guardian’ of the state, and has regularly managed political conflicts erupting over power struggles among the elites.
The present polarization between the PTI and the rest of the 11 so-called political parties and factions is not new. It is a continuation of the same historical pattern, only the main characters have changed. Each successive confrontation has been more severe than before. The ongoing clash looks like political warfare with no-holds-barred, barely covered with a fig leaf of constitutionality. This has been in the making for the past nine years when Imran Khan challenged the fairness of the 2013 elections. The others, in return, questioned the accuracy of the 2018 vote and vowed to oust him from power by forming a joint alliance, launching street demonstrations, and finally succeeding by winning over dissidents from his party and coalition partners and moving successfully a vote-of-confidence motion in the National Assembly.
The sudden change of heart by four coalition groups supporting Khan and the open betrayal of 20 members of his party have raised many troubling questions about the neutrality of powerful state institutions. This adds another dimension to the political conflict playing out in media, civil society and the general public.
Khan has instantly decided to engage in popular agitation against what he calls an ‘imported’ government by weaving a narrative of foreign ‘conspiracy’ and accusing some as ‘traitors.’ His decision to resign from the national assembly en-masse is stunning and may prove to be an adventurous path to Azadi‘liberation’ for the country. He will be doing politics now not in the parliament but in the streets, rousing public anger against the ‘corrupt mafia’ and demanding fresh elections.
Democracy: A colonial hangover
The system is premised upon the idea that one head would count one vote. Although the notion theoretically solves the basic inequality problem, it generates far greater inequalities’
Right after the Second Great War, though the British did leave this continent for good, they left a mess for the people of the newly founded nations to collect. Oftentimes, while trying to rationalise their colonial past, many of its fervent advocates claim that one of the greatest things that colonised countries inherited, which they would not have otherwise, was the idea of democracy: A new system of governance. A facile narrative to cover their smelly past, but also a false one.
Like many other nation-states, Pakistan also adopted democracy at the time of its inception, taking its cue from the then supposed leaders of the world. It hoped that by doing so, it too would reap the benefits that democracy promised to bring along – equality, freedoms, free-market economy and stability. However, many of these states descended into martial laws under despotic rules or turned rogue. Pakistan’s own fate was no different.
Perhaps, there are inherent flaws that everybody tends to overlook because of the way it was delivered to us and by whom – our old masters giving us the parting gift. But why is it that, to date, the same system working with far greater efficiency in the West fails miserably in developing nations?
Free market is a preeminent feature of democracy and in theory, it was supposed to be the lodestone towards freer and more egalitarian societies. But all it accomplished in reality was a further chasm in inequality and degeneration into pure consumer capitalism. This marvel made it so that power would concentrate in the hands of the affluent, making it essential for the politicians to remain in their thrall if not from within them. This notion is precisely misleading when looking at western societies. The idea of social-welfarism – which began in the early 1900s only – bridged this gap to an ‘acceptable’ degree both in terms of social and economic equality. But can this ever be achieved in countries like Pakistan or India: Reeking of moral corruption, notoriously venal, elections manifestos premised upon intolerant suppositions, bedevilled histories and above all, rugged with indigence?
The system is premised upon the idea that one head would count one vote. Although the notion theoretically solves the basic inequality problem, it generates far greater inequalities. This perspective is not supposedly a new idea and was also put forth by B.R. Ambedkar at the time when he was penning the Indian constitution. The idea of an English democracy did not particularly resonate well with another leader of the Indian freedom movement: Mahatma Gandhi.
One might inquire the reason why these leaders were so sceptical of democracy. The answer can be found precisely in today’s time. Even a fleeting look at the Modi regime could call a day of reckoning for all purveyors of democracy: de facto martial law in Kashmir, systemic persecution (as witnessed in Gujrat) and discrimination against ethnic minorities, populism at its peak, leading India into regressivism – and all this being done by the ‘democratic power’ vested in Modi by the ‘largest democracy’ in the world. Maybe such foresight left some of the leaders of the Indian Independence Movement disenchanted with democratic prospects, fearing that such a system would spawn the same problems that they sought independence to curb.
Pakistan, billed as the single Muslim nuclear power has always had to maintain an international image. The problem with the image is that it is examined on western ideals of which democracy stands to be the single biggest factor, irrespective of how nominal it is. This ensures aid, loans, and all sorts of international support for said country.
If such a scene is set, how can really a country decide what system serves its people best? It is as if countries are being goaded into something simply because they cannot yet afford a dignified existence for their people. It is not to whinge that democracy is rooted in every problem or to anoint it with a gilded halo as the saviour of nations.
The point in matter is to maybe think beyond for more egalitarian and just systems of governance. To not only aim at democracy as a metric to be reasoned among civilised nations. To make it in essence, once again, the society of Lycurgus, the society of Plato, the society of Marcus Aurelias which could push beyond what they could see. These rusty gateways of discourse, which would require some pushing, need to be opened. Maybe democracy works, maybe it does not – but the answer, in the end, lies with the people.
Pakistan slipping lower in corruption index is a bombshell revelation
It was like a bombshell had hit the government, and its carefully cultivated image of a party fighting against corruption. In the past 42 months of the Pakistan Tehreek-e-Insaf (PTI) rule, there has hardly been anything as devastating as this to damage the credibility of this government.
In the recently released Corruption Perception Index (CPI), 2021, Pakistan’s score slipped 3 points to 28 from last year’s 31 while the international ranking fell by a whopping 16 places to 140 compared to 124 last year. This is a great shock for a government that was swept into power riding an anti-corruption wave and promised to fix at least the top-level corruption within the first 100 days of its rule. As if this was not enough, the CPI indicated a trend of falling score and rank for Pakistan since 2018– the same year the current government came into power.
Berlin-based Transparency International has been compiling and releasing the international CPI for the past 26 years. CPI, generally branded as a survey of the surveys, relies on 13 data sources such as the World Bank, the World Economic Forum headquartered in Geneva, US-based World Justice Project, Varieties of Democracy (V-Dem) project hosted by Sweden and the US, US-based Freedom of House and the Economist Intelligence Unit (EIU) of the UK, PRS Group located in the US and Bertelsmann Foundation of Germany.
” Despite the fact that CPI creates a significant impact on public perception in the home ground and among the international community, it is not a measurement of corruption as such; it is a measurement of the perception of corruption.”
—Ahmed Bilal Mehboob
Fawad Chaudhry, Federal Minister for Information and Chief Spokesman of Government of Pakistan was right when he identified the Economist Intelligence Unit as the major factor in the fall in Pakistan’s score. While scores contributed by the other 7 entities changed very little over the year, the EIU rating for Pakistan showed a significant dip from 37 in 2020 to 20 in 2021 – representing a 46% decline. But he was not right when he claimed that this decline signified weaknesses in rule of law and political stability and had nothing to do with financial misappropriation. In fact, six of the eight parameters of EIU assessment related to such issues as ‘allocation and use of public funds’; ‘public funds misappropriated of by ministers and public officials’; existence of ‘special funds’ without accountability; ‘abuses of public resources’; ‘auditing the management of public finances’ and whether there is ‘a tradition of payment of bribes to secure contracts and gain favours.’ All these questions directly relate to public funds.
The yearly release of CPI is eagerly awaited especially by the investors, donors and creditors of developing countries to possibly adjust the risk profile of these countries and relevant policies. Any major shift in a country’s score, like the one in the case of Pakistan this year, causes a stir in the country concerned and impacts domestic politics as well.
In Pakistan, the CPI 2021 caused a sonic boom for two key reasons. First and foremost, because PTI always maintained and proclaimed that it was the corruption that pulled down the economy and development of Pakistan and made repeated commitments – both verbally and in the election manifesto – to address corruption soon after coming to power.
The political polarization is peaking in the country as PTI pushes for early conviction of PPP and PMLN leaders who face corruption and other cases in the courts. As the next general election is just 18 months away, any negative perception, especially the corruption perception, is going to badly hurt the party in power, and that is why CPI 2021 has so seriously impacted the political narrative – at least for now.
Despite the fact that CPI creates a significant impact on public perception in the home ground and among the international community, it is not a measurement of corruption as such; it is a measurement of the perception of corruption.
Since perception plays a dominant role in determining the political fortunes of a government – and there are hardly any other measurements of corruption – CPI2021 will continue to worry Imran Khan and his government unless there is an improvement reported in the CPI, 2022, which is just a year away and uncomfortably close to the General Election in 2023.
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