COMPARATIVE PUBLIC
ADMINISTRATION
MPA 503
LECTURE 29
PAKISTAN ADMINISTRATIVE
SYSTEM
MANAGEMENT IN PAKISTAN
•
•
•
•
•
PAKISTAN IS A FEDERAL STATE.
ACCORDING TO THE CONSTITUTUION OF 1973 WHEN FULLY
OPERATIVE, THE EXECUTIVE AUTHORITY OF THE
FEDERATION IS EXERCISED BY THE FEDERAL GOVERNMENT
IN THE NAME OF THE PRESIDENT.
THE PRIME MINISTER IS THE CHIEF EXECUTIVE OF THE
FEDERATION AND THE FEDERAL CABINET EXERCISE ITS
AUTHORITY THROUGH HIM.
ACCORDING TO THE FOURTH SCHEDULE (ARTICLE 70 OF
CONSTITUTION) THERE IS A LIST OF SUBJECTS TO BE
DEALT WITH BY THE FEDERAL GOVERNMENT AND ANOTHER
BY THE FEDERAL AND THE PROVINCIAL GOVERNMENTS
CONCURRENTLY .
ALL THE REMAINING SUBJECTS AND RESIDUAL MATTERS
OF ADMINISTRATION ARE IN THE PURVIEW OF THE
PROVINCIAL GOVERNMENTS.
TECHNICAL AND NONTECHNICAL POSTS
•
THE SERVICES AND POSTS UNDER THE GOVERNMENT IF
PAKISTAN,WHETHER SUBJECT TO THE CONTROL OF THE
FEDERAL OR PROVINCIAL GOVERNMENTS CAN BE CLASSIFIED
INTO THE FOLLOWING THREE CATEGORIES ACCORDING TO THE
MODE OF SELECTION AND REQUIREMENTS OF THE JOB:
i. GENERALIST SERVICES
ii. SEMI-TECHNICAL SPECIALIZED SERVICES
iii. PURELY TECHNICAL SERVICES.
•
•
THERE ARE SOME POSTS TO WHICH RECRUITMENT IS MADE ON
THE BASIS OF ADVANCED ACADEMIC ATTAINMENT IN A
UNIVERSITY WITHOUT FORMAL EDUCATION OR TRAINING IN A
PROFESSIONAL INSTITUTION.
FOR EXAMPLE, CANDIDATE WITH HIGHER QUALIFICATIONS IN
ECONOMICS , STATISTICS ETC, ARE SELECTED ON THE BASIS
OF THEIR QUALIFICATIONS FOR SUCH SEMI-TECHNICAL POST
AS RESEARCH OFFICER, ECONOMIC ADVISOR, SCIENTIFIC
ADVISORS, ETC.
TECHNICAL AND NON-TECHNICAL
POSTS
•
THE PURELY TECHNICAL SERVICES AND POSTS ARE THOSE
TO WHICH RECRUITMENT IS MADE ON THE BASIS OF
TECHNICAL QUALIFICATIONS ACQUIRED MAINLY IN
PROFESSIONAL INSTITUTIONS.
•
THE JOB REQUIREMENTS FOR EACH POST IS DETERMINED
AND PERSONS MEETING THE REQUIREMENTS ARE
SELECTED, ON MERIT, FOR DIRECT APPOINTMENT WITHOUT
FORMAL TRAINING.
•
THE APPOINTMENTS TO THESE POSTS MAY ALSO BE
CONSIDERED TO BELONG TO THE JOB ORIENTED SYSTEM.
ORGANIZATIONAL FRAMEWORK FOR
PERSONNEL ADMINISTRATION IN PAKISTAN
•
THE ORGANIZATIONAL FRAMEWORK FOR A CENTRAL
PERSONNEL AGENCY OR FOCAL POINT OF PERSONNEL
MANAGEMENT WITHIN THE FEDERAL GOVERNMENT IS THE
ESTABLISHMENT DIVISION OF THE CABINET SECRETARIAT.
•
THE ESTABLISHMENT DIVISION IS A REPOSITORY OF ALL
REGULATORY POWERS IN RESPECT OF ESTABLISHMENT
MATTERS AND ISSUES NECESSARY DIRECTIONS TO ALL
PERSONNEL AGENCIES WITHIN THE MINISTRIES AND THEIR
DEPARTMENT OFFICE.
•
THE ESTABLISHMENT DIVISION AS PART OF THE CABINET
SECRETARIAT IS USUALLY UNDER THE DIRECT CHARGE OF
THE PRIME MINISTER ALTHOUGH AT TIMES A MINISTER
HAS ALSO CHARGE OF THE DIVISION.
ORGANIZATIONAL FRAMEWORK FOR
PERSONNEL ADMINISTRATION IN PAKISTAN
•
a)
b)
c)
d)
e)
f)
g)
THE ESTABLISHMENT DIVISION IS REQUIRED TO BE CONSULTED BY
OTHER DIVISIONS ON THE FOLLOWING MATTERS:
INITIAL APPOINTMENTS, OTHER THAN THOSE MADE THROUGH THE
FEDERAL PUBLIC SERVICE COMMISSION, IN THE FEDERAL
SECRETARIAT AND ATTACHED DEPARTMENTS.
CHANGE IN THE TERMS AND CONDITIONS OF SERVICE OF FEDERAL
CIVIL SERVANTS.
CHANGE IN THE STATUTORY RIGHTS AND PRIVILEGES OF ANY FEDERAL
GOVERNMENT SERVANTS.
SELECTION OF AN OFFICER SERVING IN CONNECTION WITH THE
AFFAIRS OF A PROVINCE FOR APPOINTMENT IN THE FEDERAL
SECRETARIAT.
EXPENDITURE PROPOSALS RELATING TO THE FINANCE DIVISION
INTERPRETATION OF RULES AND ORDERS MADE BY THE
ESTABLISHMENT DIVISION
RULES FOR RECRUITMENT TO ANY POST OR SERVICE, INCLUDING THE
QUESTION OF REMOVING A POST FROM THE PURVIEW OFF THE
FEDERAL PUBLIC SERVICE COMMISSION FOR THE PURPOSE OF
RECRUITMENT.
LEGAL FRAMEWORK
•
IN SECTION 240 OF THE CONSTITUTION OF PAKISTAN,
1973, PROVISION HAS BEEN MADE FOR REGULATING THE
APPOINTMENT AND CONDITIONS OF SERVICE OF THE
GOVERNMENT EMPLOYEES.
•
THE CIVIL SERVANTS ACT 1973 APPLIES TO ALL
GOVERNMENT SERVANTS WHO ARE HOLDERS OF CIVIL
POSTS IN CONNECTION WITH THE AFFAIRS OF THE
FEDERATION EXCLUDING THOSE WHO ARE:
i. ON DEPUTATION FROM THE PROVINCES
ii. PERSONS EMPLOYED ON CONTRACT OR ON A WORKCHARGED BASIS.
iii. ‘WORKERS’ OR ;WORKMEN’ AS DEFINED UNDER THE
FACTORIES ACT, 1934 OR THE WORKMAN COMPETITION
ACT 1923.
LEGAL FRAMEWORK
•
THE ACT DEALS WITH AND PROVIDES THE FRAMEWORK FOR
REGULATING THE FOLLOWING MATTERS:
a) THE TENURE OF OFFICE OF CIVIL SERVANTS
b) APPOINTMENTS
c) PROBATION AND CONFIRMATION
d) SENIORITY AND PROMOTION
e) POSTING AND TRANSFERS
f) TERMINATION OF SERVICE
g) REVERSION TO A LOWER GRADE OR SERVICE
h) RETIREMENT FROM SERVICE
i) EMPLOYMENT AFTER RETIREMENT
j) CONDUCT AND DISCIPLINE
k) PAY AND LEAVE
l) PENSION, GRATUITY AND PROVIDENT FUND
m) BENEVOLENT FUND AND GROUP INSURANCE
n) APPEALS AND REPRESENTATIONS.
PRESENT STRUCTURE OF THE
SERVICES
•
ALL THE “GENERALIST” SERVICES AND POSTS HAVE BEEN
CATEGORIZED IN THE FOLLOWING OCCUPATIONAL GROUPS:
1)
2)
3)
4)
5)
6)
7)
8)
9)
ACCOUNTS GROUP
COMMERCE AND TRADE GROUP
DISTRICT MANAGEMENT GROUP
ECONOMISTS AND PLANNERS GROUP
FOREIGN AFFAIRS GROUP
CUSTOMS AND EXCISE GROUP
INCOME TAX GROUP
INFORMATION GROUP
MILITARY LANDS AND CANTONMENT GROUP
PRESENT STRUCTURE OF THE
SERVICES
10) OFFICE MANAGEMENT GROUP
11) POLICE GROUP
12) POSTAL GROUP
13)SECRETARIAT GROUP
AFTER INTRODUCTION OF THE ADMINISTRATIVE REFORMS,
1973, ONE OF THE MOST IMPORTANT STEPS TAKEN BY THE
GOVERNMENT WAS TO UNIFY THE VARIOUS SERVICES UNDER
THE FEDERATION INTO THE FOLLOWING THREE UNIFIED
GRADES:
1) ALL PAKISTAN UNIFIED GRADES
2) FEDERAL UNIFIED GRADES
3) PROVINCIAL UNIFIED GRADES
PRESENT STRUCTURE OF THE
SERVICES
• ALL PAKISTAN SERVICES , EXISTING BEFORE THE
ADMINISTRATIVE REFORMS, HAVE BEEN UNIFIED,
NAMELY THE ALL-PAKISTAN UNIFIED GRADES WHICH
INCLUDE THE FOLLOWING:
1) THE DISTRICT MANAGEMENT GROUP
2) THE POLICE GROUP
3) THE SECRETARIAT GROUP
CIVIL SERVICE RECRUITMENT IN
PAKISTAN
•
THE CIVIL SERVICE IN PAKISTAN HAS A LONG TRADITION
OF RECRUITMENT ON THE BASIS OF MERIT COMING DOWN
FROM THE BRITISH COLONIAL PERIOD.
•
IT IS INTERESTING STATE THAT WHILE THE BRITISH
INTRODUCED THE SYSTEM OF OPEN COMPETITION FOR
APPOINTMENT TO THE CIVIL SERVICE OF INDIA IN 1853, IT
WAS NOT UNTIL 1870 THAT THE SYSTEM OF OPEN
COMPETITION WAS EXTENDED TO OTHER SEGMENTS OF
THE ADMINISTRATION.
CRITERIA FOR RECRUITMENT
•
THE GOVERNMENT HAS SPECIFIED PROVINCIAL AND
REGIONAL QUOTAS FOR DIRECT RECRUITMENT TO ALL
POSTS UNDER THE FEDERAL GOVERNMENT. THESE QUOTAS
FOR RECRUITMENT ARE:
•
•
•
•
•
MERIT QUOTA……………………………………………………….10%
PUNJAB(INCLUDING ISLAMABAD)……………………....50%
SINDH (INCLUDING KARACHI)……………………………..19%
N.W.F.P …………………………………………………………......11.4%
BALOUCHISTAN…………………………………………………..3.5%
A CANDIDATE FOR APOINTMENT MUST BE IN GOOD MENTAL
AND BODILY HEALTH AND FREE FROM ANY PHYSICAL DEFECT
LIKELY TO INTERFERE WITH THE HIS DUTIES.
APPOINTING AUTHORITY
•
THE APPOINTING AUTHORITY FOR THE POSTS IN THE
VARIOUS GRADES IS AS FOLLOWS:
GRADES
APPOINTING AUTHORITY
1. GRADE 20 AND ABOVE
PRESIDENT / PRIME MINISTER
2.GRADES 17 TO 19
ESTABLISHMENT SECRETARY
3. GRADE 3 TO 16
SECRETARY OF THE MINISTRY OR DIVISION
CENCERNED OR HEAD OF DEPARTMENT
4. GRADE 1 AND 2
DEPUTY SECRETARY OR HEAD OF DEPARTMENT OR
HEAD OF OFFICE
MAIN RECRUITING AGENCIES
• THE APPOINTING AUTHORITIES FOR EACH CATEGORY
OF POSTS HAVE ALREADY BEEN STATED BEFORE.
• IN ORDER TO RATIONALIZE THE PROCEDURE FOR
SELECTION, COMMISSIONS, BOARDS ETC HAVE BEEN
CONSTITUTED FOR CONDUCTING THE PROCESS OF
RECRUITING ACCORDING TO THE RULES AND
REGULATIONS.
• ONE OF THE MOST IMPORTANT RECRUITING
AGENCIES IS THE FEDERAL PUBLIC SERVICE
COMMISSIONS.
THE CENTRAL SUPERIOR
SERVICES EXAMINATION
•
•
•
•
•
•
RECRUITMENT TO THE VARIOUS OCCUPATIONAL GROUPS IS
MADE ON THE BASIS OF A COMBINED COMPETITIVE
EXAMINATION.
THIS EXAMINATION IS USUALLY CALLED THE CENTRAL
SUPERIOR SERVICES EXAMINATION.
THIS EXAMINATION IS HELD EVERY YEAR BY THE FEDERAL
PUBLIC SERVICE COMMISSION.
ACCORDING TO THE RULE THE MINIMUM QUALIFICATION
REQUIRED FOR THIS EXAMINATION IS A BACHELOR’S
DEGREE IN THE SECOND DIVISION.
BUT IF A CANDIDATE WITH 3RD DIVISION IN THE
BACHELOR’S DEGREE HAS OBTAINED A HIGHER DIVISION IN
HIS MASTER’S DEGREE IS CONSIDERED ELIGIBLE.
THE AGE LIMIT IS 21 TO 28 YEARS, RELAX ABLE UP TO 30
YEARS UNDER CERTAIN CONDITIONS.
TRAINING
• THE TRAINING OF CIVIL SERVANTS HAS ALWAYS
BEEN CONSIDERED OF GREAT IMPORTANCE FOR ANY
EFFICIENT ADMINISTRATION.
• DURING THE BRITISH COLONIAL RULE, AND EVEN
FOR SOME YEARS AFTER INDEPENDENCE THE
TRAINING OF CIVIL SERVANTS IN INDIA AND
PAKISTAN WAS MOSTLY ON THE JOB PRECEDED BY
SHORT COURSE OF TRAINING IN THE RESPECTIVE
FIELD.
• AFTER INDEPENDENCE, IN 1960 GREATER
IMPORTANCE WAS GIVEN TO TRAINING IN PAKISTAN.
• CIVIL SERVANTS TRAINING CAN BE DIVIDED INTO
TWO PHASES:
(i) PRE-SERVICE TRAINING
(ii) IN-SERVICE TRAINING
PRE-SERVICE TRAINING
•
•
1)
2)
3)
4)
5)
6)
a)
b)
c)
PRE-SERVICE TRAINING IS IMPARTED TO THE CANDIDATES
BEFORE THEY ARE POSTED TO THEIR DUTIES.
THE OBJECTIVES OF THE TRAINING ARE:
TO PREPARE THE PROBATIONERS FOR INDUCTION INTO PUBLIC
SERVICE
TO EDUCATE THEM IN THE BASIS OF ISLAM AND PROVIDE
THEM AN ISLAMIC ORIENTATION.
TO PROMOTE AMONGST THEM MUTUAL UNDERSTANDING
TO MOTIVATE THEM FOR PUBLIC SERVICE
TO TEACH THEM A NATIONAL OUTLOOK AND DEVELOP A SENSE
OF INVOLVEMENT IN NATIONAL AND LOCAL PROBLEMS.
TO IMPART BASIC KNOWLEDGE OF :
ADMINISTRATION AND MANAGEMENT
STRUCTURE AND FUNCTIONING OF GOVERNMENT
ECONOMIC AND SOCIAL PLANNING
IN-SERVICE TRAINING
•
THE TRAINING IS IMPARTED TO CIVIL SERVANTS WHO HAVE
ALREADY PUT IN SOME YEARS OF SERVICE IN THE
GOVERNMENT.
•
THE MAJOR TRAINING INSTITUTIONS ARE THE NATIONAL
INSTITUTE OF PUBLIC ADMINISTRATION AT KARACHI AND
LAHORE.
•
THE OFFICERS OF THE LEVEL OF GRADES 18-19 RECEIVE INSERVICE TRAINING IN THE IN THE NIP’S AND THE TURAL
ACADEMY PESHAWAR.
GRADE 19-20 OFFICERS ARE TRAINED AT THE PAKISTAN
ADMINISTRATIVE STAFF COLLEGE, LAHORE.
•
•
THE MAIN OBJECTIVE OF THIS TRAINING IS TO PROVIDE
REFRESHER COURSES TO THE CIVIL SERVANTS AWAY FROM
THEIR USUAL SUTTOUNDINGS.
PERFORMANCE EVALUATION
•
•
1)
2)
3)
4)
5)
IN PAKISTAN THE SYSTEM OF PERFORMANCE EVALUATION OF
A CIVIL SERVANT IS USUALLY JUDGED ONCE IN A YEAR AND
RECORDED ON A PERFORMA, CALLED ANNUAL CONFIDENTIAL
REPORT (ACR).
THE MAIN OBJECTIVE OF THESE ACR ARE:
THE ACR PROVIDE AN AUTHENTIC RECORD OF THE
PERFORMANCE OF A CIVIL SERVANT WHICH HELPS IN
ASSESSING HIS QUALITIES.
IT IS AN IMPORTANT BASIS FOR SELECTION TO A NEW
APPOINTMENT
IT IS RELIED UPON BY THE APPROPRIATE SELECTION
COMMITTEE FOR ASSESSING HIS SUITABILITY FOR
PROMOTION.
IT PROVIDED USEFUL INFORMATION REGARDING THE
APTITUDE OF THE INCUMBENT FOR CERTAIN TYPES OF JOB
IT IS AN IMPORTANT INSTRUMENT FOR ALMOST ALL STAGES IN
CAREER PLANNING OF CIVIL SERVANTS.
PROMOTION
IN SECTION 9 OF THE CIVIL SERVANTS ACT 1973, THE
PRINCIPLES OF PROMOTION AS FOLLOWS:
1) A CIVIL SERVANT POSSESSING SUCH MINIMUM
QUALIFICATION AS MAY BE PRESCRIBED SHALL BE
ELIGIBLE FOR PROMOTION TO A POST FOR THE TIME BEING
RESERVED UNDER THE RULES FOR DEPARTMENTAL
0PROMOTION IN HIGHER GRADES.
2) A POST REFERRED TO IN SUB-SECTION (1) MAY EITHER BE
A SELECTION POST TO WHICH PROMOTIONS SHALL BE
MADE AS MAY BE PRESCRIBED
A) IN THE CASE OF A SELECTION POST, ON THE BASIS OF
SELECTION ON MERIT
B) IN THE CASE OF A NON-SELECTION POST, ON THE BASIS OF
SENIORITY.
•
PROMOTION
•
•
•
•
•
THE CRITERION FOR PROMOTION TO MOST OF THE POSTS
IN THE GOVERNMENTS IS MERIT, ALTHOUGH SENIORITY IS
ALSO TAKEN INTO ACCOUNT.
MERIT IS ASSESSED ON THE BASIS OF ACR.
ASSESSMENT OF MERIT OF THE CANDIDATES ELIGIBLE FOR
PROMOTION TO POSTS IN GRADES 2-18 IS MADE BY THE
DEPARTMENTAL PROMOTION COMMITTEE.
CASES FOR PROMOTION AND TRANSFER TO POSTS IN
GRADES 19-21 ARE CONSIDERED BY THE CENTRAL
SELECTION BOARD FOR RECOMMENDATIONS.
THE CENTRAL SELECTION BOARD FOR PROMOTIONS TO
POSTS IN GRADE 21 PRESENTLY CONSISTS OF FEDERAL
MINISTRIES AND IS PRESIDED OVER BY THE SENIOR MOST
AMONG THEM.
DISCIPLINE AND CONDUCT
ACCORDING TO RULE 3 OF THE RULES, DISCIPLINARY PROCEEDINGS
CAN BE INITIATED AGAINST A GOVERNMENT SERVANT IF IN THE
OPINION OF THE AUTHORITY HE:
a) IS INEFFICIENT OR HAS CREATED TO EFFICIENT
b) IS GUILTY OF MISCONDUCT
c) IS CORRUPT, OR MAY REASONABLY BE CONSIDERED CORRUPT
BECAUSE:
•
i)
HE IS, OR ANY OF HIS DEPENDENTS OR ANY OTHER PERSON THROUGH
HIM OR HIS BEHALF IS, IN POSSESSION OF PROPERTY
DISPROPORTIONATE TO HIS KNOWN SOURCES OF INCOME
ii) HAS ASSUMED A STYLE OF LIVING BEYOND HIS OSTENSIBLE MEANS
iii) HAS A PERSISTENT REPUTATION OF BEING CORRUPT
D) IS ENGAGED, OR IS REASONABLY SUSPECTED OF BEING ENGAGED, IN
SUBVERSIVE ACTIVITIES, OR IS REASONABLY SUSPECTED OF BEING
ASSOCIATED WITH OTHERS OR GUILTY OF DISCLOSURE OF OFFICIAL
SECRETS TO ANY UNAUTHORIZED PERSONS.
DISCIPLINE AND CONDUCT
•
IF ANY OF THE PREVIOUS MENTIONED GROUND IS ESTABLISHED
AGAINST A CIVIL SERVANT HE CAN BE AWARDED FOLLOWING
PENALTIES:
• MINOR PENALTIES:
i) CENSURE
ii) WITHHOLDING; FOR A SPECIFIC PERIOD, OF PROMOTION OR
INCREMENT. OTHERWISE THAN FOR UNFITNESS FOR PROMOTION.
iii) STOPPAGE, FOR A SPECIFIC PERIOD, AT AN EFFICIENCY BAR IN THE
TIME-SCALE, OTHERWISE THAN FOR UNFITNESS TO CROSS SUCH BAR
iv) RECOVERY FROM PAY OF THE WHOLE OR ANY PART OF ANY LOSS
CAUSED TO GOVERNMENT BY NEGLIGENCE.
MAJOR PENALTIES:
i) REDUCTION TO A LOWER POST OR TIME-SCALE, OR TO A LOWER STATE
IN TIME-SCALE
ii) COMPULSORY RETIREMENT
iii) REMOVAL FROM SERVICE
iv) DISMISAL FROM SERVICE
APPEALS
THE STATUTORY POSITION REGARDING APPEALS HAS BEEN
PROVIDED IN SECTION 22 OF CIVIL SERVANT ACT 1973 AS
FOLLOWS:
1) WHERE A RIGHT TO PREFER AN APPEAL OR APPLY FOR
REVIEW IN RESPECT OF ANY ORDER RELATING TO THE
TERMS AND CONDITIONS OF HIS SERVICE IS PROVIDED TO
A CIVIL SERVANT UNDER ANY RULES AN APPLICATION
SHALL EXPECT AS MAY BE OTHERWISE PRESCRIBED, BE
MADE WITHIN THIRTY DAYS OF THE DATE OF SUCH ORDER.
2) WHERE NO PROVISION FOR APPEAL OR REVIEW EXISTS
UNDER THE RULES IN RESPECT OR ANY ORDER, A CIVIL
SERVANT AGGRIEVED BY ANY SUCH ORDER MAY, WITHIN
THIRTY DAYS OF THE COMMUNICATION TO HIM OF SUCH
ORDER, MAKE A REPRESENTATION AGAINST IT TO THE
AUTHORITY NEXT ABOVE THE AUTHORITY WHICH MADE
THE ORDER.
•