D E M O C R A C Y LOCAL GOVERNMENT IN PAKISTAN Phone: +92 51 2850912-6 Fax: +92 51 2850917 Email: [email protected]Website: www.fes-pakistan.org Friedrich-Ebert-Stiftung, Pakistan @FES_PAK Responsible Philipp Kauppert Resident Director, Friedrich Ebert Stiftung Pakistan Friedrich Ebert Stifting Pakistan No. 10-A, Street No. 31, F-8/1 Islamabad, Pakistan Commercial use of all media published by the Friedrich-Ebert-Stiftung (FES)is not permitted without the written consent of the FES. Disclaimer: The views expressed in this publication are not necessarily those of the Friedrich-Ebert-Stiftung Sangat Development Foundation No.26-C/1,Faisal Town Lahore,Pakistan Phone: +92 423 5165147 Email: [email protected]By M. Zahid Islam
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D E M OCR ACY
LOCAL GOVERNMENT IN PAKISTANPhone: +92 51 2850912-6Fax: +92 51 2850917Email: [email protected]: www.fes-pakistan.orgFriedrich-Ebert-Stiftung, Pakistan@FES_PAK
Friedrich Ebert Stifting PakistanNo. 10-A, Street No. 31, F-8/1Islamabad, Pakistan
Commercial use of all media published by the Friedrich-Ebert-Stiftung (FES)is not permitted without the written consent of the FES. Disclaimer: The views expressed in this publication are not necessarily those of the Friedrich-Ebert-Stiftung
Sangat Development FoundationNo.26-C/1,Faisal TownLahore,PakistanPhone: +92 423 5165147Email: [email protected]
By M. Zahid Islam
A publication by:
In partnership with
&
Compilation & Editing: Mona Elizay
Coordination: Sidra Saeed Layout: AGLOW Graphics, Islamabad Copyrights: Friedrich Ebert Stiftung (FES), Pakistan Year of Publication: 2015
Cover Photo & Designing: Mona Elizay
ISBN: 978-969-9675-04-1
Author: M. Zahid Islam
Local Government in PakistanLocal Government in PakistanI ii
Democratic culture is not only manifested in elections, but should be regarded as a
continuous process of interactions between citizens, their elected representatives
and the state in its different institutions. In order to deepen democratic culture;
processes of deliberations amongst all citizens – regardless of their ethnic, religious
or political identities – are required. These are means to address the deficiencies of
the social contract, which is needed to find ways to a peaceful future of the country.
Since the 18th Amendment to the Constitution in 2010, a process of devolution of
power has been revitalized. Whereas many subjects have been taken up by the
different provincial governments with a lot of enthusiasm, the picture is less
optimistic regarding the system of Local Governments.
As a German Political Foundation committed to the values of Social Democracy, we
believe that democratic local governments constitute a crucial pillar in a truly
representative and inclusive political system. This is not only limited to managing the
lowest level of administration in terms of accountability and transparency, but can
also be extended to providing more spaces for initiatives in many core policy areas.
International examples have shown serious improvements in such important areas
as water, sanitation, education and health through participative systems of local
governance.
This book has been designed to analyze the system of local governments related to its
history, functions and other key features from 1947 until the beginning of 2015. Since
is a controversial subject that is moving at different pace in the provinces in 2015, not
all recent developments could be covered at the same depth. I sincerely hope that this
book becomes a useful tool and reference document for all citizens engaged in
deepening the processes of democratization and devolution of power in Pakistan. I
want to express my gratitude to Sidra Saeed, Programme Officer - FES for
coordinating this publication.
Philipp Kauppert
Resident Director
Friedrich-Ebert-Stiftung (FES) Pakistan
FOREWORDCONTENTS
Chapter 6: NEW DEVELOPMENTS IN RECENT PERIOD
Chapter 1: INTRODUCTION
Chapter 2: DEVELOPMENT STRATEGIES IN PAKISTAN
Chapter 3: KEY ISSUES IN GOVERNANCE
Chapter 4: BUILDING LOCAL GOVERNMENT INSTITUTIONS
Chapter 5: SYSTEM IN PAKISTAN
BASIC ISSUES REGARDING LOCAL GOVERNMENT
FOREWORD
NOTE FROM THE AUTHOR
FRIEDRICH EBERT STIFTUNG (FES)
SANGAT DEVELOPMENT FOUNDATION
69
01
07
13
19
57
ii
iii
v
vi
TABLE AND CHARTS 99
Local Government in Pakistan ivLocal Government in Pakistaniii
previous Devolution Plan but practically only Balochistan government had enacted in
year 2010 a new law of local government whereas other provinces could not even
formulate a new model till 2012, however they enacted new local government laws in
2013 but interestingly these governments could not hold new law in place and the old
system has been continuing with few amendments with sole powers to the
administrators, the state functionaries from civil services.
There might be certain reasons and motives behind 'junta's' move, but that is a
historical fact that we have had five democratically elected governments but not even
one of them has ever tried to introduce a new version of local government. Most of
these popular governments usually have maintained the old system introduced by
the military junta but with minor changes and without making any fundamental
amendments. However, during 1975 the PPP government had enacted a new Peoples
Local Government Act, but could not be enforced. Similarly, during 1996 the Punjab
government of PML-N also enacted a new law but Lahore High Court had declared it
against the spirit of the constitution. In basic framework both of these laws were not
different to previous models of military governments.
Besides these facts, the local government institutions always proved to be the best
primary institutions for political training. A large number of political activists came
from these local councils. It is a fact that mostly our sitting legislators are the former
heads or members of these local councils, who have been inducted into mainstream
politics after serving in these local councils.
In this book, I have tried to elaborate some key issues regarding local governance.
Moreover, to best of my efforts, short histories of local government development in
Pakistan and salient features of various models have been traced as well.
Some text of this book related to the history and issues of local government in
Pakistan has been taken from my previous book named 'Development of Local
Government in Pakistan (1947-2011): Issues, Perspectives, Proposals'. I have
collected maximum information from concerned circles but some information may
require more clarifications. Therefore suggestions and comments from the readers
will be encouraged. I am grateful to FES team in Pakistan for their continuous support
and guidance in developing this publication.
M. Zahid Islam,
Executive Director,
Sangat Development Foundation
NOTE FROM THE AUTHOROnce, a great thinker said, people make history but they could not make history
according to their ideals, there are always many constraints, hurdles and limitations
to turn their dreams into reality but they always are successful in achieving partial
positive results. This is absolutely true in case of Pakistan, our people's aspirations of
having a true democracy. Despite long term military dictatorships people's struggle
for a strong democratic government always remain in forefront of history.
Since the creation of Pakistan, we have many times democratically elected
governments but most of the time these popular governments have close linkages or
background support from the powerful state establishment who often had
intervened directly into the political arena of the country. The army in Pakistan has
seized power four times and has ruled directly and indirectly for more than half of the
total life of the country. Ostensibly, the withdrawal of junta rule was followed by
introducing representative democratic set-ups, where elected legislatures, cabinets,
political parties, an independent and relatively free press and other symbols essential
for democracy were visible players, but the objective reality of Pakistani politics
remained unchanged. The civil society plays little role in determining key policy
decisions, which are made elsewhere.
Local Government in Pakistan remains an area of prime concerns for the military
rulers. Each one of them had introduced one particular system that remained in
practice for a long period; even in the time of civilian government the system of local
government remains the same. For example, our early governments could not
formulate any system of local governance till 1958, when first dictator General Ayub
Khan had introduced a new system of local government; 'The Basic Democracy', that
had been in place for nearly two decades, till third military dictator Gen. Zia-ul-Haq
had changed it with a new one in 1979. In spite of the fact that during these two
decades, there was one powerful civilian government of Pakistan People Party, first
ever democratically elected popular government of Mr. Zulfiqar Ali Bhutto but
throughout its tenure the local government system was the same as of Basic
Democracy of the first martial law dictator. The system of local government
introduced by third military ruler Gen. Zia-ul-Haq had been in practice till 2000. Then
fourth military ruler Gen. Pervez Musharraf came to power who once again has
introduced a new system of local government, 'The Devolution Plan'. Very
interestingly that system is continuing till date in an amended form. Besides the fact
that all sitting federal and provincial elected governments have totally rejected
Local Government in Pakistan viLocal Government in Pakistanv
Friedrich Ebert Stiftung (FES)The Friedrich-Ebert-Stiftung (FES) is a German non-profit organization committed to
the values of Social Democracy. It was founded in 1925 as a political legacy of
Germany's first democratically elected president, Friedrich Ebert. To this day, FES
follows his mission to promote freedom, solidarity and social justice through the
political process in Germany and abroad
At present, FES maintains offices in over 100 countries worldwide, of which 15 are in
Asia.
FES Pakistan has been working in the country in cooperation with local organizations
since the 1980s. Its programmes aim at strengthening democratic institution from
national to local level; increasing the political participation of youth, enhancing
women's empowerment and gender equality; promoting free and professional
media; advocating social justice in the formal and informal economy; and enhancing
regional cooperation for peace and development.
Sangat Development Foundation SANGAT Development Foundation (SDF) Lahore was formed in 2013 by a group of
social and political activists to promote social democracy, peace, harmony, tolerance,
human rights, and for the empowerment of the most neglected and political
educators. Its main program focus aimed to promote an informed citizenry in
Pakistan and strengthening of democratic institutions. The SDF formally registered
with government department as a society in early 2014. Its founders have been
engaged with social sector for a long time. Their working in the fields of governance
related programs brought SDF one of the most active well-recognized and
acknowledged names in the area of local governance. The SANGAT Development
Foundation is a membership based society working in 10 districts of Punjab. SDF have
developed a large variety of I.E.C literature and training manuals, published by many
other civil society organizations. The SDF have set-up a Local Government Resource
Centre in order to facilitate the elected local government councilors and is publishing
a quarterly newsletter on devolution and local governance.
SANGAT Development Foundation envisions believes in struggling jointly to
establish a just society in Pakistan that is non-discriminatory, equitable and
democratic and that would ensure equal rights and opportunities for all citizens
irrespective of faith, gender, race and ethnicity in order to live without any
harassment and prejudices, having full freedom of expression, association, moving
and adapting any profession according to own will.
Sangat's core values include neutrality, inclusion, integration, transparency,
accountability, robust methodology and non-discriminatory practices.
Local Government in Pakistanvii
INTRODUCTION
Chapter 1
Local Government in Pakistan 3Local Government in Pakistan2
The local government system is not a new concept in Pakistan. Although the old
colonial masters introduced some other form of local level governance in the
eighteenth century, but the Great Mughals were the first who had introduced
'Zamindari (Zamindari from words “zamindar on the Indian subcontinent was an
aristocrat, typically hereditary, who held enormous tracts of land and held control
over the peasants, from whom the zamindars reserved the right to collect tax.)
system' in the Sub-Continent, which was a primitive form of the local governance.
They incorporated villages as an administrative unit. They also had nominated
Zamindar chiefs to collect revenue on behalf of their kingdom. They formed early
'Panchayats'(an elective village council) with nominated members from elders of
Zamindar families of one particular area.
These were designated with following functions:
?Maintain law and order in the area of their control
?Perform some judiciary functions
?Provide security to the property and life of the residents
?Work as law enforcing agency
?Facilitation in collecting revenue for the government
?Provision of some social services as drinking water, etc
Besides these socially engineered arrangements, there were some sort of other tribal
formats, like 'Jirgas' composed of the chiefs of residing tribes and ethnic entities. The
major functions of these Jirgas were settlement of disputes and defending their
common interests, but to some extent a few municipal and local administrative
functions were also included in their compulsory obligations.
The East India Company had introduced first form of formal local institutions in 1688
by setting up Municipal Committee in Madras now called Chennai. After 1765, the
company virtually gained both the rights of collecting revenues and running civil
administration in Bihar, Orissa and Bengal, and then they started institutionalizing
governmental set-ups.
There is not any standard definition of local government. In some countries this is an
important tier of governance at grass root, whereas in other countries local
government institutions are considered merely an administrator arrangements to
perform some of the government tasks at local level. However, local government
institutions are the administrative units in a larger governmental frame. Their
functions, roles, and responsibilities are not similar to state institutions but to redress
daily needs of common people, more particularly local government institutions
usually perform municipal functions. There are many terms to identify local
government institutions, such as, counties, communes, perish, municipal
committees, districts, towns, unions, local boards. In Pakistan we had local Boards,
local Bodies, local councils, local government institutions, etc. There are many types
but similar forms, the form of people's self-governance over a particular geographic
area.
In political science, local government is considered as semi-government institutions,
self-governed by the residents and functioning under federal, central or country
government through some directives, regulations and legal bindings. In other words,
local governments do not possess sovereign powers over that territory under their
control but these should be subjected to any larger government framework.
The real concept of local government can be well explained by the founder of local
government in India, Lord Ripen, “These councils will serve as the school of
democracy”. To a great extent, it has been proved true. The local councils are the
primary institutions to ensure participation of the residents of a particular locality,
under their own supervision, to regulate all aspects of their routine daily life. Through
participation in elections, and later by engagements in various functions or activities,
carrying out by local level government institutions with regard to people's everyday
needs, these institutions may serve as model training schools for the citizen to learn
the skills of self-rule. Besides solid information and knowledge about the functions
and responsibilities of local councils, we can assume that every local council is a form
of the government of a particular area, which provides people with necessary civic
CONCEPT OF LOCAL GOVERNMENT TRADITIONAL SETUPS AND EMERGENCE OF MODERN LOCAL GOVERNMENT
TRADITIONAL SETUPS AND EMERGENCE OF MODERN LOCAL GOVERNMENT
Local Government in Pakistan4
The company took complete control of Punjab after defeating Sikhs in 1849. They
tried to maintain old system of Punchayats with some modifications to it. The old
Zamindars were awarded property rights of land in their possession against their
various services to the company but at the same time small holders of land and the
cultivators were also provided new opportunities to interact with the rulers without
intermediaries. A new system called 'Ryotwari' was introduced and 'Lumberdars'
were inducted into on-going local governance practices. These Lumberdars were
nominated officers to collect revenues and responsible to cooperate with authorities
to run local administration. The main objectives of these types of institutions
remained to collect revenues and to maintain law and order at local level.
After the mutiny of 1858 it became difficult for the company to maintain law and
order, therefore it became inevitable to share power with local people. That was the
period when local governance started to take its shape. In the background of
distressed political situation of India, the traditional local level administrative
arrangements throughout the country had remained relatively under-developed and
continued in a primitive nature until 1881.
In the year 1873, the Punjab Municipal Act was passed. According to that act, for every
town a committee comprising of 5-7 members was proposed. The main functions
were to maintain city roads, streets and provide municipal services to the residents of
urban centers. Members were not elected but mainly nominated whereas they
usually elected their heads.
During 1882 Lord Rippon had proposed to set up local boards for district level
administration. In the next year Punjab District Boards Act was promulgated and
enforced in 21 out of 31 districts of Punjab. That act provided three tiers of local
governments in rural areas. First tier were district boards set up at district level
comprising of 6 members, mainly nominated, later on some were elected. Second tier
were the 'Zails', formed by joining adjacent villages into one Zail. Third tier remained
the 'Punchayats' at village level. Contemporary urban councils were municipal
committees in main city centers. These were the first generation of local government
institutions in the areas called Pakistan now. Next decade showed further
institutional development in this regard. Much new enactment was witnessed to
streamlining of various tiers of local institutions.
Local Government in Pakistan 5
During first decade of 20th century, these newly formed local governments could not
flourish. On the recommendations of Royal Commission on decentralization, in 1907
the 'Punchayat' Act was passed. Under that act, Punchayats were empowered to hear
certain sort of civil cases. During the next decade, additional legislation was
developed to set up local boards and towns in Punjab and Sindh. After the World War-
1, the nationalist movements in India had gained momentum and the British were
compelled to adapt more reformative measures in governance system. They had
given more powers to local government institutions and this subject was transferred
to the provinces. During 1911, Municipal Act was passed and that was the legal
framework of working municipalities in Pakistan till Basic Democracy introduced in
1959 by the first martial law ruler, Ayub Khan.
DEVELOPMENT STRATEGIES IN PAKISTAN
Chapter 2
Local Government in Pakistan6
Local Government in Pakistan 9Local Government in Pakistan8
During the last 67 years we had adapted various multi-pronged strategies in order to
boost our socio economic developments. All these strategies had worked in either
ways but these affected the natural pace of building local government institutions.
It was the first program financed from abroad and aimed at the following:
To enhance basic services to the rural communities, such as health, education
and water supply
To facilitate rural population in order to raise their income through provision of
vocational trainings and other related means of cottage industrialization, etc
To encourage self-help initiatives and promotion of self-governance at
community levels
To coordinate different government departments and tiers in the overall process
of development
To create such conditions that would encourage well-being of people and higher
development of men and women through social welfare and other recreational
activities
In order to achieve above mentioned objectives, various programs were launched at
all levels of governance. Although Village Agricultural Industrial Development
Program was not directly linked with local government institutions of that time, but
all of its activities were carried out through local government institutions at grass
root. Its national level administration was with the central ministry of health, there
was formed an advisory committee comprising secretary of the ministry of economic
affairs as the convener and representatives of other ministries of health, agriculture,
social welfare, education and public works were its member while the chief
administrator was ex-office secretary of that advisory committee. There was a
1. FOREIGN FUNDED PROGRAMS
Village Agricultural and Industrial Development Program:
(Village AID) 1952-54
hierarchal set up of V-AID but the operational area was called the development area
based on 15 villages in a district. In West Pakistan, 30 V-AID workers were placed
including 5-10 women workers. In order to improve people's participation in each
development area, the village councils were set up with 6-10 members elected by
local villagers. These were not statutory bodies but to act as steering committees. In
addition, youth clubs were formed everywhere in the development areas named
Chand Tara Clubs. The program had facilitated in promoting new techniques in
agricultural and health sectors, but it also involved people in running their local level
governance related process. At the same time that approach influenced in making a
thought of dependency on foreign aids while indigenous means of development
become too marginalized.
That programe was launched in July 1952 with similar development methodology
aimed at improving life in rural areas. Under the program a group of 50-60 selected
villages was proposed where a comprehensive and integrated series of efforts were
deployed in order to enhance infrastructures facilities, new techniques in farming,
introducing new seeds for cultivation, encouraging more inputs in agriculture, more
credit schemes, water and irrigation betterments, better storage facilities were
supplied by various sources. The main objective was to enhance an overall living of
local residents. Constructing roads building in rural areas, 'Farm to Market' slogans
were on the top of the agenda. Under the program formation of the farmer's
cooperative societies in each village and joining these at 'Markaz' (Central) level was
significant development in respect of self-governance.
In order to boost agricultural outputs, the concept of model farms was introduced.
That was a two- tier system consisted of 'Dehi-Karkun'(village worker) in place of
development officers under previous V-AID. The main objective was to motivate local
community and push them in order to involve them in modernization process so that
their living could be improved. That was a strategy primarily based on the
development through provincial or federal government grants.
Integrated Rural Development Program (IRDP): 1952-
1954
2. PEOPLES' WORKS PROGRAM (PWP) : 1972 -
Local Government in Pakistan 11Local Government in Pakistan10
1975
3. INTRODUCING THE IMPROVEMENT TRUSTS
AND DEVELOPMENT AUTHORITIES
That was another program originally introduced by previous government but re-
formulated by Zulfiqar Ali Bhutto's government in 1972. The program started
simultaneously with IRDP (Integrated Rural Development Program) but the major
difference was, that IRDP was such program totally sponsored by the government
whereas Peoples' Works Program was based on community participation in project
financing too. Under PWP mainly infrastructure development was focused in rural
areas, many small roads and ways were constructed in partnership of local
communities. The project was based on labor-intensive approach that had promoted
community volunteerism. The government was responsible to provide technical skill
and know-how with partial financing facility.
Both of the above strategies had contributed positively in mobilizing local
communities in implementation of their local level developmental projects, to some
extent a large number of local level activists were identified. Moreover, the
community developmental phenomena also contributed in laying down the
foundations for strong local level institutions. But on the other hand these processes
were influenced negatively on building strong institutions of local governments
rather than local government was ignored and parallel means were flourished. That
approach has been visible throughout our recent history.
During military governments more emphases was on induction of local government
models with people's participation in local governance. Their real motives were to
provide people a new sphere of political activity bypassing traditional political
parties. Through that strategy all of military ruler were able to identify successfully a
new generation of political leadership whom they had much influence. In order to
strengthen that new leadership the military government had put more thrust in local
government institutions. They kept on patronizing local government in first few years
but when achieved a reasonable support from other political circles, all of military
dictators had shifted their favoritism to other side. The political leadership came to
power after down fall of every military government so each time history had
witnessed similar happenings, each democratic government who took over power
after military dictator always tried to abolish local government institutions
constituted by the military dictator. At that juncture these civilian democratically
elected governments as first stance always terminated elected local government
represented and adapted such strategies by which local government could be
undermined. Thus the idea of setting up these improvements trusts and forming
specialized development authorities came to the forefront. These trust and
development authorities are being run by the government officials without involving
local residents at any level, so its functioning remain smooth and steady because of
the facts that the ways of planning, assessing real needs, implementation of projects
and other activities do not acknowledge the real aspirations of local residents,
therefore decision making has been always easy depending on some key officials and
the popular government usually like that type of obedience.
Existence of these development authorities and the improvement trust in the past has
undermined the importance of local government institutions. During previous
government when these development authorities were under control of district
'Nazimeen' (elected heads of district) but the district councils were not able to access
directly to these authorities whereas the main functions were under their control.
During Zia-ul-Haq government a nominated 'Majlis-e-Shoora' (An advisory council or
consultative council) was constituted, comprising political personalities , few
student leaders and some selected individuals from local government institutions.
Majority of them were relatively new entrants into the mainstream politics, whereas a
large numbers of political parties were in opposition. In that scenario, the Majlis-e-
Shoora members needed more support in their constituencies; therefore the military
government initiated system of grants. According to that a lump sum amount was
fixed to be utilized in a particular constituency for any developmental work but upon
the Shoora members advice. The grant was named 'Members Grant' and after Zia-ul-
Haq's downfall was termed as Parliamentarian Grants. Each and every
parliamentarian utilized these special grants in their constituencies bypassing
existing local councils. That practice now has converted as privileges of the
parliamentarians, ostensibly it seems a normal practice but its consequences are
4. DEVELOPMENT THROUGH LEGISLATORS
AND SPECIAL PACKAGES OF THE RULERS
Local Government in Pakistan12
KEY ISSUES IN GOVERNANCE
Chapter 3
Local Government in Pakistan 15Local Government in Pakistan14
Over Developed State Establishment
Stereotype Elected Governments
Pakistan is one of those countries, which inherited imbalances between civil society
and the state-establishment as the logical outcome of their colonial past. These were
the countries, where civil society is less developed as compared to an over-developed
state establishment. Particularly, in Pakistan, the growth of civil society has been
forwarding slowly and occasionally, its evolutionary process was many times
interrupted by the state-establishment. Moreover, our system of governance was
usually designed by the state-establishment. The only exception was the adoption of
our constitution, which is a considered achievement of our civil society, but overall
attitude of our state-establishment towards our constitution has remained
derogatory. One could observe without being prejudice that our state-establishment
has never showed content responses towards the constitutional practices. Apart from
these weaknesses of our civil society, the civil society organizations have been playing
a crucial role in empowering people in general. Now the situation is not the same as it
was in 1977; civil society is gaining power day by day.
Since the death of our first Prime Minister; Mr. Liaquat Ali Khan, most of our early
political governments had bowed to the authority of the state establishment. The civil
and the military authorities remained the key actors playing decisive role in overall
governance of the country. Mr. Zulfiqar Ali Bhutto was the first PM who had tried to
challenge the absolute authority of state-establishment and to some extent he had
curtailed them, but he was also dependent on some sections of bureaucracy to
suppress his political opposition. Mr. Nawaz Sharif also attempted to curtail the
powerful establishment, and also ignored the people's power and used another
faction within the establishment.
Half of our country history has witnessed military dictatorships, whereas the rest had
been governed by the elected civilian representatives. In either ways, the country was
run in such a manner that was not much different in real sense with those of military
styles. Each military dictator came to power by full support of entire army but after a
short period, all four military dictators had to face some sort of confrontation within
their own circles, and each one of them had shifted thrust upon a new group of civilian
allies. After fall of every military dictator, general elections were held and as a result
elected civilian rulers came to power but their governing style remained similar to the
predecessors. Their close supporters and aides had later on disowned them and tried
to disassociate from them after a short time. Because of that practice national,
provincial and local level governance was always affected badly. To some extent
national level system survived due to some external compulsions whereas, local
governments could not be sustained. Each military ruler claimed local government
system as real democratic institutions at grass root level but after consolidating his
power, each one had ignored it. Their main thrust shifted to national and provincial
assemblies. However, local government institutions had become a medium of
discovering new leaderships who emerged later on as national leaders. On the other
hand, every elected government never showed interest in bringing any new concept
in local government system. They always have shown reluctance in holding elections
to local councils. For example, existing governments have rejected district
government system immediately after taking power and have made minor
amendments in the law of 2001, but till now they did not bring new law in its place till
2012.
It is unfortunate that whenever our civilian political forces had the chance to govern
the country, our political leadership usually ignored the democratic principles and
the core values. Instead of empowering civil society they always strengthened state
institutions by ignoring the citizens. Most of our rulers have tried to remain in
government by getting absolute powers in their hands. As a result we Pakistanis do
not have a true concept of local self-government, decentralization and participatory
democracy always remains as sweet dreams. On the contrary, military rulers had
developed the prevailing local government system but each time they have their
ulterior motives behind. During the late 90's, the local government institutions had
been highly centralized, either run by the nominated administrators, or by elected
representatives but totally controlled by the state authorities. The provincial
governments usually have tried to place local councils in suspension or working with
improper functions, misusing and exploiting the resources of the local governments.
During the last tenure, government had tried to revert the old traditions by
introducing new form of local government. But its new idea had same strategy, that is:
initiating a reformative system of devolving powers by highly centralized mechanism.
Highly Centralized and Controlled Local
Government System
CONCEPT OF LOCAL GOVERNMENT
Local Government in Pakistan 17Local Government in Pakistan16
mentioned in chapter 2, “Principles of Policy”. It is stated in Article 32: “Promotion of
Local Government Institutions; the State shall encourage local government
institutions composed of elected representatives of the area concerned. And in such
institutions special representation will be given to peasants workers and women".
Similarly in chapter-3, “The Provincial Governments” Article 140-A was added firstly
through Legal Framework Order of 2002 and then by the 18th amendment to the
constitution, it states that “Each province shall, by law establish a local government
system and devolve political, administrative and financial responsibility and
authority to the elected representatives of the local governments”. After the 18th
amendment in 1973 constitution, each province is bound to establish by law a local
government system and according to sub-section-1 the Election Commission of
Pakistan has been empowered to conduct local government elections.
For all those areas, which fall under the jurisdiction of federal government, there are
separate local government laws for each of them but enacted by the federation. The
Islamabad Capital Territory (ICT) never had local government institutions except for
the union councils in rural areas. In 2002, National Reconstruction Bureau (NRB) had
proposed a law for the capital city but federal government did not agree on it, that was
an issue of conflict between NRB former chairman and the Chief Executive Officer
(CEO) of the government, but under pressure of the Supreme Court a new law was
enacted in 2013 but could not be enforced. For all cantonments of Pakistan we have
'Cantt Boards' constituted under Pakistan Cantonment Board Act, 1924. According to
that act a sitting army officer; usually the station commander is the president while
elected person is vice-president. For the last many years there is no elected
representation, but that again is the apex court that compelled ministry of defense for
modified enactment. In the Federally Administrated Tribal Areas (FATA), at the
moment there are not any elected local councils but there is a separate law. In Azad
Jammu and Kashmir (AJK), there is an older law and in Northern Areas (now granted
autonomy by instituting autonomous status and changing its name to Gilgit-Baltistan,
a local government law has been enforced which is a copy of local government system
of 1979.
After every martial law in the country, the dictators tried to get some legal and
constitutional coverage. Under same legal coverages, the local government system
was sustained for some time, but as soon as the legal bindings were over local
government system could not be sustained. The previous federal government under
Gen. Pervez Musharraf had protected local government system 2001 and put it under
protection with conditions of obtaining prior consent of the president of Pakistan
The slogan raised at that time was “devolution of power” whereas, they were
devolving powers through centralized supra constitutional apparatus; the National
Reconstruction Bureau (NRB).
'Decentralization' and 'Devolution' are the terms that need some clarification.
'Decentralization' is the break-up of power to the subordinate departments from top
to bottom and 'Devolution' is the form of a government based on sharing power with
lower tiers. Traditionally, local government is considered a major form of
decentralization of powers to lower tiers called counties, the districts or the towns. In
these setups overall authority vests with central or federal governments whereas
local level institutions are delegated with some powers. In some of the developed
countries local government is a specific form of government functional at grass root
level, which reflects devolution of powers in its true meanings. In those countries
functions of various tiers are defined separately. Since Pakistan is a federal republic,
devolution of power and authority is necessary to maintain equilibrium amongst the
federal governments and its federating units. Unfortunately, the federal government
in Pakistan during military rule has turned into a central government and it was
superseding in total authority. In the original version of the Constitution of 1973, the
subject of local government had never been mentioned neither in the federal lists nor
in the concurrent lists. This meant the provinces have exclusive right to legislate
about local government but every time federal government developed a particular
model and asked provincial government to legislate accordingly and they, federal
government tried to maintain a supervisory role in their hands. Thus, as a result local
government's institutions remain as local departments just to execute the orders of
provincial governments. In Pakistan people do not seem to notice the presence or
absence of local government institutions. This was mainly due to alienation of the
people in running of local institutions.
According to the Constitution of Pakistan, the subject of local government is
Decentralization in Authority & Devolution of
Powers
Legal and Constitutional Status of Local
Government
Local Government in Pakistan18
BUILDING LOCAL GOVERNMENT INSTITUTIONS
Chapter 4
before any amendments to be made by any provincial government. Local government
laws are placed under clause 27-30 of the 6th Schedule of 1973 constitution, but that
bar has been over by the end of December 2009.
Local government related issues are the most neglected and less important agenda of
our mainstream political parties. None of the parties has any clear-cut official
position on key issues in local governance. Besides the fact that some of the parties
have lot of stakes in local government elections, there is not mentioned too much in
their manifesto about related electoral issues. Our history shows that whenever a
political party got a chance to gain power, efforts to strengthen local government was
not their first priority; instead it delayed fresh elections of prevailing institutions. For
example during the government of Mr. Z. A. Bhutto, the first ever elected governments
in the country local government elections were never held during his 7 years tenure.
Similarly, in 80's and 90's government run by Pakistan Peoples Party (PPP)
maintained the previous record of not holding local government elections. Till date,
there are only two elections held during regimes of Pakistan Muslim League- Nawaz
(PML-N) the second largest political party. Contrary to that, the military governments
have maintained continuity in holding local government election at specified
intervals. More interestingly every time as a first reaction many political parties had
rejected the proposition of holding local government elections but later on each one
of them had issued tickets to candidates irrespective of the elections were held on
non-party basis. Whereas, some of the parties that passed local government laws also
advocated and recommended non-party elections.
Besides that casual attitude, there are more serious concerns that should be debated.
The prevailing political culture does not reflect democracy in true sense. The misuse
and abuse of power is very common. Awarding of party tickets for elections and
nominations as candidates is not a transparent method that needs more restrictions
on nepotism in that process. Finally political parties should debate and develop a
model of local governance in the framework of their party ideology and the
manifestoes should be consisted of something new about local government not
merely as slogans, but in depth an elaboration to governance fundamentals.
Party Politics and Political Culture
Local Government in Pakistan 21Local Government in Pakistan20
After the creation of Pakistan, some cities had municipal committees and cantonment
boards, whereas there were many district boards in the rural areas. The 'Punchayat'
system was also in vogue at the rural level in the Punjab and Sindh, which was
governed by the laws formulated during pre-partition days. In Balochistan, there
were two different systems; some of its area was under the British control pre-
partitation, while other parts of the province were under administrative control of
some independent states – Kalat , Kharan, Makran and Lasbela, whereas, the tribal
areas of Mari and Bugti tribes were under their own traditional set ups. There were
two separate systems of local governance. In British Balochistan, there were
Municipal Committee and Cantonment Board in Quetta and a few 'Bazaar areas'
similar to town and Tehsil Committees, and in independent states and tribal areas
'Sardari, and 'Jirgas' system were placed similar to the 'Punchayats' in Punjab and
Sindh.
A comprehensive rural and industrial development program called 'Village A.I.D
Program', was launched in 1952-53, which resulted in the improvement of local
bodies. However, the existing local government system came into being during the
period of Field Marshall Ayub Khan, who had promulgated the Basic Democracies
Ordinance, in 1959, and Municipal Administration Ordinance, 1960. Under these
laws, 80,000 Basic Democracy members were directly elected throughout the
country. Later on, these members also served as the Electoral College for the election
of the president
In 1960, military rulers had introduced Muslim Family Laws and in accordance to
these laws in the year of 1961, the chairmen of the local councils were also given
reconciliatory legal power. Furthermore, under the same law of basic democracy,
various institutions were established at three levels: Union Councils were formed
after putting together several villages, and, in cities, union committees were formed
on the basis of several electoral wards. Similarly, town committees in small towns,
'Tehsil' council at tehsil level, and the municipal committees and the corporation at
city level were formed. District council at district level covering entire rural area of the
district and divisional councils in every division were also formed. Besides, directly
elected 80,000 BD members and 40,000 each from East Pakistan and West Pakistan
(presently Pakistan), there were other members of these bodies who were either
nominated by the government or were government servants.
In 1970-71, the geographical map of Pakistan underwent a change. Firstly, One Unit
and the legislatures.
was abolished and five provinces were created or restored; then the country had a
general election, and later it had divided into two countries. Pakistan was left with
four provinces on the western part. The new government in 1972 did legislate for the
local bodies, and People's Local Government Act was approved. In 1975, Punjab Local
Government Act replaced the previous law, but during all these years no local
elections could take place under these laws.
Then new military regime took over in 1977, and Local Government Ordinance was
promulgated in 1979. Four elections took place under this law. In early 1996, Punjab
and Sindh Assemblies repealed these ordinances and new law, Punjab Local
Government Act, 1996 and Sindh Local Government Ordinance (amended 1996)
were enforced. Fresh election could not be held under these laws. The last
government, however, cancelled these laws, as soon as it had assumed power, and
revived the Local Government Ordinance, 1979, which was further amended in the
beginning of 1995. During 1996, some interesting developments in Punjab and Sindh
had shacked normal political life when new government came to power. Mr. Manzur
Watto as chief minister of Punjab had introduced a new bill in the assembly and a new
“Local government Act 1996”. Tthrough another ordinance Shehbaz Sharif's
government had introduced the 'Punchayat' system in Punjab as the local
government institution. Since Punchayats were not elected bodies, it was challenged
in the Lahore High Court. The court declared it ultra vires, and the old system was
revived.
In May 1998, Punjab government held elections for all the urban councils while the
union councils remained under administrators' control. In Balochistan, election to all
local councils was held in the same year with a substantial increase in women's
representation. In Sindh and Khyber Pakhtunkhwa (KP), election could not be held
due to some political reasons. The last government of Mr. Nawaz Sharif had
announced local council elections in the Northern Areas in November 1998. And new
local government councils had been elected in these areas. During 1998, PML-N
government abolished century long system of Octroi tax and instead General Sales
Tax (GST) was introduced which was collected at the federal level and a contribution
from that equal to the tax money of a local council was collected on 1st July 1999 paid
to that local councils. The new GST system increased financial dependences of the
local government upon grants from provincial and federal governments. On the other
hand tax base was enhanced in case of Octroi tax, only consumer was paying the tax
while after imposing of GST everyone had to pay that tax. During that period local
government functioning was badly affected mainly because of dictatorial and
centralized state of affairs done by provincial governments through other state
arrangements parallel to that of local governments. Interventions into some key
matters relating local governance by the parliamentarians were created some sort of
confrontations. However, government had encouraged women participation by
doubling the number of reserved seats in all tiers of local councils. During that period
LG elections were held in Balochistan only.
On October 12, 1999 the armed forces revolted and the prime minister was replaced
by the commander-in-chief. As a result General Pervez Musharraf took over the
power as chief executive of the government. After consolidating his control, he
announced a ban on all elected representatives including parliamentarians and local
council's heads and members. On 23rd March, 2000 he introduced his famous
'Devolution Plan' based on a new system of local governance. That was really a new
addition in governmental development which aimed to abolish the centuries old
system of magistracy and the rule of bureaucracy. Practically more opportunities for
citizens involvement was proposed, such as participation, monitoring and
contribution. This system was welcomed by civil society while many political parties
rejected it. But it was thoroughly discussed everywhere, nearly in all big cities and
towns public level debates were very significant during 2000-2001.
On 7th October 1958, president Mr. Iskander Mirza abrogated the 1956 constitution
and Martial Law was imposed. He appointed commander-in-chief ; General Ayub
Khan as the Chief Martial Law Administrator, who ressumed president office on 27th
October 1958. In a media broadcast to the nation he said, “Let me announce in
unequivocal terms that our ultimate aim is to restore democracy but of the type that
people can understand and work”. That was exactly the concept of Basic Democracy,
which was introduced on 2nd September 1959. Soon after promulgation of the Basic
Democracy Order in October 1958, the process of delimitation on electoral
constituencies was started. First elections of BDs were held in various phases from
26th December 1959 to 9th January 1960. The system of Basic Democracy provided a
multiple tier local government structure. 8,464 rural councils and 1,100 urban
councils were formed. A seperate law for urban councils, Municipal Administration
Ordinance 1960 was promulgated which repealed the century old laws regarding
Basic Democracy by Ayub Khan (1958-1971)
municipal corporations and municipalities in various towns. First action by these BD
councilors was passing vote of confidence to the president. These local government
Local Government in Pakistan 23Local Government in Pakistan22
There were town committees in small towns having more than 10,000 population.
The chairman of the committee was elected by the members and members were
elected by the voters of that town comprising 10-15 members of each town
committee was assigned municipal administration in towns similar to the Municipal
Committees.
Tehsil Councils and Thana Councils were constituted at Tehsil level. These were
indirectly constituted bodies. All chairmen of union councils and the town
committees were ex-officio members of Tehsil councils. In addition all heads of
government departments operating in that particular Tehsil were also members of
Tehsil councils while Tehsil officer, titled as Tehsildar was its chairman. Tehsil council
was basically a coordinating council and had no executive authorities in any aspect.
The main function was to discuss the issues of mutual interests and to finalize a
common plan of action. Tehsil was not empowered to levy any tax, instead district
council was responsible to provide necessary funds for its functioning.
In urban areas, every municipality was consisted of chairmen of union committees
and some of government functionaries from line departments while chief officer in
MC was the chairman. Most of these chief officers were ex-secretaries working in
municipalities since the creation of Pakistan. Municipalities were mainly responsible
to administer all municipal services to residents. These were building controlling
authority in cities, were empowered to levy certain taxes and authorize to impose
penalties and fines on violation of certain acts. Total functions were consisted of 73
heads. That were stated under nine sub-heads including: town planning, education,
water supply, medical relief, disposal of refuse, public safety, social welfare,
prevention of nuisance, coordinating activities of union committee and firefighting.
District Councils were set up in each district and was comprising of all heads of
government departments in that district and a few elected members from chairmen
of UCs and TCs, municipalities. Their election was held through balloting in an
electoral college consisted of all chairmen of UCs and TCs in that district. Its functions
Tehsil and Thana Councils
were divided into two categories (a) obligatory (b) optional.
A total of 28 obligatory functions were included: development works in rural areas,
building public ways, roads, bridges, public health centers, reading rooms and
libraries, sanitation and water supply in rural areas. Other optional functions
included forming cooperative societies, cultural activities, distribution of agri inputs.
District councils were empowered of taxation on various heads, levy tolls, fees and
surcharges on property transactions.
There were Divisional Councils in each division. That were comprised of three
categories of members (a) officials of line departments, nominated by provincial
governments (b) elected representatives from district councils, municipalities and
from cantonment boards situated in that division and all elected chairman of all DCs,
municipalities were ex-officio members. Its chairman was the commissioner of that
division. The main function was to coordinate between all local councils and the
government departments and to develop an agenda of mutual interest. In addition to
that, divisional council was responsible to address any conflicts and disputes among
its member agencies.
Elections were held twice after every four year, once in 1960 and then during 1964.
Constituencies were delimited on the basis of wards in towns and in the cities,
whereas in the villages there were unions comprising of two or more villages but not
exceeding a total population of 30,000. Law prohibited double membership of any
councilor. To conduct elections the government constituted an Election Authority.
Voter's qualifications were the same as present but the age limit was 21 years.
The system of basic democracy was legally a local government system but that was
contrary to the core essence of local self-government because the BD system was a
guided system where supreme authority was the president himself. Government
control was absolute in true meanings. From performing functions to taxation
Elections
Government control and beyond
Local Government in Pakistan 25Local Government in Pakistan24
procedures, everything was guided and advised by the state functionaries. Since that
system was introduced in the arena when institutionalization of governance was on
the top of the agenda, therefore, BD system worked for 4-5 years but presidential
elections in 1965 and after Pak-Indo war disturbed its smooth functioning and after
Tashkent Agreement down fall of General Ayub Khan had badly affected BD system.
Soon after taking oath as first ever civilian in 1972, Martial Law Administrator Mr.
Zulfiqar Ali Bhutto abolished Basic Democracy System and promulgated an
ordinance 'Punjab People's Local Government Ordinance' ordinance VIII of 1972.
That was declared interim arrangements. It was also stated that a special committee
would draft a new bill for people's friendly local government system. Practically
nothing was new in the said ordinance except powers of state functionaries to appoint
administrators to decade old local bodies. More interestingly these administrators
were mainly the party workers. After enforcement of the constitution on 14th August
1973, Mr. Z. A. Bhutto formed another committee to develop a model local
government system. That team had worked a lot and drafted new law, and Punjab
governor promulgated “Local Government Ordinance 1975” but that ordinance was
not introduced in the assembly and after 90 days that ordinance was expired. That
happened only in Punjab whereas other provinces were exercising old law of 1972.
Finally, in 1975, new law was passed.
The structure of this system was very simple having two types, (a) Rural councils
consisting of a Dehi Council for each village, Halqa Council for a group of many
villages, Zila Council for each Zila (district), and (b) Urban councils consisting of,
Mohallah committee for each mohallah (an area of a town or village), Municipal
committee for each city exceeding a population of 20,000 to 800,000 and municipal
corporation for each city with a population of more than 800,000. The basic
framework and functions were the same as of the Basic Democracy but two additional
Peoples' Local Government by Z. A. Bhutto (1972-
1975)
Salient features and Structure of People's Local
Government System 1975
tiers were introduced. Elections were proposed on non-party basis.
There were Dehi councils in rural areas and Mohallah committees for urban areas.
The number of members was according to the strength of population. The number of
members could be 7, 9 and 11 according to the population. In case of Dehi council the
members elect their chairman and the chairman becomes a member of Halqa council.
In case of Mohallah, a member was returned to municipal committee who would
become chairman of Mohallah committee. Peasant's and tenant's representatives
were equal to one-third of the total number of members elected on general seats and
at least one member represented each category.
All chairmen of Dehi councils were members of Halqa council. It means Halqa council
was formed indirectly. The Halqa councils mainly were the local councils for rural
areas. In order to build up local government set up at this level it was necessary that
Halqa councils should be elected directly. In fact, in 1975 Act the tier of union councils
was divided into Halqa and Dehi (village) councils. Peasants representatives were
equal to 20% of the total number of members other than members representing
minorities and other special interests and only one member was taken from each
category.
Zila Councils were formed on the basis of Halqa councils. All the chairmen of all Halqa
existed in one Zila were ex-officio members of Zila councils. The members of Zila
council were equal to number of Halqa councils in that Zila. Halqa council performed
dual role, a constituency for the Zila and an area of local government. Peasants,
minorities and tenants were given representation equal to 5 % of the total number of
members other than members representing minorities and other special interest
groups and only one member was taken from each category. Women and workers
(a) Dehi Councils and Mohallah Committee
(b) Halqa Council
( c) Zila Council
Local Government in Pakistan 27Local Government in Pakistan26
each were equal to 5% of the number of members elected to general seats.
The number of members of municipal committees was equal to number of mohallahs
in a municipality. In that case members were fixed on the basis of population and
stipulating that a member supposed to be returned to the municipal committee from
that mohallah. Workers representative were equal to 5% of the total number of
members elected to general seats. Women councilors were equal to 5% of the total
number of members elected to general seats with a minimum of 1 and maximum of 5
councilors.
Municipal corporation was consisted of such number of members as may be fixed by
the government on the basis of population that was 5 members for a population of
100,000. Since municipal corporations were formed in those cities where population
was over and above 800,000 then membership was ranging from 40-100 members or
more for Karachi and Lahore. Workers were given representation in these councils
and their representation was equal to 5% of the total number of members other than
members representing minorities and other special interests with a minimum of 1
and maximum of 5 councilors. The municipal corporation at that time had adequate
source of income whereas other local councils were dependent mainly on
government grants.
In all these local councils special representation was given to women, workers and
peasants. 5 % women representation was only for Zila and Urban councils through
reserved seats whereas workers representation was only in urban councils. Similarly
peasants representation was fixed in rural councils. Moreover, in rural councils
peasants were represented not on reserved but on general seats, meaning candidates
compulsorily belonged to peasants on those seats. Besides all these no appropriate
(d) Municipal Committee
e) Municipal Corporation
Special Representation of Marginalized
Communities
representation was given to minority population. Reserved seats were available for
them in urban councils but their number was not fixed but that was upon government
Local Government in Pakistan 29Local Government in Pakistan28
The members of Zila council elected from the Halqa were to be a member and ex
officio chairman of the Halqa council. Similarly in municipal committee the member
elected from Mohallah committee is to be a member and ex officio chairman of the
Mohallah committee. Elections could not be held under that law; however elections
were supposed to be held on the basis of adult franchise and through secret ballot.
The electoral unit was either multi-member or single member. Every voter within an
electoral unit had one vote irrespective of the number of candidates to be elected from
the electoral unit.
Government had constituted a Local Council Election Authority for conducting
elections to the local councils. Electoral rolls prepared for the elections of members of
Provincial Assembly as amended from time to time and as, adapted or adopted for
local councils were the electoral rolls for the elections to the local councils.
Any person not less than 21 years of age on the last day fixed for filing the nomination
papers was qualified to be elected as a member of local council, but condition was to
be registered as voter in the electoral rolls of the local areas of that local council. A
person was disqualified to be a candidate or a member of a local council: If he/she has
ceased to be a citizen of Pakistan. If he/she has an undercharged insolvent; If he/she
is of unsound mind and has been so declared by a competent court; If he/she has been
on conviction for an offence involving moral turpitude sentenced to imprisonment for
a term of not less than six months, unless three years have been elapsed from the date
of expiration of the period of the sentence; if he/she was in the service of Pakistan or
of a Public Statutory Corporation, a local council or other local authority; If he/she
falls under contract for work to be done or goods to be supplied to the local council
concerned or has otherwise any pecuniary interest in its affairs; In case of
membership of the city corporation he/she should be a member of any of the
municipal committees.
Market committee was of 2 years term. Municipal committees and Halqa councils
were responsible for the establishment of farm markets within their area, and in each
c) Qualification of candidates and members
Market Committees
farm market there was a market committee comprising a member elected by
municipal committee, a member elected by Halqa council, a member elected by
licensed women, etc.
A Dehi council and Mohallah committees were declared as Punchayats. Punchayats
were responsible to settle disputes amicably. No legal practicing person could appear
before Punchayats. Appeal against Punchayats' orders was sent to Halqa council. In-
fact these were not a separate tier but these two tiers were equipped with certain
powers to hear, proceed, record statements and award on such cases that were not
cognizable.
Government was authorized to supervise and to control the local councils.
Government was empowered to inspect every local council at least once in a year. It
was also empowered to issue directives to the councils and to suspend any local
council.
There was a district coordination committee for inter-council matters comprising of
all chairmen of municipal committees and all heads of executive departments. The
chairman of the Zila council was the chairman of that committee. MPAs and MNAs of
that district could take part in the meetings, but they were not the permanent
members. The primary functions of district coordination committee were: to
coordinate all activities of the local councils and operating government departments,
settlement of disputes between the local councils, coordination of development
Punchayats
Government control and authority
Coordination
Local Government in Pakistan 31Local Government in Pakistan30
plans, review of questions and answers and deciding issues relating to imposing
surcharges.
The third military dictator General Zia-ul-Haq had promulgated Local Government
Ordinance 1979 on 31st July 1979. Same was promulgated in Sindh and NWFP (now
known as KP) in same year but for some reasons that ordinance was enforced in
Balochistan during 1980. That was a refined model of previous BD system. The main
frame was the same with some modifications: in rural areas Markaz councils were
formed comprising a cluster of union councils. All chairmen of these union councils
were ex-officio members besides Zila council members from that markaz area and
representatives from the government departments. The functions were as per the
divisional councils under BD system but according to 1979 model those functions
were assigned to only rural councils. In the beginning, Tehsil councils were also set up
in each Tehsil but in 1980 that was amended and practically Tehsil councils were
never formed during the whole tenure.
Local Government Ordinance 1979 comprised of:
(a) Urban Councils – including town committees, municipal committees, and
municipal corporations;
(b) Rural Councils – including Zila councils and union councils.
Urban areas which had population of 10,000 to 30,000 constituted a Town
committee. The Town committees were comprised of minimum 5 and maximum 17
Muslim members, in addition workers representatives were equal to 5 %, minimum
on 1 and maximum 3, and the women councilors were equal to 10 % not less than two.
There were no specified functions exclusively for Town committees but government
had delegated a number of functions mentioned hereunder the heading of 'Functions
LOCAL GOVERNMENT by GENERAL ZIA-UL-HAQ
(1979-1988)
Town Committees
of Urban Councils'.
Municipal Committees were constituted in cities where population exceeded 30,000.
It comprised of minimum 19 maximum 59 Muslim members including 5 % worker's
representation and 10 % women councilors (not less than two).
City centers where population exceeded 30,000 but not over 500,000 were declared
as Municipal Corporations, comprising minimum 75 and maximum 150 Muslim
councilors, including 5 % worker's representation, and 10 % women councilors. Non-
Muslim members had their representation in those Local Councils were there
population existed there numbers was arranging from one to three. (???)
The functions of urban council were broadly categorized as compulsory and optional.
There were more than 115 compulsory functions under 12 heads described through
35 sections of the ordinance. In addition to these compulsory functions, urban
councils were empowered to take another set of nearly 85 optional functions
described under 10 heads and stated by 32 sections of the said ordinance. Moreover,
the government delegated 29 additional functions to the local councils including
approval of the Annual Development Program of communication, works, agriculture
and forest departments. Most of these functions fall under municipal obligations but
there were many responsibilities of building infrastructures in rural areas, town
planning and many types of developmental works.
Removal, collection and disposal of refuse; maintaining of public latrines and urinals;
registration of births and deaths; protection against infectious diseases; water
Municipal Committees
Municipal Corporations
Functions of Urban Councils
The compulsory functions included the following:
Local Government in Pakistan 33Local Government in Pakistan32
supply; drainage and sewerage; private markets; slaughter houses; lightening of