Journal of Positive School Psychology [Link]

com
2023, Vol. 7, No. 5, 891-901

Factors Affecting Service Delivery System At Local

Level: An Analysis Of KP Local Government System
Dr. Tariq Ullah1 , Dr. Usman Khan2 , Mubasher Basharat Ellahi3 , Mairaj ul Hamid
(Corresponding author)4
1
The author holds PhD in Political Science and is Additional Deputy Commissioner in Government of Khyber
Pakhtunkhwa.
2
The author holds PhD degree in Political Science and is Lecturer at Department of Political Science, University of
Malakand.
3
[Link] scholar at National Institute of Pakistan Studies, Quaid-i-Azam University Islamabad.
4
Lecturer at department of Political Science, University of Malakand.

Abstract
Local government system, being closer to the people, is best suited for local development, better public
management and service delivery. Efficient and functional service delivery system is contingent upon
many factors like conducive environment, political will, social activism, voter awareness, community
empowerment, proactive role of civil society and training of local government members. However, due to
frequent disruptions and experimentations, local government institutions have not evolved in KP
specifically and Pakistan generally. In 2001, uniform Local government system was established in
Pakistan with high dreams and goals. The existing structure of governance and administration was shaken
and reformed. Service delivery departments were devolved, powers and finances shifted to district level.
Despite this transformation, quality of service delivery and management of health and education facilities
are still far from satisfactory. This manuscript founds that clientelesim, narrow local interest, voting
behavior, elite capture, lack of empowerment; public accountability and marginal role of CSOs have
influenced service delivery. The study is qualitative in nature where secondary and primary sources have
been used and interpreted for the case in hand. Participants are purposively selected from range from local
elected officials, reps of civil society and heads of service delivery departments. Thematic analysis is used
for data analysis.

Key Words: Local governance, Service delivery, Clientelesim, Elite Capture, Community
Empowerment, Civil Society.

Introduction According to UNDP (1993), development is not

an isolated process rather it is about people,
Local government is a kind of self-government woven around people and not the other way
where local interests are best articulated, people round. Development is sustainable when people
trust is maintained, and state to people contact is have a voice in decision-making process and are
developed (Osborn and Gablier, 1992). It is not mere bystander. Manor (1999) argues that
flexible, innovative, gives better representation decentralization is effective in poverty-reduction
to different segments and tribes, minorities, and and human development as it is closer to people,
provides greater opportunities for political is more accessible, service delivery system is
participation (Rondinelli& Cheema, 1983).
 Dr. Tariq Khan 892

better managed and implemented, it is workers, minorities and women were given
accountable, transparent and ensures public representation. Provisions were made for
participation and community development. LG community participation in shape of CCBOs and
is more accountable and responsive, helps in CSOs, School Management Committees, Public
innovation, improves public services delivery, Safety Commissions, Informal system of justice
and ensures equitable budget. like family and reconciliation courts, Insaaf
Committees and Alternative Dispute Resolution
First local government system was introduced Committees. 2013 KP local government system
by General Ayub Khan in 1959 known as Basic was almost replica of 2001 devolution plan as
Democracies and was reflective of Ayub Khan same service delivery departments along with
philosophy of democracy. It acted as local resources were devolved at local level.
government and Electoral College at same time.
LG system was again introduced by General Zia In general election 2013, Pakistan Tehrik Insaf
in 1979 and remained functional till 1989. Two established its own government. As per its
tier system was established and role of manifesto, the government passed another act in
bureaucracy was minimized as councils were to 2013, elections were held on 30th May2015. This
be headed by elected chairpersons, (Khan, new system was almost a replica of the old 2001
2009). system. As per provision of constitution and
spirit of devolution, necessary financial, legal
LGO 2001 was unique in the sense that along and administrative powers were devolved to the
with political reforms, whole bureaucratic and district government.
service delivery departments were shaken,
reformed and established on new lines. Three Despite these local government reforms, service
tier system was established where political delivery at the door steps still remained
leaderships was made executive for the first time ineffective. This article addresses the question:
at local level. Elected officials were empowered how did nature of local politics influence service
vis-à-vis the bureaucracy, women and delivery system under local governance in KP?
marginalized communities were empowered and
hence service delivery system was brought Literature Review
closer to the people (Cheema and Mohmand, A considerable body of literature is available
2003).
regarding the role of local government in human
In 2001 uniform local government systems were development. Some scholars argue that it creates
established in Pakistan for the third time. This a positive impacts while other link it with certain
was not mere political devolution at local level, conditions and argue that, in absence of
but along with political devolution, financial conducive environment, it may be less effective
resources and administrative powers were also and wastage of resources. Without certain
devolved to local level. Districts were made conditions and conducive environment,
powerful, 17 departments were devolved along devolution is not helpful for service delivery and
with financial and administration. Tehsil tier local development. Faguet (2003), in his study
headed by elected Tehsil Nazim was mandated regarding impacts of decentralization in
with municipal services. Union Council was the developing countries, has concluded that as
lowest tier consisting of Nazim, Naibazim, compared to the central government, local
general councilors, kissan, women and minority government is more responsive to the needs of
council. Marginalized groups like peasants, the poor. Jutting et al (2004) are of the opinion
893 Journal of Positive School Psychology

that factors like sufficient resources, strong civil is less integrated LG system discontinued, civil
society, access to important information, and society is disorganized. Cheema and Momand
community participation have positive impacts (2003) argue LG system after 2001 has
on poverty reduction. On other hand elite improved target service delivery like sanitation
capture, low participation, lack of political will while no visible changes in universal service
have negative impacts. delivery like health and education. There were
issues of elite capture, lack of accountability,
According to Bardhan and Mookherjee (1999), faulty distribution of resources and services in
decentralization is a complex process and may different tiers and lack of participation of
not be beneficial at every state. The political people. Keefer et al ( 2003) while studying local
distortion that affects central government may government system after 2001, are of the view
also be more visible at local level. It is not that politician are driven by clientelist
essential that mere proximity of citizen and consideration and want to favour their own
election of more representatives at local level voters, are more interested in building
may improve service delivery and public infrastructure, creating jobs, benefits from
accountability. Elite capture or clientelestic construction works, posting transfers.
politics may be more dominant at local level if
proper care is not taken. Platteau and Gaspart Liaqat et al. (2019) identified the voting
(2004) argue that local government is very behavior of preference of voter in Punjab during
susceptible to elite capture as political parties are local government election of 2015. In their
less organized at grass roots level, common detailed study and findings, they have come to
people are less integrated and lack awareness the conclusion that voter prefer those candidates
and motivation for political participation and who are more connected with local bureaucracy,
civic engagement. MPAs/MNAs and provincial party leadership.
This connection means more and more access to
Taj and Baker (2018) argue that local power corridor for them. Candidates having
government under devolution plan of 2001 was local connection may help them in provision of
part of comprehensive reorganization on part of goods and services, may help them out in court,
military regime of general Musharaf. These thana/kacheri etc.
reforms could not produce the desired result as
local government system was introduced in Factors impacting service delivery
haste, institutional set up changed abruptly and
Local Government members lacked the training 1. Clientelesim
and capacities. There was lack of harmony In societies divided on tribal, biradari and ethnic
between federal, provincial and district level lines, votes are casted on basis of these loyalties.
government. In such societies and state, public representatives
are least interested in service delivery. Voting
Easterly (2003) in his article, “political economy
pattern in KP is quite different in many respects.
of growth with-out development: A case study
Voters of KP are mostly independent which is
of Pakistan” has criticized that development and
evident from the fact that mostly they have
growth model of Pakistan on the grounds that
voted for different political parities in different
though, Pakistan achieved economic growth but
elections. Clientelesim is prevalent in provision
same could not be translated into social and
of services and goods and political bosses at
human development. Zaidi (2014) argue that
national and provincial level are allocating funds
Pakistan growth pattern is faulty as middle class
 Dr. Tariq Khan 894

as per political needs and expediencies. Local and familial lines. While going through primary
government system is not immune from it. data it was evident that votes are gained on the
basis of typical kind of biradari and tribal
Compare to national and provincial level politics. However, it was evident that vote
election, Clientelesim in term of public purchasing is not practiced. No evidence was
resources is not very effective in determining the found in this respect.
election results in local government system. This
is not due to the fact that LG members are They vote in individual capacities for a
allocating resources as per merit; rather they particular candidate having some specific
have very limited resources available at their qualities. These qualities include that LG
disposal. One of the UC Nazims from Dir Upper members are well connected and may help them
told that during Mushraf era, he was given from in difficult times. They vote for individuals who
two to four lac development funds per annum are powerful enough who can protect them
while people had many expectations like street against police, can provide help in, revenue
pavement, drinking water supply, roads and administration, Thana kachari. Ex District
improvement in schools and BHUs. It was Nazim Charsada was of the opinion that:
impossible to keep so many people happy with
this meager amount. Similarly, Ex District “Social networking abilities of members are
Nazim Dir Upper opined that LGO 2001 was very essentials. The ones who are better
created with great hope and expectation. During connected with police, local administration,
initial year, a lot of developmental fund was MPAs, MNAs, are more popular in their villages
provided but later on when provincial and local wards and may have better chances for
government was elected, funds were diverted election and re-election. Mostly people of a
back to provincial government. It was difficult village, or family biradari join hand to vote for a
to fulfill the need of whole district with this particular candidate. The demand list mostly
reduced amount. includes developmental works of many kinds
like construction of schools, hospitals, roads,
However most of the developmental fund were drinking water schemes, street pavement and
spend on street pavement, roads, drinking water sanitation services”.
supply schemes. Very limited fund from their
discretion was spent on health and education Biradari or family plays a very dominant role in
services. Under 2013 LGA, 55% developmental election process. Most of the district Nazimeens
funds were put on the discretion of LG members belong to well established political families.
and most the amount were spent on Political parties do have a role, but they have to
infrastructure developments other than health operate within dynamics of family and biradari
and education services. system. No party can ignore this role. Due to
predominant role of family and Biradari, few
From interview with LG members and families dominate political parties.
developmental experts, it was found that LG
members were to be judged on traditional While going through literature review and
parameters like social net-working, role in jirga, primary data, it is evident that subject of human
how they can help their voters in Thana and development is very rare in our political
Tehsil, and can stand with them in adversity and discourse. Local government elections are not
other ceremonial occasion. In KP, the society is fought on agenda of human development nor
either tribal rural,or divided on tribal, biradari votes casted on same basis. While asking from
895 Journal of Positive School Psychology

different social activist, LG members, and more pervasive at local level. Moreover,
government officials, they were of the opinion resources are less, needs are many and LG
that LG members were least interested in members have to cater for the needs of many
improving service delivery system particularly people with little resources.
health and education. LG members were mostly
pursuing narrow interest. 2. Elite Capture

On a query from one of UC Nazim and district The phenomena of elite capture is very common
members in Dir Upper, he told that in developing world and is observed at both
national and local level. Elite capture can be in
“Most of our time is spent in Jirgas, Thana terms of seat capture, resources capture or
kachari, ghammi/shaadi. We woke up in the services capture.
morning only to see our hujra filled with guests
who are asking for our help in different land, The phenomenon of elite capture in terms seat
family feuds, thana khachari. As we to get votes capture was more common in KP. Almost all of
from the people and hence we must have to the District Nazimeen in three district under
fulfill their demands. As people are not study were from local influential families having
demanding any such thing related to human long history in politics. Union Councils
development and they don’t cast vote on these Naziemeen were also from local influential
criteria so we are least interested”. families. However,members of UCs and
VCs/NCs were from lower and marginalized
Asking the input of one of the District Officers classes.
Education Abbotabad, he told clearly that LG
members were less interested in real service The amount and degree of resources captured by
delivery challenges like allocating funds, the elite in local government is minimum. One
improving the infrastructure, building new of the reasons is that local government has been
schools or improving the quality of education or disrupted time and again and hence elite have
ensuring teacher attendance. They were mostly not strengthen their grip. Resource allocation to
interested in transfer posting of the teachers. the local government by the federal or provincial
Same was the opinion of District Officer Health government has been minimum over the years.
Abbotabad. Most the funds are allocated or spend either at
federal or provincial level. Moreover, local
This pattern of voting behavior and clientelistic governments have not generated their own
nature of politics relationship is against norms of resources. Barring few metropolitan cities like
functional democracy, parameters of good Karachi, Lahore or Peshawar, most the districts
governance and against the notion of equality of don’t have their own resources and mostly
citizens and fair distribution of [Link] depend on funds transferred from either federal
it is a prevalent phenomenon in both national or provincial government. Local governments
and local politics, its adverse impacts are very are either not empowered to collect taxes or they
common in local politics. Local government is have no capacities for effective tax collection.
more prone to it as at district, Tehsil and village Tax regime in Pakistan is hugely tilted in favour
level, politics become more and more localized. of federal government as custom, federal excise,
Party politics, party manifesto, and ideological income tax and sales taxare collected by federal
lines are blurred. Family bonds, tribal loyalties, government through Federal Board of Revenue.
and local identities and likes and dislikes are In absence of resources, powers to impose taxes,
 Dr. Tariq Khan 896

or regulated taxes, local governments have very or corrupt practices, mostly there is merit. Local
little available for manipulation by elite capture. governments have no powers in this respect and
hence cannot be blamed for any misuse.
Elite capture in respect of service delivery on
part of elected representatives is also minimum. 3. Community Participation and
Most of the service delivery departments are Empowerment
regulated by the provincial government, funds
are allocated at provincial level and even Without community participation and
infrastructure like Schools and Health facilities empowerment, local government system is
are built by provincial government. Politicians at incomplete. Narayan, 2002 argues that inclusion,
national and provincial level are diverting participation, role in accountability and access to
resources at their own will to few districts or information are essential ingredients of
even to few constituencies within districts. empowerment.
Planning commission or planning department Ample provision were provided for community
are subservient to political bosses and distribute empowerment and participation in devolution
resources at their sweet will. In this whole plan of 2000 like CCBOs and CSOs, School
process, local government institutions or LG Management Committees, Public Safety
members have very little say in resource Commissions, Informal system of justice like
allocation, planning and utilization of funds. family and reconciliation courts, Insaaf
Though budget- making of devolved Committees and Musalihat Anjuman
departments is the responsibility of local (Alternative Dispute Resolution Committees).
council, but its guidelines and regulation are
Community involvement and participation in
determined by the provincial government. Local
developmental projects have produced good
councils have less number of resources and
results in KP. Community driven local
room or space to manipulate these resources as
development (CDLD) project implemented in
they are bounded by strict regulation. One
few districts of KP, has produced very
District NaibNazim complained that:
encouraging results as quality of works is good,
“Provincial governments have tied their hands cost of execution cost is low and public
by too much regulation; we have no discretion satisfaction level is high compared with similar
and hence cannot spend fund as per local needs. projected executed through contract system. One
There are chances of misuse if allowed freely, of District Naib Nazim Dir Upper opined that
but with so much regulation, we are deprived of civil works executed by government department
any initiatives at local level. If we have free through contract system is of low quality and
hands, we will utilize it for public good as major share spent on kickbacks while similar
ultimately, we are responsible to the public”. projects executed through community through
CDLD are more durable transparent, with low
Similarly, appointment and posting transfer of cost and high public satisfaction. District
service delivery departments are regulated at Education officer female Abbotabad appreciated
provincial level. Earlier, appointments were the role of community participation in school
made on political basis but now appointments management committees, Parent Teacher
above Class IV are made by either Public Council (PTC) as with this model school
Service Commission or through recruiting management has improved and basic
agencies like National Testing Service and infrastructure like construction of additional
ETEA etc. Though there are chances of misuse class rooms, play ground, drinking water supply,
897 Journal of Positive School Psychology

play grounds and boundary walls have been the councils were not trained enough, were not
completed with low cost and good quality. aware of their powers and responsibilities. They
were unable to handle the seasoned officers of
Community empowerment, role of civil societies the departments who were well versed with rules
and community organizations are completely and regulations. District Naib Nazim Dir Upper
missing in practice. Though provisions were under 2013 system was less optimistic as,
made, however these were never materialized, as according to his opinion, district council was
people were not empowered, community more effective during budget session, but for
engagement and participation was lacking on rest of the sessions, district councils members
ground. were least interested to participate. Most of the
4. Accountability debates revolved around constituency issues,
and service delivery related issues were seldom
Being closer and more accessible to the people, discussed. He also lamented the negative
Local government is more appropriate for public attitudes of the head of departments as they were
accountability. It has two aspects. On one hand, not cooperative enough and mostly concealed
LG members are empowered to hold the service the facts, misled the members. Assistant
delivery department accountable and, other Director local government Dir Upper who was
hand, people are supposed to hold the LG also secretary district council under 2013 system
intuitions including them as accountable as well. told that hardly any meeting of standing
Though people in individual capacity may play committees has been held. Most of the
roe in accountability, but usually community committees were non- functional.
organizations and civil societies are given due
Ex Tehsil Nazim Abbotabad pointed out that we
role for this purpose. For the purpose of
lack this culture of accountability.
accountability both system of LGO 2001 and
Representative institutions are weak, people lack
LGA 2013 were sufficiently empowered to
motivation for civic and political activism. There
exercise this right through different mechanisms
with council in and through different is no formal provision for community
involvement in Local government institutions.
committees. Most of the tools for oversight and
They don’t have any say in budget making,
accountability were available with LG
policy making or policy implementations. One
institutions and LG members. Ex District Nazim
Dir Upper was all praise for devolution plan. He of the development practitioner MsRashida
told being chief executive of the district he opined that people have not raised above petty
issues and still tradition and locked up in close
provided leadership to the whole District,
culture. There is lack political awareness and
implemented government policies and
programmes with success and [Link] was sense of social and political activism. Consistent
optimistic that devolution plan was for better election at local level could have produced real
representative leaders but LG election have not
than the previous system where district Nazim
been held regularly. On a question from District
and LG were empowered and they performed to
NazimAbbotabad, he told that most of our time
their capacities.
is consumed in attending to day to issues like
Ex District Nazim Abbotabad opined that thanakachari, jirga and gham and shaadi. We
though District council had sufficient powers to have very little time left for policy making.
regulate the departments we could not Service delivery is one of our last priority.
accomplish this task in true spirit. Members of
Way Forward
 Dr. Tariq Khan 898

(UNDP, 2016) has developed integrated People are neither organized into community
development at local level where all organizations nor are community organizations
stakeholders local government, decentralized given any role. Similarly, civil society is
sectors, community based organizations, civil completely detached from local governance and
society and private sector are involved for local development process. First people at each
development. This framework provide an village and muhalla level should be organized
integrated mechanism with network for into community organizations like CCBOs and
accountability, inclusive decision making which these CCBOs should be mad integral part of
result in improved service delivery and resilient local governance system. Civil society
state society relationship. World bank (2005) has organizations are integral part of modern
framed a framework for local development and governance system. These organizations should
better service delivery. It has integrated the be encouraged and should be provided proper
decentralized departments, sectors, local role in LG system. Community organization at
government institutions and community each village and mahalla village should be
organizations. Core elements of this framework registered and they should be given the role in
are empowerment of local people through local execution of developmental schemes.
governance.
LG members needs proper training and
Though LGO 2001 was effective system but it orientation as they are the one who run the
was introduced all of a service delivery system system. with quality training and exposure, they
was constrained by many factors and foremost can be sensitized in this respect.
was clientelestic culture. This culture is very
dominant. There is lack of awareness on part of Budget should be more open and before its
voters. They vote on particular line keeping in finalization, at least two open should be made
view the traditional performance of LG mandatory. This will help in generation of
members. revenues at local level and would help in
effective utilization of und.
Frequent disruption, different models, and
experimentations have badly influenced Each public facility should be managed by
evolution of LG institutions. Local government management committees and LG members
system need continuity. Sufficient powers and should be its essential members.
resources should be placed at the disposal of Women participation should be more
local governance. Continuity in local meaningful and this only possible when women
governance system and democracy within
at local level are organized. One women
political culture should be ensured and this can members would not have any impact. There
minimize the phenomena of elite capture. should be an assembly of women.
The performance of LG system is directly linked
VCs and NCs are more closer to the people and
with performance of LG members. They need provide an ideal place for community
proper orientations and trainings. The local participation. Most of the development budget
councils should be strengthened. The committee should be diverted to this tier and its members
system should be made more regulars and its be empowered to look after each service
constitution and regulars meeting should be delivery department at NC/VC level. This is the
made binding. Similaraly minimum time should ideal place for community engagement and
be fixed for council meetings. direct participation and hence community
899 Journal of Positive School Psychology

organization should be registered at village capture, especially at higher level, is more

council. Instead of contract system, dominant.
developmental projects need to be executed
through community organizations. To minimize the influence of clientelestic
politics, prevailing voting behavior and elite
Conclusion capture, certain interventions are needed in local
government system. Development is
Local government system is essential for service development of local people and service
delivery. However, mere empowerment and delivery would be more effective if local people
closeness to local community is not enough for are made active participants of this system. local
functional system. It would have little impacts, if people need to be organized into local
there is lack of popular participation, social community organizations and these
activism, voters awareness, functional organizations be given proper role in service
accountability mechanism and lack of training of delivery system and developmental initiatives.
LG members. Similarly, more spread of Similarly accountability mechanism of local
population, less transfer of resources/devolution government institutions be strengthened and it is
of powers, lack of political ownership, and will only possible if civil societies, community
from above may have negative consequences. organizations and local media are integrated and
Nature of politics, local preferences, role of local given appropriate role.
elites is also crucial.
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