PUBLIC FORUMS ON GOOD GOVERNANCE

PUBLIC FORUMS ON GOOD GOVERNANCE Jointly Arranged by National Democratic Institute for International Affairs (NDI) and the Center for Civic Education Pakistan (CCE) RAWALPINDI/ISLAMABAD, KARACHI, PESHAWAR AND QUETTA June through August, 2003

ACKNOWLEDGEMENTS The National Democratic Institute for International Affairs (NDI) and the Center for Civic Education (CCE) wish to thank all the participants and panelists who attended the NDI-CCE Public Forums on Good Governance for their engaging presentations and contributions to the event. NDI and CCE also would like to express gratitude to everyone who assisted in the preparation, planning, organization and implementation of the workshop and the editing of this report. Finally, NDI would like to extend its gratitude to the United States Agency for International Development (USAID) for its financial support of NDI s program activities in Pakistan. For further information, please contact: Oren Ipp, Program Officer, South Asia National Democratic Institute for International Affairs 2030 M Street N.W., Fifth Floor Washington, D.C., 20036 Tel: (202) 728-5500 Fax: (202) 728-5564 Email: oren.ipp@ndi.org Or Mary Cummins Resident Representative, Pakistan House 115, Street 10 Sector E-7 Islamabad 44000, Pakistan Email: mcummins@ndi.org This publication was made possible through the support provided by the Office of Democracy and Governance, Bureau for Democracy, Conflict and Humanitarian Assistance, U.S. Agency for International Development, under the terms of Award No. DGC-A-00-01-00004-00. The opinions expressed herein are those of the author(s) and do not necessarily reflect the views of the U.S. Agency for International Development. Copyright National Democratic Institute for International Affairs (NDI) 2003. All rights reserved. Portions of this work may be reproduced and/or translated for noncommercial purposes provided NDI is acknowledged as the source of the material and is sent copies of any translation.

NATIONAL DEMOCRATIC INSTITUTE FOR INTERNATIONAL AFFAIRS The National Democratic Institute for International Affairs (NDI) is a nonprofit organization working to strengthen and expand democracy worldwide. Calling on a global network of volunteer experts, NDI provides practical assistance to civic and political leaders advancing democratic values, practices and institutions. NDI works with democrats in every region of the world to build political and civic organizations, safeguard elections, and promote citizen participation, openness and accountability in government. Democracy depends on legislatures that represent citizens and oversee the executive, independent judiciaries that safeguard the rule of law, political parties that are open and accountable, and elections in which voters freely choose their representatives in government. Acting as a catalyst for democratic development, NDI bolsters the institutions and processes that allow democracy to flourish. Build Political and Civic Organizations: NDI helps build the stable, broad-based and wellorganized institutions that form the foundation of a strong civic culture. Democracy depends on these mediating institutions the voice of an informed citizenry, which link citizens to their government and to one another by providing avenues for participation in public policy. Safeguard Elections: NDI promotes open and democratic elections. Political parties and governments have asked NDI to study electoral codes and to recommend improvements. The Institute also provides technical assistance for political parties and civic groups to conduct voter education campaigns and to organize election monitoring programs. NDI is a world leader in election monitoring, having organized international delegations to monitor elections in dozens of countries, helping to ensure that polling results reflect the will of the people. Promote Openness and Accountability: NDI responds to requests from leaders of government, parliament, political parties and civic groups seeking advice on matters from legislative procedures to constituent service to the balance of civil-military relations in a democracy. NDI works to build legislatures and local governments that are professional, accountable, open and responsive to their citizens. International cooperation is key to promoting democracy effectively and efficiently. It also conveys a deeper message to new and emerging democracies that while autocracies are inherently isolated and fearful of the outside world, democracies can count on international allies and an active support system. Headquartered in Washington D.C., with field offices in every region of the world, NDI complements the skills of its staff by enlisting volunteer experts from around the world, many of whom are veterans of democratic struggles in their own countries and share valuable perspectives on democratic development.

TABLE OF CONTENTS I. Introduction 1 II. Summaries of Good Governance Forums 3 Forum One: Islamabad and Rawalpindi 3 Forum Two: Karachi 4 Forum Three: Peshawar 5 Forum Four: Quetta 6 III. Participant Recommendations 7 Government 7 Political Parties 7 Constitution and the Rule of Law 7 Military 8 Women 8 Other Issues 8 Forum Feedback 8 IV. Conclusion 9 Appendix: News Articles 10

Public Forums on Good Governance: Pakistan 1 I. INTRODUCTION Since gaining independence in 1947, the citizens of Pakistan have called for effective governing institutions that can address their political, social and economic needs. However, the country s three levels of government institutions federal, provincial and local are not well integrated and a lack of coordination amongst national, provincial and local government institutions has begun to erode the government s ability to deliver basic goods and services. This is further exacerbated by the consequences of repeated military interference in Pakistan s political development, as was the case in the recent elections of October 2002. The military continues to play a prominent role in Pakistan s politics to the detriment of political parties. To explore these issues of good governance in greater depth, the National Democratic Institute for International Affairs (NDI) and the Center for Civic Education- Pakistan (CCE) arranged four public forums on good governance in Rawalpindi/Islamabad, Peshawar, Karachi and Quetta between June and August 2003. These forums brought together representatives from all three levels of government to examine ways in which national and local governance could be improved. Among the primary issues discussed were the nature of co-operation and coordination among the three tiers of Pakistani government, the institutional constraints on good governance, and the role of elected officials in ensuring good governance. Members of the National Assembly, Provincial Assembly and Town and Union Councils attended the forum, representing the major political parties, including the Pakistan People s Party Parliamentarian (PPPP), the Pakistan Muslim League - Nawaz Group (PML-N), Muttehida Majlise Amal (MMA), Muttahida Quami Movement (MQM) and the Pakistan Muslim League Quaid e Azam Group (PML-Q). All political parties were invited to send panelists to each of the forums, but the composition of the panels varied from city to city based on the availability of party representatives. The forums were open to the public and citizens were given an opportunity to articulate concerns and raise governance-related questions to their elected representatives. This was the first occasion for many of the officials to meet their constituents in a public forum since their election in October 2002. In each of the four cities, representatives from the regional press were present and the forums were covered widely in local newspapers (see Appendix: News Articles). A local radio station in Rawalpindi also broadcast portions of the proceedings live. Although the forums were held in different parts of the country and attended by diverse sections of the population, the themes and concerns raised throughout the discussions were remarkably similar. In all four forums, the role of the military in politics and the centralization of power in the presidents office played a prominent role in explaining the deficiencies of good governance in Pakistan. Panelists and citizens repeatedly voiced concern about the poor cooperation and communication among the different sectors of government. Citizens also stressed the importance for politicians to be

2 Public Forums on Good Governance: Pakistan honest in their work and to carry out their responsibilities in the interest of their constituents. In addition to offering a setting where the public could challenge their elected representatives on issues of concern, the forums also brought together politicians from varied, and in some cases rival, political parties. As a result, the forums provided a dynamic venue for citizens and politicians to express their diverse opinions and perspectives and suggest strategies for reform. Participant recommendations included a desire to see: better coordination between the three tiers of government; increased government transparency and accountability to the public; corruption eliminated from within governing institutions and political parties; rule of law enforced by the government and upheld by the citizens; less military interference in civilian affairs; better working conditions for women representatives; and more improvement in infrastructure and social services. At all the forums, NDI and CCE received positive feedback on the value of the events. Both panelists and citizens found the forums to be informative and educational, and asked that they be repeated throughout the country.

Public Forums on Good Governance: Pakistan 3 II. SUMMARIES OF GOOD GOVERNANCE FORUMS FORUM ONE: ISLAMABAD AND RAWALPINDI THURSDAY, JUNE 26, 2003 Panelists Mohammad Hanif Abbasi, Member National Assembly (MNA), Muttehida Majlise Amal (MMA). Shafqat Abbasi, Member Provincial Assembly (MPA) of Pakistan People s Party Parliamentarian (PPP-P). Mr. Dilpazir Awan, Nazim of Peerwadahi (elected public representative at the local level). Fauzia Habib, MNA, PPP-P. Mr Zammurd Khan, MNA, PPP-P. Moderator: Zafarullah Khan, Centre for Civil Education Pakistan. This event was designed to provide the citizens of Islamabad and Rawalpindi and their representatives a public forum in which to discuss methods of improving local and national governance throughout the country. The event brought the people face to face with their elected officials from all three levels of government. Politicians revealed that they felt frustrated by their attempts to carry out governance initiatives and help the public, and claimed that they were failing because the present system of sustainable democracy created by General Musharraf is preventing politicians from carrying out their responsibilities. They informed the attendees at the forum that they face huge obstacles in trying to address issues important to the public, and suggested that they were equal victims of a system that is controlled, tailored and manipulated by the military. The parliamentarians, thus, tended to absolve themselves of all responsibility, placing the blame for the current poor state of governance on the military. Citizens in attendance, however, refused to accept this argument and insisted that members of parliament could establish their independence and work diligently and sincerely for the people. It was pointed out that members of parliament could highlight key issues for the public through drafting private-member bills. Citizens argued that politicians should abolish injustice and corruption within the parties, and that parliamentarians should subordinate their personal interests and act on behalf of the public. Following the panelists presentations, members of the public were given an opportunity to ask questions and raise their own issues of concern. Among the issues highlighted were: citizens development needs at the local level; constraints on providing effective local governance; coordination among the three tiers of government; and the role of federal legislators in responding to citizens needs.

4 Public Forums on Good Governance: Pakistan The NDI-CCE sponsored forum was deeply appreciated and welcomed by everyone in attendance. The turnout was higher than anticipated, with approximately 130 participants, and members of the public asked the organizers to arrange such forums on a regular basis. FORUM TWO: KARACHI MONDAY, JUNE 30, 2003 Panelists Mr. Kunwar Khalid Yunus, Member of National Assembly MNA, Muttahida Qaumi Movement (MQM). Mr. Asadullah Bhutto, MNA, Provincial chief of Jamaa t-i-islami and Muttahida Majlis-i-Amal (MMA). Ms. Sassui Palijo, MPA, PPPP (Sindh). Ms. Nasreen Chandio, MPA, PPPP, on reserved seat for women; Mr. Shahid Khaqan Abbasi, General Councilor Union Council 175, North Nazimabad; Mr. Shahid Taj, Labor Councilor of North Nazimabad Town. Moderator: Mr. Zafarullah Khan, Centre for Civic Education Pakistan. The primary objective of this forum was to examine governance issues in the country s largest and most economically productive city, Karachi. One of the highlights of the event was the fact that a representative of Muttahida Qaumi Movement (MQM) shared the platform with his political archrival of the Muttahida Majlis-I-Amal (MMA). The parties rarely appear in public together, and the coming together for this event was seen as a very positive step for both representatives. Approximately 65 participants attended. Like the panelists in Islamabad, the members of parliament also largely absolved themselves of responsibility for the poor state of accountable governance in Pakistan. They pointed to the supremacy of the military over democratic institutions and the centralization of state powers in the office of the president as the primary obstacles to effective governance. Furthermore, party representatives were unable to offer solutions for overcoming the constitutional crisis between democratic forces and the military establishment. Other areas identified as needing reform included increasing the legislative capacity of the national and provincial assemblies, and improving the provincial government s utilization of funds. Citizens urged elected officials to be the protectors of the public interest, rather than pursuing personal or vested interests. Provincial Assembly Member Sassui Palijo (PPP) described the forum as the best political education available to citizens and their representatives; she asked that the organizers arrange many more such activities in the future.

Public Forums on Good Governance: Pakistan 5 FORUM THREE: PESHAWAR TUESDAY, JULY 22, 2003 Panelists Mulana Rehmat-Ullah Khalil, MNA, MMA, (ruling party in NWFP); Dr. Simin Mahmood Jan, MPA, PML-Q. Ms. Naeema Akhtar, MPA, MMA. Mr. Yaseen Khalil, Town Nazim, Peshawar (III); Mr. Nawab Khattak, Nazim Union Council, Peshawar. Moderator: Mr. Zafarullah Khan, Centre for Civic Education Pakistan. The forum in Peshawar was the first time an activity of its kind had taken place in the provincial capital of the North West Frontier Province (NWFP), according to a number of participants. Among those in attendance were women councilors from district and union councils, as well as citizens from various socio-economic sectors of society. The forum was attended by over 80 individuals and included representatives from the National Assembly, the Provincial Assembly and local government bodies. Panelists spoke of the need to address corruption in the effort to raise the level of governance; eliminating patronage politics would allow politicians to concentrate on public issues and deliver goods and services. Poverty and low literacy rates were highlighted as evidence of the ineffectiveness of local government. It was also stressed that there is a need for improving healthcare, raising economic standards of living, and increasing women s participation in politics. While there was heavy criticism of elected officials, some recognized that the government had attempted to introduce much needed reforms. Attention was drawn by some of the speakers to certain government policies which are designed to improve governance, such as a number of laws introduced to protect women s rights, and the Devolution Plan, which allows local representatives to directly address the problems of the people. This forum was more contentious than the others, pitting citizens against their elected representatives. Citizens emphasized the need for political parties to coordinate amongst themselves and work together to restore public confidence in the party system. Citizens were articulate in expressing their disillusionment and disappointment with their elected officials performance to date, drawing attention to the lavish lifestyles of politicians, the increase in the number of people living below the poverty line and the lack of basic services for the general public. Despite the heated discussions that took place, both members of the public and members of parliament recognized the need for such events and requested that such fora be organized on a regular basis in the future.

6 Public Forums on Good Governance: Pakistan FORUM FOUR: QUETTA MONDAY, AUGUST 4, 2003 Panelists Mrs. Asiya Nasir, MNA, MMA, on a reserved seat for minorities. Mr. Rahmat Ali Baloch, Member of Balochistan Assembly, MPA. Balochistan National Movement (BNM). Mr. Shafiq Ahmed Khan, MPA, PPPP. Mir Jan Muhammad Buledi, MPA, BNM. Mr. Qaharwadan, Nazim Zahrgoon Town, Quetta. Moderator: Zafarullah Khan, Centre for Civic Education Pakistan. Quetta, a city built to accommodate a population of 100,000, is now home to over 850,000 people, many of whom do not have access to even basic services such as water and electricity. This forum offered citizens an opportunity to express their grievances and raise their representatives awareness to the pressing problems at hand. Over 100 people came to the meeting, including a large number of women councilors, political and social activists, journalists and members of the public. Once again, historically rival representatives of the MMA, PPP and BMN were willing to come together to debate the critical political issues facing the public in Quetta. Most of the participants in the discussion agreed that educational facilities, availability of employment, health facilities, and justice for all are the basic ingredients of good governance. Elected representatives agreed that citizens democratic rights must be restored and that the public s participation in local, provincial and national politics should be increased. Each political leader demanded that all political schools of thought should be allowed to develop freely and without fear of discrimination. Panelists focused on corruption as a key obstacle to good governance and one that had to be addressed with urgency. One politician revealed being forced to pay a bribe of three hundred thousand rupees ($5,204) in order for development funds to be released. This experience raised deep concerns about the likelihood of ordinary citizens achieving justice if members of parliament had to engage in such practices. Several of the speakers also highlighted the importance of decentralizing the government, arguing that a fair division of power and resources between the federal and provincial levels is essential if the government is to accommodate its citizens needs. Representatives of the nationalist political parties blamed the federal government for not providing adequate funds for the development of Balochistan; city government representatives, however, defended the existing system. The interactive nature of the event was a unique opportunity for the citizens of Quetta to publicly question their representatives and articulate their concerns, and allowed elected officials to explain their views on governance issues in an attempt to

Public Forums on Good Governance: Pakistan 7 bridge the gap between citizens and their representatives. A vote of gratitude was offered to both CCE and NDI for enabling the forum to take place in Quetta. III. PARTICIPANT RECOMMENDATIONS Cards were distributed among the audience at the forums in Karachi and Peshawar to collect participants suggestions and recommendations for ensuring good governance. The following is a list of the issues they raised, as well as recommendations made by participants in the Question and Answer period during each of the four forums: Government There is a need for coordination among the three tiers of government. Corruption, a major problem in government, should be eliminated at every level. Members of the government and the opposition must subordinate their personal interests for those of the public. Government officials who are unable to address the needs of the public, should tender their resignation voluntarily. Government agencies should be made accountable to the National Assembly and its committees. Government policies and their implementation should be made transparent. Parliament should be allowed to vote on Legal Framework Order (LFO). The federal government should reshape the system of city and district governments. The government s devolution plan should be replaced by a new system that evolves from the grassroots. Civil society should play an effective role in maintaining a check on all pillars of governance. Citizens should form Governance Monitoring Committees. Political Parties Political parties should serve the interests of the country and Pakistani citizens. Party leadership should serve the people without discrimination or nepotism. Parties should develop strong internal accountability mechanisms. Parties should eliminate the practice of patronage politics. Corrupt politicians should be excluded from all the parties and should be penalized. Constitution and the Rule of Law The law should be respected and violations must be penalized. Citizens and their representatives should uphold the rule of law and maintain transparency in their dealings. The government should enforce the implementation of legislation.

8 Public Forums on Good Governance: Pakistan Supremacy of the constitution and the rule of law are crucial for good governance and the promotion of democracy. Military The role of the military and intelligence agencies should be minimized, especially in the political sphere. The military should not interfere in civilian affairs. Retired judges and army officials should not be given civil assignments or posts. Women Greater effort must be made by the government to promote women s education and political development. Women councilors should not be discriminated against, especially with respect to their share of government development funds. Women representatives should be given proper offices and decent working conditions. Other Issues The infrastructure to provide basic social services should be coordinated and improved. A greater effort should be made to increase the literacy rate. Water crises in Karachi and Quetta should be dealt with on a priority basis. Freedom of the press should be ensured. Forum Feedback Such forums should be conducted regularly. Good governance forums should be conducted in smaller cities as well. Citizens can contribute to good governance through freedom of thought and expression; this forum represents this spirit. Government functionaries should attend such public forums to respond to citizen s questions.

Public Forums on Good Governance: Pakistan 9 IV. CONCLUSION These four NDI-CCE organized public fora gave citizens an opportunity to articulate their concerns on the pressing governance issues facing Pakistan today. The forums also provided elected officials a venue to express their views on the state of governance in the country and account for the obstacles limiting their ability to carry out needed reforms. Such interactive events have been rare in Pakistan and serve as a mechanism for the public to hold accountable their elected representatives. Participants used these forums as opportunities to express their displeasure with the military s interference in civilian political affairs, calling on President Musharraf to allow the elected national and provincial legislatures to assume their responsibilities free of military interference. Participants, including members of parliament, also called for an end to corruption and greater transparency in government policymaking and implementation. The high demand for additional public meetings is a positive sign that citizens and elected officials alike are seeking mechanisms to ensure government transparency and accountability. Funding permitting, NDI and CCE would be interested in helping to organize similar forums around the country, allowing a greater number of Pakistani citizens and representatives to participate in the democratic process. NDI and CCE would also like to see local organizations or citizens groups use these forums as an example for initiating similar events themselves in their constituencies across Pakistan. Such forums provide a unique opportunity for the public to demand and receive feedback from politicians, and this dialogue has the potential to increase the government s capacity to positively address the needs of the people and bolster citizen s involvement in the political process.

10 Public Forums on Good Governance: Pakistan APPENDIX: NEWS ARTICLES Islamabad and Rawalpindi

Public Forums on Good Governance: Pakistan 11 June 28, 2003

12 Public Forums on Good Governance: Pakistan Karachi

Public Forums on Good Governance: Pakistan 13 The Nation: July 15, 2003

14 Public Forums on Good Governance: Pakistan Peshawar

Public Forums on Good Governance: Pakistan 15

16 Public Forums on Good Governance: Pakistan

Public Forums on Good Governance: Pakistan 17 Quetta