Strategy Document
United Nations Development Programme
Pakistan
Project Title
Strengthening Participatory Federalism and Decentralization
UNDAF Outcome(s):
4.1 The capacity of institutions to be more democratic and
accountable is strengthened, including, inter alia, the
engagement of civil society organisations, media and
academia ; 4.4 Strengthened decentralized Governance ;
Expected CP Outcome(s):
4. Strengthen governance and social cohesion
(Those linked to the project and extracted from
the CPAP)
1. Strengthened Inter-governmental relations for effective
management of the federation
Expected Output(s):
(Those that will result from the project and
extracted from the CCPAP)
2. Enhanced capacity of provincial government in policy
planning,
resource
generation
and
administrative
management in devolved sectors
3. Promoting representative and participative Local
government structures to enhance public service deliver
4. Enhancing social accountability and public awareness on
federalism and decentralization
Implementing Partner:
UNDP
Responsible Parties:
Ministry of Inter-provincial Coordination, Council of Common
Interest
Secretariat,
Inter-provincial
Coordination
Departments, Provincial Chief Minister’s Office, Provincial
Education, Health & Local Govt. Departments, Universities,
Higher Education Commission, Civil Society Organizations,
Forum of Federations
Brief Description
The 18th Amendment to the Constitution of the Islamic Republic of Pakistan has ushered in a new era of participatory
federalism and inter-governmental relations and represents a major change in the balance of political, legislative and
administrative power and distribution of fiscal authority and resources between the federal and provincial governments
in the favour of the latter. Hence, it requires wide-ranging changes in the structures and processes in realms of
governance, development planning and implementation, institutional development and capacity building. UNDP, being
the lead agency on issues pertaining to democratic governance and constitutional reform, has held national and
provincial consultations with key stakeholders to identify gaps and entry points for the project. The project will aim to
build capacities of key institutions supporting the federation, update legal, administrative and fiscal frameworks at the
provincial levels, strengthen governance systems at the local level, and build capacities of duty bearers. The project will
also target citizen participation in development planning and decision making. The overall outcome of the project will
contribute to strengthening of the democratic processes and institutions at the federal, provincial and local levels that
are responsive and accountable to citizens, and effective in equitable service delivery. The project will be implemented
through a Direct Implementation Arrangement under the guidance of the Project Review Board and will have four
provincial project management units along with a federal management unit.
Programme Period:
Planning Phase:
Phase I:
Phase II:
Key Result Area (Strategic Plan)
Atlas Award ID:
Start date:
End Date
Management Arrangements
2013-2016
2013
2013-2014
2015-2016
Strengthen governance
and social cohesion
00070684
February 2013
December 2016
Direct Implementation
2013 AWP Budget:
$1,122,090
Total resources required:
Resources required for Planning:
Resources required for Phase I:
Resources required for Phase II:
$ 15,685,751
$ 500,000
$ 6,909,000
$ 8,276,751
Total allocated resources - 2013:
$500,000
1
Situation Analysis
The 18th Constitutional Amendment passed in April 2010 is believed to have brought about a
set of comprehensive structural changes to guide and redefine the nature of governance in
Pakistan. It has not only revived but also re-oriented radically the democratic and federalist
fundamentals of the State of Pakistan. It is believed that the chronic disconnects between
Federation and its constituents have been bridged to a greater extent; and the broken contract
between state and citizenry is believed to be restored by the 18th Constitutional Amendment.
“In this sense of restoring balance between the Federation and Provinces, the 18th Amendment
has emerged as a landmark piece of legislation that could lead to a paradigm shift in Pakistan‘s
mode of governance and constitutional architecture.”1
The 1973 Constitution of Islamic Republic of Pakistan consists of 12 Parts, 27 Chapters, 280
Articles and five Schedules.2 The historic 18th Constitutional Amendment was passed
unanimously by the National Assembly on April 8th, 2010 and by the Senate of Pakistan on April
15th, 2010. Subsequently, the Amendment was signed into law by the President of Pakistan on
April 19th, 2010. The 18th Amendment has reviewed 102 Articles. Out of which 69 Articles were
amended, 20 were substituted, 7 articles were inserted, 3 were omitted, one was repealed.
Additionally, 11 recommendations were also enunciated, which falls within the executive
authority of the Government.
It has been analyzed by some experts that the “general tenor of the 18 th amendment was to
ameliorate the power-retentive effects of the previous amendments and to diminish, to every
extent possible, the feeling of distrust that the provinces had been harboring for each other in
absence of any form of power-sharing and autonomy from the centre.”3 Some analysts have
termed this spirit of reconciliation as the ‘new wave of political consensuses’4 in Pakistan. “The
first significant step is one that seeks to correct the distributive inequalities between Pakistan’s
provinces: the enactment of the 7th National Finance Commission (NFC) Award, an important,
corrective consequence of which has been the 18th Amendment.”5
Saeed Shafqat (2011). Civil Service Reforms and 18th Amendment, Forum of Federation and
Civic
Education
Centre
–
Pakistan.
[12
September
2011].
URL:
<http://www.civiceducation.org/wp-content/uploads/2011/08/Civilservice-reforms-and-the-18th-Amendment.pdf>.
1
There have been seven Schedules before the 18th Amendment, two were omitted therein.
3 Saeed Shafqat (2011). Civil Service Reforms and 18th Amendment, Forum of Federation and Civic Education
Centre – Pakistan. [12 September 2011]. URL: <http://www.civiceducation.org/wp-content/uploads/2011/08/Civilservice-reforms-and-the-18th-Amendment.pdf>.
4 Raza Ahmad (2010). The Endemic Crisis of Federalism in Pakistan, The Lahore Journal of Economics. [12
September
2011].
URL:
<http://www.lahoreschoolofeconomics.edu.pk/JOURNAL/LJE%2015,%20SE/02%20Raza%20Ahmad%20EDITED%2
0TTC%2011-10-10.pdf>.
5 Ibid.
2
2
It has been argued that the 18th Constitutional Amendment will reorient the architecture of
Centre-Province relationship with special reference to identity, autonomy and resource
distribution in the country. This could further influence and trigger the process of
decentralization in public policy agendas. The 18th Amendment will have a profound impact on
the way the country is governed and its economy is managed.6 There are a number of new
provisions, if put in practice, will strengthen policy, planning and finances of the provinces.
Provinces will have the right to raise domestic or foreign loans with the approval of the National
Economic Council, a body chaired by the Prime Minister with its Secretariat in the Ministry of
Finance. Provinces will collect the entire amount generated by excise duty on oil and natural
gas. Future National Finance Commissions cannot issue awards that reduce the combined share
of the provinces in the central ‘divisible pool’. In other awards, the amount given to the
provinces by the 7th Award has been frozen in time. The only discretion they have is to change
the proportions allocated to the provinces.7
Figure: Understanding the 18th Constitutional Amendment8
Ibid.
Ibid.
8
Amjad Bhatti. (2012). Democratic Devolution: Operational Manual on
Transition Management of the 18th Constitutional Amendment, Forum of
Federation and Centre for Civic Education – Pakistan
6
7
3
Challenges and Opportunities
In order to implement the 18th Amendment, an Implementation Commission was established
and the devolution of ministries was carried out in three phases between December 2010 to
June 2011, resulting in the devolution of the functions and powers of seventeen Ministries at
the Federal Government level. Since the start of the Fiscal Year (2011-12), provincial
governments have been attempting to devise plans and strategies that enable smooth and
effective implementation of the provisions of the Amendment.
Some aspects of the devolution process remain unsettled, and will naturally take some time to
stabilize as has been the case in many countries introducing sweeping constitutional reforms.
This is particularly true in relation to (i) the need for instituting appropriate mechanisms for
coordination between Federal and Provincial Governments; (ii) the resolution of sectoral
governance challenges at the provincial level, (iii) establishment of local governments, and (iv)
ensuring compliance of the constitutional provisions by both federal and provincial
governments.
The intentions for coordination are hampered by the lack of capacity of the CCI secretariat to
respond efficiently to requests by provincial governments; lack of opportunities for provincial
governments to interact with each other; and a lack of understanding among provincial
governments on how to access the CCI secretariat.
The devolution of ministries post-18th Amendment included some key social sectors that were
given to the provinces including health, education, women & development, youth, and social
welfare. Since Pakistan’s independence, provincial social sector departments have merely
assisted in implementation of plans and policies drafted by the federal government. The change
in functions and responsibilities post-devolution has directly impacted public service delivery.
Even though provinces now have the opportunity to tailor-make their social sector priorities but
they do not have the capacity to deliver them on ground. The immediate need is for provincial
social sector departments to map out their new functions and responsibilities. The governance
structure of these social sectors needs to be streamlined for improved service delivery and
management of these devolved services.
The 7th National Finance Commission (NFC) Award, adopted in March 2010, increased the
transfers from the federal government to the provinces. However, the terms of the Award were
set prior to adoption of the 18th Amendment and therefore did not explicitly take account of
the additional responsibilities provincial governments have acquired. While the 18th
amendment mandated that natural resources such as oil, gas and other minerals will have joint
ownership of both the federal government and the provincial government, there has been
strong criticism from the provinces of the federal government for not respecting this provision.
The joint ownership of natural resources would provide provincial governments with another
much-needed avenue for revenue generation. Another problem associated with resource
sharing is the fact that data is not available on the details of quantum of resources, pricing
structures, profit margins and funds collected to date by the federal government especially
after the passing of the 18th amendment.
4
Another key element of revenue generation by the provinces pertains devolved right to collect
taxes by the provinces. While the simple interpretation of the 18th amendment is that taxes on
goods will be collected by the federal government and the taxes on services by the provincial
governments, there is still lack of clarity in differentiation between various goods and services.
In order to increase its fiscal efforts, especially to collect General Sales Tax (GST) on services,
both Sindh and Punjab have established their own Revenue Boards9. Sindh Revenue Board
(SRB) has achieved its target of Rs. 25 billion in 2011-12 while for the year 2012-13, SRB is
estimated to collect Rs. 32 billion – an increase of 28% over last year estimates.
With the devolution of critical subjects to the provincial level, the provincial governments are
empowered to develop new laws and to amend existing laws. In particular, the amendment of
the Civil Procedure Code can be a critical piece of legislation that the provinces can amen since
the current Civil Procedure Code dates back to British times. Since the passage of the
Amendment, Punjab Government identified 72 laws that required changes out of which 45 laws
have been amended while 27 new laws have been approved by Cabinet10. In all provinces,
some laws are pending due to incomplete devolution of Workers Welfare Fund (WWF),
Employees Old-age Benefits Institution (EOBI), and Evacuee Property Trust.
Article 140A of the constitution calls upon provinces including FATA to establish a local
government system and devolve political, administrative and financial responsibility and
authority to the elected representatives of the local governments. The Election Commission of
Pakistan shall hold the local government elections; however, the timeline for conducting them
is not specified in the Amendment. Most of the decentralization reforms introduced under
Devolution Reforms of 2000 and Local Government Ordinance 2001 have been revoked in the
provinces. The absence of elected local governments in the provinces including FATA poses the
most significant risk to the Amendment in that not only does it violate the provisions of Article
140A—which make it mandatory upon provinces to establish strong, independent and
politically empowered local governments—but also poses severe limitations on improving
services and synchronizing budgets and planning processes with local needs. Since service
delivery and citizen-focused implementation takes place at the local level, this is an important
provision and the role of the Local Governments assumes great significance in the overall
context, intent and content of the Amendment. The Social Audit 2011-12 done by UNDP
showed that the general public was more receptive and supportive to the idea of an elected
local government that gave them not only a sense of belonging but also improved service
delivery. In the absence of a local government structure in provinces of late, citizens perception
and satisfaction with public sector services including education, health, roads, water services,
sewerage and sanitation, garbage disposal, public transport, and other utilities has reduced
drastically11.
Summarily, the envisioned impacts of the 18th Constitutional Amendment include:
9
Seidle, Leslie & Khan, Zafarullah, p. 28-29, “Federalism and Eighteenth Amendment: Challenges and Opportunities for Transition Management
in Pakistan”
10
11
White Paper Budget 2011-12, Department of Finance, Government of Punjab 2011
“Social Audit of Local Governance and Delivery of Public Service” UNDP 2012.
5
(a) Stabilizing Federation through Provincial Autonomy
As discussed earlier the Federation-Provinces relationships were deteriorating
since decades. Against this backdrop, the first and the foremost intended and
desired outcome of the 18th Amendment is to create an enabling environment
for the participatory federalism to flourish in Pakistan. The Amendment, in this
context, has taken major historic decisions where Federation-Center dynamics
would substantially change for the good and betterment of the people. The
delegation of much- demanded autonomy to the provinces in legislative,
executive, fiscal and administrative spheres is meant to bring a climate of
healthy competition and cooperation between provinces leading to strengthen
the essence of the Federation of Pakistan.
(b) Equitable Development through Devolution
Centralized and top-down development planning is considered to be the major
root- cause of the failures of development outcomes in Pakistan. This centralist
paradigm has not delivered social services to the people of Pakistan
proportionate to the financial resources allocated and spent. Pakistan thus has
become the history of wasted resources, missed targets, failed opportunities and
increased disparities in social development sector. The 18th Amendment,
however, has instituted a durable and constitutionally guaranteed process of
devolution by devolving subjects, functions, policies, planning and
implementation to the provincial domains.
With the policies, planning and programming related to service delivery in social
sector devolved to the Provinces, Federal planning bodies can no more design
and plan a development project without taking into account the provincial
representation and perspective (CCI, NEC, PC). The same is desired from the
provinces in relation to districts, only then top-down paradigm of development
could be replaced with the bottom-up perspective. Accountability and
representation are two key features of devolution which need to be
incorporated at every tier and sub-tier of development planning, management
and execution. This would usher in a new era of development through
devolution in Pakistan.
© Deepening Democracy through Representative and Accountable Governance
Unabated dictatorial disruptions have not allowed democracy to take roots in
the country. The 18th Amendment has provided an elaborate mechanism which
would lead broadening and deepening democracy in Pakistan. By correcting the
distortions in the assignment of executive authority at the federal and provincial
level, the 18th Amendment has also provided for the grassroots election in local
government jurisdictions. As popularly believed that local governments are the
nurseries of democracy, the timely introduction of elected local governments (by
the respective provincial governments) will deepen the democratic process at
the lowest tiers of the governance.
6
UNDP Flagship Initiative: The Process, Partners and Programme
The Process
UNDP Pakistan undertook provincial and national consultations to understand the needs of
both federal and provincial governments in implementing the 18th Amendment. The
consultations were held with eight major political parties, 16 key line departments of provincial
governments spread across all four provinces, 117 NGOs, key donors and international
development organizations, and academic research institutions. The findings of the needs
assessment were published in a report titled ‘Federalism and Eighteenth Amendment’. The
report identifies that the devolution process is still in the transitional phase and a number of
key issues need to be addressed to ensure compliance with the 18th Amendment. The Council
of Common Interests has emerged as a policy forum that can formulate and regulate matters
pertaining to Federal Legislative List Part-II. Since the passage of the Amendment, CCI has held
nine meetings with provincial governments making more effective use of CCI to resolve issues.
The devolution process has resulted in issues with reporting on international commitments,
policy development in social sectors, amendments in laws, and inter-governmental
coordination. The report also underlines the need to establish local governance structures,
which are mandatory under the Amendment, in all provinces to improve service delivery and
citizen participation. The role of the civil society is fundamental to ensuring proper
implementation of the Amendment including operationalization of Right to Education, Right to
Information and Right to Fair Trial.
The needs assessment exercise enabled UNDP to design a technical-assistance programme to
support both the federal and provincial governments in effectively implementing the different
aspects of the 18th Amendment. It is also pertinent to note that all four provincial governments
have formally requested for support from UNDP to support the devolution process and have
identified key interventions that they wanted UNDP to undertake. The Ministry of InterProvincial Coordination has similarly supported the intervention by getting project approval in
the 1st meeting of the Standing Committee of the Council of Common Interests. The nature and
components of the programme have been developed after extensive consultations with each
stakeholder involved and have ensured that there is no duplication of activities with other
development partners. There is ownership of the programme from both federal and provincial
governments including the political parties and bureaucracy.
Partners
Based on the needs assessment study, UNDP has launched a technical-assistance project to
Strengthen Participatory Federalism and Decentralization (SPFD) in Pakistan. SPFD is UNDP’s
7
flagship project to inform, facilitate, support and optimize the process of transitionmanagement at federal, provincial and grassroots levels.
UNDP has identified multiple stakeholders to cater to the different capacity needs of both
federal and provincial governments. However, the main government counterpart is the Ministry
of Inter-Provincial Coordination at both the Federal and provincial levels. Ministry of InterProvincial Coordination has historically played a minimal role in coordinating between
provinces and has seen the highest staff turnover due to the perceived lack of importance of
the functions of the department. Post-18th Amendment the role and responsibilities of the
Ministry of Inter-Provincial Coordination has changed drastically since they are the key line
department managing inter-provincial coordination on issues relevant to Federal Legislative List
II. Currently, the Ministry of Inter-Provincial Coordination at the Federal level is serving as the
Secretariat of the Council of Common Interests and handles all the matters relevant to jointmanagement subjects including setting of the CCI agenda and implementation of CCI decisions.
While the provincial counterparts are responsible for overseeing the implementation of CCI
decisions in their respective provinces and also are responsible for raising provincial matters at
the CCI Forum. UNDP will also have activity specific partners including different government
departments and civil society organizations; however, all programme work will be coordinated
through the Inter-Provincial Coordination Department/Division. Details of provincial
government partners are elaborated in the provincial strategies section.
Strengthening Participatory Federalism and Decentralization Project (SPFD) plans to establish
strategic partnerships with Universities, Research organizations, and civil society organizations
to implement project activities. These partnerships would facilitate project implementation and
diversify project’s footprint across the country. The overarching goal of establishing
partnerships is to implement key project activities in collaboration with these partners so that
there is greater ownership and long-term institutionalization of project initiatives. The project
team has also conducted an exhaustive literature review to identify universities, research
institutions and civil society organizations with published research on federalism, 18th
amendment and decentralization. The project plans to engage with eight public sector
universities that have already conducted research in different aspects of federalism and have
an expertise in the concerned subject area. Even though research facilities are weak in public
sector universities, the project sees it as an opportunity to inculcate a research culture and link
them up with key line government departments in provinces. Civil Society Organizations
including Forum of Federations and Center for Civic Education have been selected not only the
basis of their previous three-year program on 18th Amendment but also through an exhaustive
comparative analysis of the work done in this sector by CSOs. The media partners, PTV and
Radio Pakistan, are the only electronic media forums who are willing to provide air time for free
and have the largest terrestrial network in the country. The project has selected each partner
on the basis of their previous work in the subject area, research capacity, linkages with the
8
community and government counterparts, willingness to work with UNDP, and geographical
representation.
Advocacy
Figure: Implementation Strategy
SPFD Project will be implemented based on four key principles; i) Mapping, ii) Visioning, iii)
Piloting, iv) Replicating. Under mapping, the project will map out the contours of the 18th
Amendment and analyze the impact it has had on the operations of different tiers of
governance. The mapping exercise would include understanding the entries of the Federal
Legislative List II, responsibilities of devolved sectors in provinces, and conducting baseline
research for project activities. The purpose of the visioning exercise is to focus on using the
mapping research to identify and plan strategic activities that would most effectively aid the
transition management process in Pakistan. The interventions decided in the visioning phase
would not only be guided by research but will also be sensitive to the needs of project partners
and government counterparts.
Under the piloting principle, the project will implement model activities under each output to
have maximum impact and achieve desired results. The interventions implemented in this
phase will aim to enhance inter-governmental relations, social sector governance, local
governance and social accountability. A monitoring and evaluation framework will be
developed for each activity to ensure effective implementation of activities. The replicating
9
phase will be focused on learning from the piloting phase and expanding project activities to
address challenges of different aspects of the 18th Amendment. Advocacy and policy
communication will cut across all steps of strategy targeting stakeholder engagement and
ownership of the project. The underlying objective of the implementation strategy is to have
research-based intervention strategies that aid the implementation of the 18th Amendment.
Since the enactment of the 18th Amendment, there has been a growing research interest
amongst academia, civil society, and international development organizations to study its
implications and analyze its implementation process. In this regard, Lahore University of
Management Sciences hosted an international conference on ‘Federalism in Pakistan after 18th
Amendment’12. Research think tanks and civil society organizations including Center for Civic
Education13, Social Policy and Development Center14, Sustainable Development Policy Institute,
and Pakistan Institute of Legislative Development and Transparency (PILDAT)15 have published
papers on different aspects of 18th Amendment. International Development Organizations
including UNDP16, World Bank, UNODC, and Forum of Federations have commissioned multiple
studies to look at the challenges and opportunities in connection with the implementation of
the 18th Amendment. UNDP will have a collaborative approach in this programme to bring a
wide range of stakeholders interested in working on transition management challenges to learn
from each other’s experiences and share best practices.
Programme
The overall proposed outcome of the project is strengthened democratic processes and
institutions at the three tiers of governance that are responsive and accountable to citizens,
and effective in equitable service delivery. Strengthening Participatory Federalism and
Decentralization Project will be implemented in two phases; Phase I (2013-2014) and Phase II
(2015-2016). The focus of Phase I would be on providing immediate assistance on matters
pertaining to transition management and provincial autonomy to the newly-elected democratic
federal and provincial governments. While Phase II would be geared towards providing support
for institutional development, long-term sustainability of the federation, improved service
delivery and greater citizen engagement in the democratic process. In view of the pivotal
importance of the 18th amendment in the current political situation of Pakistan and its path
http://lums.edu.pk/news-detail/international-conference-on-18thamendment-at-lums
13
http://www.civiceducation.org/downloads/
14
http://www.spdc.org.pk/PubDetail.aspx?PID=1075
15
http://www.pildat.org/Publications/publication/PAP/Impactofthe18thCon
stitutionalAmendmentonFederalProvincesRelations-BriefingPaper.pdf
12
16
http://undp.org.pk/images/publications/18%20Amedment%20Report%20Last%2
0Final%20Report.pdf
10
towards democratization, the overall outcome will be achieved through four key pillars of the
programme:
I.
II.
III.
IV.
Equitable inter-governmental relations under federal framework
Decentralized governance focusing on social sector
Improved public service delivery through elective Local Government Systems
Enhanced social accountability and public awareness for responsive governance
Figure: SPFD Programme Outputs
Output I: Equitable inter-governmental relations under federal framework
Council of Common Interests is mandated to formulate and regulate policies respecting the 18
matters enumerated in Part II of the Federal Legislative List (FLL) and exercise supervision and
control over related institutions. This list includes some of the subjects that were previously on
the Concurrent List, which was abolished by the 18th Amendment, as well as several others.
CCI’s mandate thus covers a range of highly important domains, including: national planning
and national economic coordination; supervision and management of public debt; legal,
medical and other professions; standards in institutions for higher education and research;
electricity; and interprovincial matters and coordination. The federal government can only
legislate on subjects in Part II of the FLL after consultation with the provinces through the CCI.
Currently, the Ministry of Inter-Provincial Coordination serves as the Secretariat of the CCI and
the provincial Inter-Provincial Coordination departments serve as the focal points in the
provinces.
Under this output, UNDP will undertake capacity building of the Inter-Provincial Coordination
departments through trainings, provision of technical expertise, research, and knowledgesharing with federations around the world. Apart from capacity building, UNDP plans to
11
enhance greater collaboration between the IPC departments and encourage the departments
to pilot e-governance and RTI initiatives such as citizens’ portal on CCI. The key activities under
this output are:







Training Inter-Provincial Coordination department/division staff in intergovernmental relations, negotiation skills and devolution
Organizing an International Conference on Federalism and Decentralization to learn
from similar academic and practical experiences of other countries
Developing a database on devolution (to be housed at IPC) for establishing
institutional memory and documenting the devolution process with on-going
updates
Providing technical expertise to Inter-Provincial Coordination departments on
economic (including national debt) and legal affairs
Supporting Inter-Provincial Coordination departments in driving provincial agenda
for resolution of pending matters of the 18th Amendment
Enhancing greater collaboration and coordination between IPC departments for
improved inter-governmental relations
Modelling operationalization of Right to Information of citizens by disseminating
information regarding CCI decisions and their implementation through the IPC
department
Output II: Decentralized governance focusing on social sector
The concurrent list (with 47 subjects) stands abolished while the Provinces have been given the
additional responsibilities to handle select business of 17 federal ministries. Importantly, the
Provinces now have an exclusive role in policy-making in crucial sectors such as health,
education, agriculture and environment to name a few. With the renewed role of policy
formulation and target setting, provincial Governments can play a vital role in mitigating social
deprivation accumulated over the years of centralized rule in Pakistan. Provincial Governments
are best suited now to develop their decentralized service delivery mechanisms to create
citizens’ ownership and control on public goods, services and processes involved therein.
Since 2000, the efforts of the global development community especially UNDP have largely
focused on the pursuit of the Millennium Development Goals 2015 (MDGs). MDGs offer the
promise of a better life—a life with access to adequate food and income, access to basic
education and health services, and access to clean water and sanitation. However, the recently
launched provincial MDG reports in Pakistan reflect that it is going to be difficult for Pakistan to
meet most of the MDG targets by 2015. Since the social sectors have been devolved to the
provinces, it has become critical to work with the provincial governments in developing specific
strategies and goals geared towards achievement of MDGs.
Under this output, UNDP plans to work directly with provincial governments in supporting them
in drafting five-year development roadmaps, reviewing rules of business of government
12
departments, and establish inter-provincial forums on social sectors. UNDP will also support the
Chief Minister’s Office in installing SIGOB for effective management and monitoring of
government decisions. Linkages between academic institutions and relevant key line
departments will also be established for policy-driven research and analysis. The training of civil
servants remains a cornerstone of this output to ensure that there is greater understanding of
the process of decentralization and devolution amongst the duty bearers. Some of the key
activities under this output are as follows:








Assist provincial governments in developing five-year development roadmaps through a
consultative process with a focus on achievement of MDGs
Support provincial governments in reviewing Rules of Business to streamline roles and
responsibilities of government departments and functionaries
Establish Inter-Provincial Forums on Health and Education for collaboration and
information sharing amongst provinces
Implement SIGOB (Strengthening of Management Abilities for Governance) in Chief
Minister Offices for better monitoring and management of cabinet decisions
Providing technical expertise to provincial governments for setting up/supporting
Provincial Revenue Authorities
Introducing training course on federalism and devolution management at the Civil
Services Training Academy
Linking academic and research institutions with relevant provincial government
departments for conducting research to inform policy making
Assist provincial governments in setting up liaison offices in Islamabad for enhanced
coordination with the federal government
Output III: Improved public service delivery through elective Local Government Systems
This output will focus on supporting the provincial governments to further devolve power to
the local level as intended by the 18th amendment. This is critical for the implementation of not
only the letter, but the spirit of the Amendment by enabling ordinary citizens to have a voice in
decision making, planning and implementation of activities that will affect their lives. Districts
are the administrative constituents of any province, where actually most of the action and
service delivery will happen. It is feared if the authority, autonomy, responsibility and fiscal
space are not extended to or shared further with the lowest tiers of governance, it would
become impossible for Provinces to do justice with the portfolios assigned to them – thus
mutilating the dividends of vertical devolution.
The present local government laws across provinces including AJK, FATA & GB have large
variations in terms of the philosophy and understanding of the Article 140-A of the constitution.
Every Provincial Government has adopted a different strategy and the analysis underlying the
new laws and lessons learned from the past are missing. In most cases, the provinces have
done cosmetic changes to the previous local government legislation and approved a version of
it with a change in nomenclature. 18th Amendment provided provincial governments with a
13
unique opportunity to draft a new legislation on local governments that reflects the current
nature of provincial autonomy and devolves substantial power to local governments.
Under this output, UNDP will be working with the Local Government departments and
provincial Parliamentary Standing Committees on Local Govt. in drafting of legislation and
conducting stakeholder consultations on them. Local government competitive funds will spur
on innovation and competition amongst districts to bring about much-needed improvement in
public service delivery. Districts will have to come up with business plans that outline targeted
interventions to bring about reforms in service delivery and contribute to community
development. All these activities will be coupled with policy advocacy for holding local
government elections once the relevant laws have been developed. The key activities under
this output are:






Establishing technical working groups to support Local Govt. departments and
provincial Parliamentary Standing Committees on Local Govt. for drafting of local
government legislation
Conducting training of Local Govt. department officials in decentralization and
devolution
Establishing an Inter-Provincial Local Government Network for information sharing and
inter-provincial coordination on local government
Conducting district-wide consultations on draft local government legislation for citizen
feedback and engagement
Piloting and show casing models of effective service delivery through Local Government
Competitive Fund
Policy advocacy for conducting local government elections and development of
provincial finance commission awards for fair distribution of resources to districts
Output IV: Enhanced social accountability and public awareness for responsive governance
The purpose of public policy and reforms is to improve the quality of life for citizens. Yet, too
often the citizen and the benefits which are to accrue to them as a result of the reforms tend to
get pushed into the peripheries of both discourse and action. The 18th Amendment made Right
to Education, Right to Fair Trial and Right to Information as fundamental rights provided to the
citizens. However, efforts need to be done by the provinces to operationalize these rights.
The 18th Amendment provides ample opportunity for civil society engagement to optimize the
democratic devolution, but, currently there is a visible disconnect between policy formulation
and participation of citizenry in the process of implementing the 18th Amendment. In this
context, the role of civil society assumes great significance from three perspectives; i) It can
help mobilize citizens by raising awareness of what the Amendment brings for them in the
shape of rights and benefits and thus enable them to play a crucial role in advocacy on the right
implementation of the Amendment; ii) Civil society can serve as a watchdog on public policy
commitments and reform agendas to ensure accountability and transparency in governance;
14
and iii) Civil society has a significant role with special reference to social sector governance in
the Provinces. It is therefore essential to develop leadership among the civil society to audit the
performance of stakeholders by engaging with the process of implementation of the 18th
Amendment at Federal and Provincial levels.
Under this output, UNDP would focus on enhancing citizen’s participation in governance and
decision making processes so that government priorities are in line with public needs. The very
essence of the Amendment is to give power to the people; hence, citizen participation through
discussion forums, citizen scorecards, and constitutional literacy is necessary. The project will
set up discussion forums for the public to voice their opinion on issues of public interest and
service delivery. These forums will have expert panels and government officials to make them
more engaging and meaningful. The findings of these forums will be published in the form of a
white paper to be duly shared with the concerned departments. The project plans to engage
with universities to encourage greater research interest in issues of federalism and
decentralization. UNDP would also engage with media personnel in training them on
constitutional and governance reporting coupled with establishment of a Media Group on
Governance. Some of the key activities under this output are:







Conducting All-Party Political Dialogues on Federalism and Decentralization for
garnering political commitment
Setting up UNDP Fellowship on Federalism through Higher Education Commission
for encouraging academic research on different aspects of federalism in Pakistan
Establishing Media Group on Governance for monitoring and reporting of
constitutional and governance issues
Strengthen democratic foundations by involving youth across Universities on areas
of constitutional literacy, federalism and decentralization
Policy Advocacy for implementation and drafting of citizens’ Right to Information
laws by both federal and provincial governments
Conducting citizen engagement dialogues and discussion forums for raising
awareness and generating public discussion on issues of devolution and service
delivery
Enhancing social accountability and oversight through two cycles of Social Audit to
determine citizen’s perception of public service delivery
15
Project Implementation Cycle
Strengthening Participatory Federalism and Decentralization Project has been split it into three
key phases for ensuring effective project implementation: i) Project Planning Phase, ii) Project
Implementation Phase I, iii) Project Implementation Phase II.
Project Planning Phase (Jan – July 2013)
Indicative Budget: USD 500,000/Strengthening Participatory Federalism and Decentralization Project is a Directly Implemented
Project by UNDP. Since the project has both a political and a socio-economic dimension to it,
the project strategy needs to be aligned with the changing situation on ground. The focus of the
Planning Phase was to recruit key staff, streamline key activities for Phase I, develop
partnerships, set up the Project Office, and initiate resource mobilization. SPFD has established
key relationships with various government stakeholders including the Inter-Provincial
Coordination departments, Secretariat of CCI, Local Government departments, Chief Minister
Offices, CSOs, research think tanks and universities. In the meanwhile, UNDP has been able to
recruit key staff members and set up the Project Office in Islamabad. Provincial Offices are
planned to be set up in Phase I of the Project.
Project Implementation Phase I Strategy (Aug 2013 – Dec 2014)
Indicative Budget: USD 6,909,000
Project Implementation Phase I will focus on working with both the federal and provincial
governments on key prioritized areas to achieve maximum results and build a solid foundation
for the way forward in Phase II. In Phase I, the key project outputs identified in the Strategy
Document have been further streamlined to define specific activities that would help achieve
them. At the federal level, the project will be engaging with the Ministry of Inter-Provincial
Coordination (IPC) and Higher Education Commission. At the provincial level, SPFD will be
working directly with two provincial governments initially; Khyber Pakhtunkhwa and
Balochistan. The purpose of selecting these two provincial governments is primarily based on
the opportunities available in working on federalism and decentralization issues in each one of
them. In both provinces, there is great political will for such an initiative and government has
been forthcoming in highlighting their needs and identifying areas of support. However, SPFD
Project will engage with the remaining two provinces in the Project Implementation Phase II.
Since the Ministry of Inter-Provincial Coordination currently serves as the CCI Secretariat, SPFD
Project will work on building their capacity both in the short and long-term. In the short-term,
the Project has mutually agreed with the Ministry to conduct training of their staff on various
skills including Inter-Governmental relations management, Information Technology, and
Coordination. The focus of these trainings would be to improve their day-to-day management
of the affairs of the Secretariat and enhance coordination amongst the Federal and provincial
governments. The Ministry of IPC has requested support for provision of an economist and a
16
constitutional lawyer to their team. Currently, the CCI division of the Ministry is managed by
three officials (Secretary, Senior Joint Secretary and Section Officer). The existing staff lacks the
necessary technical skills required to comprehensively evaluate provincial summaries and give
constructive feedback on it. An Economist is needed to provide insights into debt management,
debt coordination, national planning and economic coordination issues that are all listed on
Federal Legislative List II. While a constitutional lawyer would support the Ministry in
identifying the necessary amendments needed in laws at both the federal and provincial levels
including interpretation of various entries of the Federal Legislative List II. In the short-term
local experts would be provided to fulfil these obligations; however, SPFD has indicated to the
Ministry that these positions need to be created within the government structure so that they
can become a permanent part of the Secretariat. It has also been agreed with the Ministry of
IPC to develop a ‘Database on Devolution’ that would be a repository of all devolution-related
notifications, legal amendments, CCI decisions & their implementation statuses, and other
relevant documents. The digital repository would create an institutional memory for the
government since transfers and postings of the staff results in a significant loss of valuable
resources. Similarly, a web-portal would be developed of the database to be shared with the
provincial IPC departments. The database will also have a citizen’s outreach component so that
certain information such as CCI reports could be made public for easy access by the citizens.
Database on
Devolution
Ministry of IPC
Staff Training
Provision of technical
expertise - Economics
/ Legal Affairs
Federal PMU
HEC
UNDP Fellowship on
Federalism
Figure: Federal Engagement
SPFD Project will be working with the Higher Education Commission to encourage academic
research in different aspects of federalism. UNDP is offering a Fellowship on Federalism to
MPhil students to pursue research thesis on different thematic areas relevant to Federalism in
Pakistan. The fellowships will be awarded to students from all provinces and regions of Pakistan
17
to ensure that the research culture is garnered in universities across Pakistan and greater
academic interest is generated in issues of federalism and decentralization.
Khyber Pakhtunkhwa Devolution Support
Khyber Pakhtunkhwa province, formerly N.W.F.P, had its long-standing demand of changing its
name met as part of the 18th Amendment. Khyber Pakhtunkhwa is home to 22.5 million people
with a strong cultural identity but varied ethnicities and religious affiliations. The province has
been at the centre of War on Terror and has faced the highest number of terrorist attacks in
recent years. Since the independence of Pakistan, both Khyber Pakhtunkhwa and Balochistan
have been demanding provincial autonomy and control over their own resources from the
federal government. The passage of the 18th Amendment coupled with the 7th National
Finance Commission Award helped to address some of those key demands. SPFD Project will be
initially engaging with the Inter-Provincial Coordination Department and Local Government
Department in Khyber Pakhtunkhwa.
Council of Common Interest’s is mandated to manage Federal Legislative List (FLL) II that covers
a range of highly important domains, including: national planning and national economic
coordination; supervision and management of public debt; legal, medical and other
professions; standards in institutions for higher education and research; electricity; and
interprovincial matters and coordination. The federal government can only legislate on subjects
in Part II of the FLL after consultation with the provinces through the CCI. The Inter-Provincial
Coordination Department (IPCD) in Khyber Pakhtunkhwa is the relevant line department
responsible for agenda setting, bringing provincial issues to the forum, overseeing
implementation of CCI decisions, and managing coordination between provinces. IPCD has
continued to be one of the weakest departments in the provincial government with no
significant weight associated to it until the passage of the 18th Amendment. SPFD will work to
build capacity of IPCD to turn it into a responsive institution. The engagement with the InterProvincial Coordination Department will revolve around training and capacity building of IPC
Staff. It has been mutually agreed that trainings of IPC Staff will be conducted on different
aspects of devolution, inter-provincial coordination, Information Technology and management
skills. Moreover, technical experts (Economist and Legal Affairs Specialist) will be provided to
IPCD for assisting them in developing and analysing provincial summaries along with overseeing
effective implementation of CCI Decisions. The ‘Database on Devolution’ developed at the
Federal level will have a provincial module developed for IPCD in Khyber Pakhtunkhwa. All
these activities combined will provide key assistance to the line Ministry in building their
capacity and improving their workings.
18
Provision of technical
expertise
IPC Dept
Training of IPC Staff
Database on Devolution
Khyber Pakhtunkhwa
Devolution Support Unit
Technical Working
Group established to
support development of
LG law
Local Govt. Dept
District wide
Consultations on Draft
LG Law
Training of LG Staff at
LG Training Academy
Khyber Pakhtunkhwa Assembly had passed a Local Government Bill in 2012 which was similar
to the Local Govt. Ordinance 2001. However, the provincial government was unable to conduct
local government elections due to the completion of their tenure. After 11th May Elections, the
newly-elected provincial government has promised to conduct local government elections;
however, the government wants to develop a new local government law prior to conducting
elections with input from and participation of all stakeholders. SPFD has jointly-planned with
the Local Govt. department and political leadership in the province to steer this process. A
technical working group would be established with leading experts to assist the local govt.
department and the provincial Standing Committee on Local Govt. to draft the law. The draft
law, once developed, would be opened up for Public Hearings and district-wide consultations
would be conducted to incorporate citizen feedback and have wider ownership of the law.
Historically, elected local government structures have only been present under military setups
in Pakistan and little power has been awarded to these structures. SPFD has a unique
opportunity to assist the drafting of a new local government law in both provinces that
accounts for service delivery, accountability and fiscal sustainability of local government
structures leading to long term stability and social cohesion.
19
Balochistan Policy Reform Initiative
Balochistan lags behind national averages on all MDG indicators and it is estimated that by
2015 none of the MDGs will be met in the province. The province continues to suffer from not
only terrorism but sub-national conflict with separatist elements fighting against the state.
Balochistan has been a vocal proponent of devolution, provincial autonomy and control over its
natural resources. However, the federal government had rejected its demands until the passage
of the 18th Amendment. The province has great political will in implementing the provisions of
the 18th Amendment but lacks the requisite capacity in many areas.
SPFD seeks to facilitate establishing Chief Minster’s Policy Reform Unit (CMPRU) in Balochistan.
The CMPRU would be responsible in providing technical assistance, generating requisite
knowledge base and undertaking policy research to develop post-18th Amendment policy
framework for an informed transition management in the province.
The CMPU would be responsible for:
 Studying the legislative, institutional and fiscal spaces provided to Balochistan by the
18th Constitutional Amendment and 7th National Finance Commission (NFC) Award;
 Focusing technical assistance on developing inter-sectoral policy frameworks, formulate
required regulatory frameworks, suggesting institutional designs, visioning, strategizing
and building scenarios for the Chief Minster, his Cabinet and the administrative
leadership responsible for social sector governance in Balochistan;
 Identifying strategic entry points at Federal, Provincial and local levels to optimize the
dividends of devolution for effective and improved service delivery;
 Facilitating evidence-based policy articulation at Council of Common Interests (CCI) to
secure optimum benefits of Article(s) 153 and 154 dealing with “shared responsibilities”
between Federation and the Provinces.
The Key Deliverables achieved in Balochistan would be:
 Review and Amendment in Rules of Business, Government of Balochistan
 Drafting law and developing institutional design for Balochistan Revenue Authority
(BRA)
 Policy Advocacy to operationalize Article 19 (A): Right to Information
 Policy Advocacy to operationalize Article 172: Joint Ownership on Natural Resources
 Review of/ multi-stakeholder consultations on Local Government Act 2010
 Drafting law and develop institutional design of Balochistan Higher Education
Commission
 Provide technical baseline for the drafting of Summaries; and review draft Summaries to
be taken up at the Council of Common Interest (CCI)
 Install SIGOB at CM Office
20
Social Accountability
Denial of rights and absence of forums for grievance redressal breed conflict and violence. The
Constitution of Pakistan provides citizens with enforceable rights as well as forums of
grievance- redressal, however, the awareness of such rights and forums remain abysmally low
especially among the vulnerable groups and communities in both provinces. The 18th
Constitutional Amendment has further broadened the base of fundamental human rights by
incorporating Article 10-A (dealing with right of fair trial); Article 19-A (dealing with right to
information) and Article 25-A (dealing with access to education).
However, the awareness about such rights amongst the rights bearers (citizens) remains
extremely low.
SPFD plans to launch a Constitutional Literacy campaign is aimed at informing conflict-ridden
communities about their justiciable rights and mechanisms to access these rights. The
Constitutional Literacy Drive will inform the communities especially targeting vulnerable groups
about fundamental human rights, government engagement and grievance redressal
mechanisms. Consequently, the engagement of the communities with formal institutions for
the compliance of rights would prevent emerging conflicts in the project areas and build
resilience of society to crisis. Moreover, the project will pursue policy advocacy for
operationalization of Article 19 – A and Article 172 to enhance the dividends reaped by the
citizens in the aftermath of the 18th Amendment. The project will also focus on training Media
personnel on matters of constitutional reporting and establish a Media Group on Governance.
The purpose of the coordination group would be to serve as a monitoring watchdog over the
federal and provincial governments for implementation of 18 th Amendment. Multi-stakeholder
discussions will be conducted with political parties, civil society, academicians and donors to
garner greater support for Federalism and Decentralization processes in Pakistan. And finally, a
course module would be developed for university students on federalism and decentralization
to enhance their understanding of such issues.
21
Key Activities of Project Implementation Phase I
Output
Key Activity
Strengthened
Intergovernmental
relations for
effective
management of
the federation
Training Inter-Provincial
Coordination Staff in InterGovernmental Relations, IT
& Management Skills
including Study Tours
Organizing International
Conference on
Participatory Federalism &
Decentralization: From
Framework to Functionality
Developing a web-portal of
Database on Devolution for
IPC
Enhanced
capacity of
provincial
government in
policy planning,
resource
generation and
administrative
management in
devolved
sectors
Geographic
Focus
Federal +
Balochistan +
Khyber
Pakhtunkhwa
Responsible Timeline Budget
Party
USD
IPC
2013-14 $200,000
Departments
Islamabad
UNDP,
2013
Forum of
Federations,
IPC, National
College of
Arts, HEC
IPC
2013-14
Departments
Federal +
Balochistan +
Khyber
Pakhtunkhwa
Providing technical experts Federal +
IPC
2013-14
(Economist + Lawyer) to IPC Balochistan + Departments
Khyber
Pakhtunkhwa
Developing 2 Operational
Islamabad
Center for
2013
Manuals on CCI &
Civic
Provincial Autonomy
Education
Pakistan
Conducting Research on 18 National
Universities 2013-14
subjects of FLL II
Sub – Total Output I
Support Balochistan
Balochistan
UNDP, CM
2013-14
Government in Reviewing
Office
& Amending Rules of
Business
Implementing SIGOB in
Balochistan
UNDP, CM
2013-14
Balochistan CM Office
Office
Providing technical
Balochistan
Finance
2013-14
expertise to Balochistan
Department
Government for
Balochistan
establishing Balochistan
Revenue Authority
Establish Inter-Provincial
Balochistan
UNDP, CM
2013-14
Forums on Health &
Office
Education
$150,000
$60,000
$216,000
$50,000
$40,000
$716,000
$20,000
$200,000
$125,000
$30,000
22
Introduce Training Course
on Federalism & Devolution
at Civil Services Academy
Assisting Provincial
Governments in setting up
Liaison Offices in Islamabad
Research on Social Sector
Governance in provinces
Balochistan + CSA
2013-14
Khyber
Pakhtunkhwa
Balochistan + CM Offices
2013-14
Khyber
Pakhtunkhwa
Balochistan + Universities 2013-14
Khyber
Pakhtunkhwa
Sub – Total Output II
Promoting
Establish Technical Working Balochistan + Local Govt.
2013-14
representative
Group to support
Khyber
Departments
and
drafting/review of LG Law
Pakhtunkhwa
participative
Conduct training of Local
Balochistan + Local Govt.
2013-14
Local
Government department
Khyber
Departments
government
officials in
Pakhtunkhwa
structures to
decentralization/devolution
enhance public Establish an Inter-Provincial National
Local Govt.
2013-14
service delivery Local Government Network
Departments
for information sharing and
coordination
Conduct district-wide
Balochistan + Local Govt.
2013-14
consultations on LG Law
Khyber
Departments
Pakhtunkhwa
Piloting & Showcasing
Balochistan + Local Govt.
2013-14
models of effective service Khyber
Departments
delivery through Local
Pakhtunkhwa
Govt. Competitive Fund
Sub – Total Output III
Enhancing
Launching Constitutional
National
CSOs, Bar
2013-14
social
Literacy Drive for citizens
Associations,
accountability
Press Clubs,
and public
PTV, Radio
awareness on
Pakistan
federalism and Setting up UNDP Fellowship National
HEC
2013-14
decentralization on Federalism
Policy Advocacy for
National
CSOs
2013-14
operationalization of
Article 19 - A (Right to
Information)
Development of a Course
National
Center for
2013-14
Module for University
Civic
Students on Federalism &
Education
Decentralization
Pakistan,
$75,000
$10,000
$50,000
$510,000
$150,000
$50,000
$50,000
$1,200,000
$1,000,000
$2,450,000
$500,000
$150,000
$500,000
$25,000
23
Universities
Establish Media Group on
Governance for monitoring
and reporting of
constitutional and
governance issues
Conducting multistakeholder political
dialogues on Federalism &
Decentralization
National
Media
2013-14
$50,000
National
Political
Parties
2013-14
$200,000
Sub-Total Output 4 $1,425,000
Project Management Support Cost (Federal + Provincial + GMS)
$1,808,000
Total Phase I Cost $6,909,000
24
Project Implementation Phase II Strategy (Jan 2015 – Dec 2016)
Indicative Budget: USD 8,276,751
The second phase of the Project would take lead from the Mid-Term Project Evaluation Mission
that would be fielded towards the end of Phase I in 2014. The purpose of the Evaluation
Mission would be to not only evaluate project performance but also to identify success stories,
implementation gaps, opportunities and way forward for the project. However, it is pertinent
to note that the focus of the project would continue to be on the four key strategic outputs.
The focus of Phase I has been on extending immediate support to the government coupled with
garnering ownership of the intervention. Project Implementation Phase II would seek to build
capacities of the government in the long-run with a focus on citizen engagement and
participation in the governance processes. The project will build on the lessons learnt from
Phase I to further streamline the interventions for Phase II. SPFD plans to reach out to Sindh
and Punjab in Phase II of the Project; however, the interventions with Federal, Balochistan and
Khyber Pakhtunkhwa governments will also continue.
The overall interventions in Phase II would be as follows:












Supporting Inter-Provincial Coordination departments in driving provincial agenda for
resolution of pending matters of the 18th Amendment
Enhancing greater collaboration and coordination between IPC departments for
improved inter-governmental relations
Support provincial governments in reviewing Rules of Business to streamline roles and
responsibilities of government departments and functionaries
Establish Inter-Provincial Forums on Health and Education for collaboration and
information sharing amongst provinces
Implement SIGOB (Strengthening of Management Abilities for Governance) in Chief
Minister Offices for better monitoring and management of cabinet decisions
Providing technical expertise to provincial governments for setting up/supporting
Provincial Revenue Authorities
Introducing training course on federalism and devolution management at the Civil
Services Training Academy
Linking academic and research institutions with relevant provincial government
departments for conducting research to inform policy making
Conducting training of Local Govt. department officials in decentralization and
devolution
Piloting and show casing models of effective service delivery through Local Government
Competitive Fund
Policy advocacy for development of provincial finance commission awards for fair
distribution of resources to districts
Policy Advocacy for implementation and drafting of citizens’ Right to Information laws
by both federal and provincial governments
25


Conducting citizen engagement dialogues and discussion forums for raising awareness
and generating public discussion on issues of devolution and service delivery
Enhancing social accountability and oversight through Social Audit to determine citizen’s
perception of public service delivery
26
ANNEXES
Annex – 1: Risk Analysis
Annex – 2: Donor Mapping Matrix
Annex – 3: Annual Work Plan 2013
27
Annex - 1
RISK LOG
Project Title:
Strengthening Participatory Federalism & Decentralization
#
Description
Date
Identified
Type
1
Security threat against
international organization
employees
July 2012
Environmental
-Security/Safety
Impact &
Probability
Award ID: 00070684
Countermeasures
Mngt response
/
Owner
Date: July 2013
Submitted,
updated
by
Last
Update
UNDSS
will
be
involved for security
SOPs
and
arrangement
for
project office and staff
.
CTA
Project
Initiation
P=3
I=3
UNDSS cooperation
will be sought to brief
military
authorities
about the scope and
nature of project.
UNDSS
Project
Initiation
P=3
I= 5
UNDSS
will
be
involved for security
SOPs
and
UNDSS
Project
Initiation
P=4
I=5
Operational
-Safety
being
compromised
Status
Political
-Armed conflict and
instability
2
Project establishment and
accessibility issues due to
security
situation
in
Balochistan
July 2012
Environmental
-Security/Safety
Operational
-Safety
being
compromised
Political
-Armed conflict and
instability
3
Movement of project staff
is restricted due to UN
Security regulations and
July 2012
Environmental
-Security/Safety
28
protocols
arrangement
project office
staff.
Operational
-Safety
being
compromised
for
and
Political
-Armed conflict and
instability
4
Lack of cooperation from
political and bureaucratic
leadership
July 2012
Political
-Political will
P=3
I=5
Project offices will be
strengthened
with
senior level experts to
engage
proactively
with
political
and
bureaucratic
leaderships.
PMU
Project
Initiation
Operational
-Project delivery is
delayed
5
Lack of political capital for
th
implementation of 18
amendment at provincial
levels due to disconnect
between top, middle and
lower tiers of political
leadership within political
parties
July 2012
Political
-Political will
P=3
I=4
Informal stakeholder
forums
with
participation
of
different echelons of
political parties will be
undertaken to deepen
understanding
and
th
implications of 18
amendment,
and
highlight challenges
in implementation
PMU
Project
Initiation
6
Continued low interest
and
understanding of
th
impact of 18 amendment
among
media,
civil
July 2012
Strategic
-Partnerships fail to
deliver
P=2
I=3
Mobilizing
public
opinion
through
engagement of civil
society, media and
PMU
Project
Initiation
29
society, and academia
academia is one of
the key focus of the
project.
7
Resistance
in
federal
bureaucracy to transfer of
human resource, functions
and assets to provinces
including AJK, FATA &
GB
July 2012
Environmental
P=4
I=5
Political leadership is
already cognizant of
this challenge and the
project will contribute
to strengthening fiscal
federalism in Pakistan
through its activities.
na
Project
Initiation
8
Lack of civil service
reforms in federal and
provincial public services
results in major gaps in
implementation
of
changes envisioned by
th
18 amendment
July 2012
Environmental
P=5
I=5
Political leadership is
already cognizant of
this challenge.
na
Project
Initiation
9
Political focus shifts to
issues
of
‘’pending
politics’’ such as creation
of new provinces, official
status
for
regional
languages, rather than
issues of implementation
th
of 18 amendment
July 2012
Political
-Political instability
P=3
I=4
Parliamentary
oversight committees
will be strengthened
through
UNDP’s
Strengthening
Parliament Project to
keep the focus on
addressing issues of
implementation
of
th
18 amendment
na
Project
Initiation
Issues of fiscal federalism
(over natural resources,
electricity,
transfer
of
revenues/taxes/assets)
July 2012
P=4
I=4
Project will strengthen
federal and provincial
information
exchanges,
na
Project
Initiation
10
Operational
-Project
delivery
suffers
Political
-Political instability
30
swamp
political
and
bureaucratic leadership,
creating conflict between
provinces including AJK,
FATA & GB or between
federation and provinces
including AJK, FATA &
GB,
and
delaying
th
implementation of 18
amendment
coordination
and
communication in key
government
counterpart
departments including
CCI secretariat and
IPC as well as hold
dialogue forums to
share
international
experiences
on
resolving
issues
around
fiscal
federalism which will
help to mitigate these
issues to a certain
extent.
Operational
-Project delivery is
compromised
11
Advocacy
efforts
for
devolution of power to
local governments and
local elections does not
gain traction
July 2012
Regulatory:
-Critical policies or
legislation fails to
pass or progress in
the
legislative
process
P=3
I=3
Project focuses on
capacity building of
both mandate and
duty
bearers
to
strengthen
local
governance and local
social
service
delivery.
PMU
Project
Initiation
12
Lack of capacity (human
resource, technical) in
counterpart government
departments
July 2012
Strategic:
-Partnerships fail to
deliver
P=4
I=4
Project will provide
technical assistance
to support counterpart
government
departments
to
address
technical
gaps.
NA
Project
Initiation
P=3
I=4
Engagement
of
political leadership at
federal and provincial
NA
Project
Initiation
Organizational
-Project delivery will
suffer
13
Attempts
by
federal
government to re-take
charge
of
devolved
July 2012
31
subjects and
new ministries
establish
Political
-Lack
government
commitment
leadership
will
strengthen
their
oversight
of
the
devolution process.
of
14
General
elections
in
Pakistan result in change
of
government
and
administration
July 2012
P=4
I=2
15
Weak / fragile coalition
government comes into
power
after
general
elections
July 2012
16
Lack of public interaction
with
international
development actors
July 2012
Political
-Adverse
public
opinion/media
intervention
17
Financial mismanagement
of project
July 2012
Operational
-Weak
internal
controls
Government
and
opposition
parties
have been part of the
consultative process
as part of project
preparation process
to ensure appropriate
interventions
are
designed with political
ownership.
NA
Project
Initiation
NA
Project
Initiation
P=3
I=2
All publications of
project
will
acknowledge
contributions
by
donors.
PMU
Project
Initiation
P=2
I=4
Project oversight will
be carried out through
a monitoring and
evaluation framework,
spot checks, and
audits
by
UNDP
Office of Audit and
Investigation.
PMU
Project
Initiation
P=3
I=4
Competitive market
salaries
will
be
offered to retain PMU
staff.
PMU
Project
Initiation
Political
-Adverse
public
opinion/media
intervention
18
Challenging to recruit or
retain well qualified staff in
some provinces.
July 2012
Organizational
-UNDP’s
strict
human resources
processes
and
procedures
32
19
Lack
of
coordination
between provincial project
offices
July 2012
Operational
-Complex
project
design
-Project
management
-Weak
project
delivery
P=3
I=5
CTA will be directly
responsible
for
ensuring coordination
between
different
provincial
project
offices.
PMU
Project
Initiation
20
Lack
of
coordination
between UN agencies and
other
development
partners on strengthening
th
implementation of 18
amendment
July 2012
Strategic
-Stakeholder
relations
-Weak programme
alignment
-Challenging
UN
Coordination
P=4
I=3
Project will establish
a coordination group
which
will
hold
monthly meetings to
coordinate activities
of
development
partners
on
the
support
being
extended
for
strengthening
implementation
of
th
18 amendment
PMU
Project
Initiation
33
Donor Mapping Matrix17
Organiza
tion
Project
Name
Project Description
Outputs
Budget
DFID
AWAAZ
Democratic processes in
Pakistan are more open,
inclusive and accountable
to citizens.
1. Gender Equality in £37,500,
Politics
000
2. Community Cohesion
and
Tolerance
3. Demand for Services
4. Evidence generated
and communicated to
policy makers
Spent
Project
start
End
date
UNDP
Intervention
£4,605,5
89
21/05/2
012
31/05/2
017
UNDP is not
directly working
in any of these
areas. As part of
our Federalism
program, UNDP
is
establishing
technical
working groups
with
the
provincial
governments to
assist in drafting
of
provincial
development
roadmaps.
The data reflected on donor interventions has been obtained from the respective websites and meetings
with various donor agencies.
17
34
DFID
Sub
National
Governanc
e - KP and
Punjab
Poor people in Punjab
and Khyber Pakhtunkhwa
provinces report that the
government
services
(especially health and
education services) are
better
meeting
their
needs
1. Strengthened sub- £15,378,
national
government 000
capability to deliver basic
services
2. Decisions by subnational
governments
are based on robust
evidence that is in the
public
domain
3.
Sub-national
government services are
more
responsive
to
people’s
needs,
particularly women and
girls
DFID
Education
Sector
Voice and
Accountabi
lity Project
The purpose of the Not Available
project is that education
system
is
more
accountable
to
the
population
£5,000,0
00
£3,623,2
60
1/4/201
1
31/03/2
017
£753,36
8
1/12/20
10
30/06/2
015
UNDP
is
planning to work
with
provincial
Education,
Health,
InterProvincial
Coordination
and Local Govt.
departments.
The focus of the
intervention with
both health and
education
departments is
on review of
rules of business
and enhancing
social
sector
governance
in
the
province.
UNDP is not
going to work on
service delivery
issues.
However, UNDP
will assist the
Local
Govt.
departments in
drafting of local
govt. legislation.
UNDP is not
going to work on
accountability of
education
sector.
35
Democratic processes in
Pakistan are more open,
inclusive, efficient and
accountable to citizens
1.
Citizens’
groups £11,500,
monitor performance of 000
elected representatives
and public institutions
and
raise
demands
which are increasingly
met
2. Elections are better
managed
and
more
inclusive and peaceful,
and political parties are
better organised and
more
responsive
to
citizens
3. Increased capacity of
FAFEN
organisations
and
associates
to
monitor
governance
issues, manage systems
and accounts, access
new
funding,
and
improve their credibility
DFID
Supporting
Transpare
ncy,
Accountabi
lity
and
Electoral
Processes
in Pakistan
(STAEP)
DFID
Innovation Increase in the number of Not Available
Fund
for innovative
solutions,
Education
which are proven to
increase access to quality
education and are taken
to scale
£3,000,0
00
£7,201,5
44
17/12/2
010
31/12/2
013
£976,88
0
4/1/201
1
9/2/201
4
The Federalism
project will only
be assisting the
provincial
governments in
drafting
local
govt. legislation
and conducting
stakeholder
consultations on
them. UNDP will
only be working
on e-governance
initiative with the
Inter-Provincial
Coordination
departments/CCI
Secretariat.
A
media group on
governance
would
be
established for
enhancing
reporting
on
constitutional
matters.
UNDP is not
going to work on
improving
access to quality
education.
36
DFID
Khyber
Pukhtunkh
wa
Education
Sector
Programm
e
Improve
access
to,
retention and the quality
of education for all
children in primary and
secondary schools of
Khyber
Pakhtunkhwa
Province in Pakistan
DFID
Punjab
Education
Support
Programm
e II
Improve
access
to,
retention and the quality
of education for all
children in primary and
secondary schools of
Punjab
Province
in
1. Wider access to basic
education, especially for
the most vulnerable and
chronically
underserved, with gender
equity.
2. Better supported and
more effective schools
(through
school
construction/rehabilitatio
n
and
improving
facilities, and use of
school
scorecards).
3. Improved teaching/
learning
methods
(curricula,
textbooks,
assessment).
4. Improved teacher
management (improved
teacher
development
and employment and
more women teachers).
5. Capable, accountable
and
responsive
management
and
governance
of
the
education
sector,
including public financial
management.
1. Better managed, more
accountable education
system.
2.
Better
teacher
performance and better
teaching
in
the
£143,500
,000
£33,646,
628
26/07/2
011
25/07/2
016
UNDP is not
planning
to
invest
in
education
service delivery.
£206,800
,000
£25,000,
000
1/4/201
2
31/03/2
019
UNDP is not
planning
to
invest
in
education
service delivery.
37
Pakistan
DFID
DFID
classroom.
3.
Better
learning
environment
in
all
schools.
4. More schools, with a
focus on low performing
districts
(LPDs).
5. Enhanced demand for
quality education from
parents.
Punjab
Improve
access
to, Not Available
£80,000,
School
retention and the quality
000
Education
of education for all
Programm children in primary and
eI
secondary schools of
Punjab
Province
in
Pakistan
Maternal
To improve access to 1. Improved delivery of £91,000,
and New- maternal and new-born Maternal & New-born 000
born
health services especially Health
Services
Health
for poor and marginalised 2.
Effective
and
increased demand for
MNCH
services
3. Improved decision
making through high
quality MNCH research,
advocacy
and
TA
4. Effective management
of MNCH programme at
all levels
£78,480,
858
16/06/2
009
30/06/2
014
UNDP is not
planning
to
invest
in
education
service delivery.
£58,377,
266
1/5/200
4
31/03/2
014
UNDP is not
planning
to
invest in health
service delivery.
38
DFID
Education
To provide children in
Fund
for Sindh Province, Pakistan,
Sindh
with a minimum standard
of literacy and numeracy
through innovative and
cost effective way to
provide quality education
at scale
DFID
Delivering
Reproducti
ve Health
Results
Programm
e
To improve reproductive
health and enable women
in Punjab (Pb), Sindh
(Sd),
Khyber
Pakhtunkhwa (KP) and
Federally
Administered
Tribal Areas (FATA) to
exercise their right to
choose whether, when
and how many children
they have.
1. Robust systems in
place to provide direct
support to children in
school for the 2012/13
academic
year
2. Agreements reached
with
intermediary
organisations to provide
indirect
support
to
children in school for the
2012/13 academic year
3. Targets reached for
Year 1 partner schools
and supported children
4. Effective technical and
commercial
capacity
developed within the
Fund
5.
Capability
review
completed
6. Risk management
plan updated
1. Increased availability
of quality reproductive
health services with a
focus on rural areas
2. Improved enabling
environment for women,
girls and men to avail
healthy
reproductive
health
choices
3.
Strengthened
accountability for results
at
all
levels
with
increased transparency
£37,055,
000
£2,179,1
77
1/4/201
1
30/04/2
015
UNDP is not
planning
to
invest
in
education
service delivery.
£17,139,
103
£1,411,6
81
2/7/201
2
31/10/2
016
UNDP is not
planning
to
invest in health
service delivery.
39
and use of innovative
approaches
DFID
Transformi
ng
Education
in Pakistan
Parents
mobilised
to
demand and political
leaders galvanised to
deliver, better education
for children in Pakistan.
1. Commitment from £8,112,2
leaders, political parties 67
and other influential
stakeholders
to
the
delivery of the right to an
education provided by
Article 25A of the
Constitution of Pakistan
2.
Media
enables
parents to hold teachers,
schools, politicians and
governments to account
for their failure to deliver
quality education for all.
3. Civil society mobilized
to demand education
reform.
4. More co-ordinated,
strategic and long term
support for the education
sector from Pakistan's
international
partners
5. Open source, shared
online platform provides
data and evidence on
education for decision
making and advocacy
£3,873,4
77
13/05/2
011
31/12/2
015
UNDP plans to
raise awareness
about Right to
Information. As
part
of
the
constitutional
literacy drive of
the
project,
UNDP will be
raising
awareness
about
all
fundamental
rights enshrined
in
the
Constitution of
Pakistan which
would
include
Article
25A.
However,
the
project is not
solely
focused
on
raising
awareness
about
article
25A.
40
DFID
DFID
DFID
Pakistan
Education
Task Force
Increased capacity of
Federal and Provincial
governments
to
implement
education
reforms set out in the
National Education Policy
The
Sustained political will for
Punjab
the implementation of
Education
education sector reforms
Sector
to
improve
access,
Reform
retention and the quality
Roadmap
of education for primary
school children in Punjab
Province, Pakistan
Provincial
To improve reproductive,
Health & maternal, new-born and
Nutrition
child health services to
Programm the population of Punjab
e
(Pb)
and
Khyber
Pakhtunkhwa (KP), which
comprises 70% of the
total
population
in
Pakistan.
Not Available
£2,817,4
04
£2,320,7
00
1/12/20
09
31/03/2
014
1. Implementation of the £2,100,0
Punjab Education Sector 00
Reform
Roadmap
successfully concluded
2.
Basic
physical
facilities
of
primary
schools improved
£1,906,3
30
1/4/201
2
1/5/201
3
1. Increased delivery of £131,999
quality
reproductive, ,999
maternal,
new-born,
child health and nutrition
services
2. Increased citizen and
civil society engagement
in oversight and demand
activities for improved
RMNCH and nutrition
services
3. Increased advocacy
with political leaders to
deliver better primary
and preventive health
care
especially
for
women and children
4. Increased capacity of
health
sector
at
provincial and district
level for delivery of
£13,154,
733
30/06/2
011
30/03/2
018
UNDP is not
working
on
implementation
of
National
Education
Policy.
UNDP is not
planning
to
invest
in
education
service delivery.
UNDP is not
planning
to
invest in health
service delivery.
41
improved RMNCH and
nutrition services
USAID
Municipal
Services
Program
Strengthen the capacity
of provincial governments
in vulnerable areas to
manage key municipal
services
and
meet
citizens' basic needs
through
infrastructure
upgrades and operational
reforms.
1. Improve basic service $119,924
delivery
to
achieve ,194
greater
transparency
and
accountability
2.
Assist
provincial
governments in urban
policy
formulation
program design, and
implementation
3. Upgrade provincial
information
systems
supporting
planning,
operations,
and
monitoring
and
evaluation
4. Deepen the capacities
of
local government
administration
1/2/201
2
1/9/201
6
USAID
Political
Polling
Project
Build the capacity of
Pakistan's political parties
by creating a public
opinion
research
institution capable of
1.
Create
Pakistan- $500,000
based research firm able
to meet international
standards
2. Using new research
1/6/200
9
1/6/201
4
UNDP is not
focusing
on
municipal
service delivery.
The focus of the
decentralization
program is on
local
government
legislation and
advocating
for
conducting local
government
elections.
The
training of local
government staff
will
be
undertaken
subsequently.
UNDP
Programme
does
not
address this.
42
meeting
norms.
international firm, complete three
national polls and at
least two rounds of focus
groups
USAID
Citizens'
Voice
Project
Foster
citizens' 1. Award up to 1,000 $15,500,
engagement in policy grants ranging in value 000
advocacy
and
good from
$25,000
to
governance.
$750,000 during the life
of the program
1/5/201
1
1/5/201
4
USAID
Health
Care
Manageme
nt Program
Strengthen public health
services in Pakistan in
the aftermath of the
devolution of power from
the
federal
to
the
provincial level.
1/1/201
1
1/1/201
4
1.
Improve
the $6,000,0
governance of provincial 00
health
departments
2. Provide training and
technical assistance to
provincial departments
of health and population
welfare so they can
effectively plan, budget,
coordinate, and provide
primary
health
care
services
3.
Enhance
the
knowledge and capacity
of leaders in the public
health
sector
to
UNDP is not
awarding grants
to CSOs for
fostering citizen
engagement.
The focus of the
Federalism
programme will
be on raising
awareness and
engaging
citizens through
consultations
and media.
UNDP plans to
contact
USAid
for
avoiding
duplication
of
any
activities
aimed
at
enhancing
governance
of
provincial health
departments.
43
implement
evidencebased maternal and
child
health,
family
planning, immunization,
nutrition, and water and
sanitation interventions
AUSAID
Communic
ation
for
Effective
Social
Service
Delivery
Works with local Social
Service
Committees
(SSCs)
and
local
governments
to
strengthen basic social
service delivery, focusing
on education, health and
safe drinking water in 11
districts
of
Khyber
Pakhtunkhwa.
$3,670,0
00
1/1/201
1
31/12/2
016
AUSAID
Education
Developm
ent
and
Improveme
nt Program
in
GilgitBaltistan
Early
Childhood
Developm
ent Project
in
Balochista
n
Expand access, support
equity and improve the
quality of the education
system in Gilgit Baltistan.
$12,460,
000
1/1/201
0
31/12/2
013
Improve the accessibility
and quality of education
in
remote
and
marginalised
communities
in
Balochistan.
$4,700,0
00
1/1/201
0
31/12/2
013
AUSAID
UNDP will be
working
on
building
capacities
of
elected
local
governments
and does not
plan to work with
Local
Social
Service
Committee.
The project is
only working on
citizen
awareness
in
Gilgit-Baltistan.
UNDP is not
working
on
education
service delivery.
44
AUSAID
AUSAID
CIDA
Khyber
Pakhtunkh
wa
Education
Capacity
Developm
ent Plan
Developing
the
Balochista
n
Early
Education
Sector
Plan
Supports the capacity of
the
Government
of
Khyber Pakhtunkhwa to
implement the Khyber
Pakhtunkhwa Education
Sector Plan and deliver
education services.
Support the Government
of
Balochistan
to
formulate a Balochistan
Education Sector Plan
that is locally owned.
$7,900,0
00
1/1/201
1
31/12/2
015
UNDP is not
working
on
education
service delivery.
$1,600,0
00
1/1/201
1
31/12/2
013
UNDP is not
planning
to
support
development of
Education
Sector Plan.
Pakistan
Electoral
System
Support
This project aims to
strengthen
the
management ability of the
Election Commission of
Pakistan and increase the
participation of voters in
Pakistan's
political
system. More specifically,
it seeks to improve the
credibility of the country’s
election
system
and
increase voter registration
and turnout.
$8,000,0
00
3/6/201
3
6/30/20
16
The Federalism
Project will not
work with the
ECP.
45
GIZ
GIZ
Support for
good
governanc
e
in
Pakistan –
administrat
ive reform
component
Capacities
and
procedures have been
put in place for raising the
efficiency
of
the
administration
and
elected
councils
in
Khyber
Pakhtunkhwa.
This will also help with
the implementation of the
future local government
act
and
provincial
development
policies,
especially the Malakand
Strategy and the PCNA.
The local government
system ensures greater
coverage and quality of
public services in a
change that particularly
benefits
women
and
marginalised groups.
Education Girls and boys in Khyber
sector
Pakhtunkhwa
province
developme receive basic education
nt
of improved quality that is
programm designed to impart life
e
in skills. In the Federally
Khyber
Administered
Tribal
Pakhtunkh Areas, the first steps
wa and in have been taken towards
the
improving capacities and
Federally
the
institutional
Administer framework, in order to
ed Tribal increase access to, and
Areas
the quality of education
1/1/201
0
31/12/2
020
UNDP
is
coordinating with
GIZ to ensure
that there is no
duplication
of
activities with the
Local
Government
Department
in
Khyber
Pakhtunkhwa.
UNDP will not
only be working
in
Khyber
Pakhtunkhwa
but plans to
support all 4
provincial Local
Government
departments.
1/1/200
2
31/12/2
015
UNDP will not be
working
on
education
service delivery.
46
(FATA)
GIZ
Promotion
of
Basic
Education
in Punjab
GIZ
National
basic
education
policy
programm
e
Health
sector
support
GIZ
Basic education in Punjab
has
improved
in
qualitative terms. It is
available for both girls
and boys and it reflects
the everyday needs of
real life.
Basic education for girls
and boys is designed to
meet the needs of
everyday life, and it has
been
qualitatively
improved.
The capacity of the health
system
to
provide
effective, efficient, clientoriented and financially
viable
health
care
services has improved.
1/1/200
6
31/12/2
015
UNDP will not be
working
on
education
service delivery.
1/1/200
6
31/12/2
015
UNDP will not be
working
on
education
service delivery.
1/1/201
0
31/12/2
019
UNDP will not be
working
on
health
service
delivery.
47
EU
Improving
Parliament
ary
performan
ce
Foster democratisation in
Pakistan by building up
the capacity of elected
representatives
and
institutions. The purpose
is to assist EU in
providing
support
to
Pakistan Parliament for
improving the three main
strands
of
its
parliamentary function law making, oversight
and representation. This
will be done mainly
through
provision
of
legislative
drafting/general
and
specific
thematic
research expertise
€
4,750,45
0
N/A
1/6/201
2
31/12/2
014
EU
Parliament
Watch and
Reforms
Project
(PWRP)
Ensuring transparency of
the Pakistan parliament
towards
the
public
through
civil
society
parliamentary
watch
activities and advocacy.
€
500,000
N/A
1/6/201
2
31/12/2
014
The Federalism
Project will be
partnering with
UNDP's
Parliamentary
Project
to
engage with the
provincial
standing
committees on
local
government/fede
ralism.
The
Project will be
engaging
with
the Council of
Common
Interests at the
Federal
Level
and
provincial
standing
committees as
well as Chief
Minister Offices
in the provinces.
UNDP will be
establishing
a
Media Group on
Governance for
reporting
on
constitutional
and governance
matters.
48
EU
Sindh
Education
Sector
Support
Programm
e
Assist the Government of
Sindh (GoS) towards
improving
its
management
and
its
service delivery in the
education sector.
Norway
Norway's
support to
education
sector
developme
nt
in
Pakistan.
"Norwegian
Government's Action Plan
for Combating Poverty in
the South towards 2015"
states that "Education is
the
most
important
weapon in the fight
against poverty".
€
25,500,0
00
Norway
would N/A
particularly consider the
following criteria and
areas of interest when
possible
further
cooperation is assessed:
N/A
13/2/20
12
12/2/20
16
UNDP
will
coordinate with
the
EU
Delegation
to
Pakistan
to
ensure that there
is no duplication
in activities with
the
Education
Department
in
Sindh.
N/A
N/A
UNDP is not
working
on
education
service delivery
Development
of
provincial
education
sector
programmes
Community
based
schools
Quality of education
Strategic
policy
interventions
Capacity building of
implementing institutions
49
Annex - 3
ANNUAL WORK PLAN 2013
STRENGTHENING PARTICIPATORY FEDERALISM AND DECENTRALIZATION PROJECT
Expected
Output
Activity Result
Activity
Details
Time Frame
Planned Budget
Q1 Q2 Q3 Q4
Output 1
Strengthened
Intergovernmental
relations for
effective
management of
the federation
Baseline:
1) Weak capacity
of CCI secretariat
and some IPC
Departments
2) Lack of
institutional
knowledge and
capacity of newly
assigned
functions/subjects
to various
government
departments and
hence weak
1.1.International
Conference on
Participatory
Federalism and
Decentralization:
From Framework
to Functionality
1.1.1 University of
Gujrat as the
Conference
Coordination
Partner (Event
Logistics,
Conference
Secretariat,
Coordination with
Academia)
1.1.2 National
College of Arts
serves as the
Conference
Creative Design
Partner (Art
Exhibition,
Communications
Material
Designing,
Website
Designing,
Conference
Branding)
X
X
X
X
X
X
Responsible Funding
Party
Source
University of
Gujrat
NCA
Budget
Description
Amount
UNDP
Training
Workshop
(75700)
72,000
UNDP
Training
Workshop
(75700)
22,000
50
ability of these
departments to
report on
international
commitments
Indicators:
1) Capacity of
IPC at federal
and provincial
department is
enhanced
Targets:
1. Hosting
International
Conference on
Federalism & IGR
2. Developing
database on
devolution
3. Publish reports
on different
subjects of CCI
Related CP
outcome:
4.1 The capacity
of institutions to
be more
democratic and
accountable is
strengthened,
including, inter
alia, the
engagement of
civil society
organizations,
media and
academia
1.2. Development
of Database on
Devolution
1.3. Provision of
technical
expertise on legal
& economic
matters
1.1.3 Forum of
Federations
serves as
International
Conference
Outreach Partner
(6 International
Experts &
Conference
Coordinator)
1.1.4 Direct
Payment for travel
of International
Participants &
conference
dinners
1.2.1 - IT
Firm/Individual
hired to develop a
web portal for
Ministry of InterProvincial
Coordination
(Federal +
Balochistan + KP)
1.2.2 - Provision
of IT Equipment to
Ministry of IPC for
effectively using
database
1.3.1. - 1
Economist & 1
Constitutional
Lawyer hired for
IPC Departments
(Fed + Bal + KP)
to assist in
evaluation/drafting
summaries &
research on CCI
subjects
X
X
X
X
UNDP
Micro Capital
Grant (72605)
22,000
UNDP
UNDP
Training
Workshop
(75700)
20,000
FOF
X
X
UNDP
UNDP
Local Consultant
(71300)
40,000
X
X
UNDP
UNDP
Equipment
(72200)
20,000
X
X
UNDP
UNDP
Local Consultant
(71300)
48,000
Sub - Total Output 1
244,000
51
Output 2
Enhanced
capacity of
provincial
government in
policy planning,
resource
generation and
administrative
management in
devolved sectors
Baseline:
(1)Provincial
departments
dealing with
devolved subjects
are tackling with
additional
workloads and
progress on legal,
administrative,
policy and fiscal
domains remain
2.1.1 Hiring of
Support Unit Staff
X
X
UNDP
UNDP
Service Contract
Individuals
(71400)
X
X
UNDP
UNDP
Equipment
(72200)
15,000
X
X
UNDP
UNDP
Local Consultant
(71300)
10,000
X
X
UNDP
UNDP
Local Consultant
(71300)
20,000
2.1.2
Establishment of
Provincial Office
2.1 Balochistan
Initiative on
Devolution
2.1.3 Initial
Assessment of
SIGOB
Implementation
2.1.4. Institutional
Review &
Amendment of
Rules of Business
24,000
52
slow.
(2) Provincial
departments
have low capacity
to develop
province-specific
legislation and
policies in many
domains of
devolved subjects
and functions
(3) Knowledge
base and skill set
of government
officials at mid to
senior levels
need to be
enhanced given
the new
constitutional
framework
Indicators:
1) Development
of Amended
Rules of
Business to
streamline
departmental
responsibilities
2) Enhanced
capacity of
government
officials to
operate and
innovate within
the new
constitutional
framework with
the help of
SIGOB
2.2 Research
Studies &
seminars on
social sector
governance in
provinces
2.2.1
Commissioning
Multiple Research
Studies on
devolved sectors
& social sector
governance in
provinces
X
X
UNDP
UNDP
Local Consultant
(71300)
15,000
Targets:
53
• Conduct Initial
Assessment of
SIGOB
• Conduct Review
of Rules of
Business
• Conduct
research study on
mapping of social
sector
governance
Related CP
outcome:
Strengthened
Decentralized
Governance
Sub-total
84,000
54
Output 3
Promoting
representative
and participative
Local government
structures to
enhance public
service delivery
Baseline:
(1) Balochistan,
KPK and Sindh
have formulated
local government
laws. Punjab is in
the process of
formulating the
local government
law.
(2)Citizens’
demand for local
government and
citizens’ feedback
on key social
services is well
documented
through 20112012 Social Audit
of Local
3.1 Review of
Local Govt.
Legislation
3.1.1 Advisory
support for local
Govt. dept. in
Baluchistan to
review the
existing legislation
X
3.2 Development
of Local Govt.
legislation
X
UNDP
UNDP
Local Consultant
71300
20,000
UNDP
Local-Int
Consultant
71300
72,000
3.2.1 Establishing
Local Government
Experts Technical
Working Group Assisting LG
Department and
Provincial Govt. in
developing LG
law in KP
X
X
UNDP
55
Governance and
Delivery of Public
Services.
Indicators:
(1) Local
government laws
in all provinces
are in line with
constitutional
principles, and
have a strong
element of
citizens’
engagement.
Targets:
1. Review of LG
Law in
Balochistan
2. Draft LG Law
developed in KP
with the support
of a Technical
Working Group
3.3 Public
Consultations on
Local Govt. Law
3.3.1 Conducting
Public Hearings
and Stakeholder
Consultations on
draft LG Law in
KP
Related CP
outcome:
Strengthened
decentralized
Governance
X
UNDP
UNDP
Training
Workshop
(75700)
Sub-total
Output 4:
Enhancing social
accountability
and public
awareness on
4.1. Constitutional
Literacy
Campaign
4.1.1. Campaigns
launched through
Schools, Media,
Press Clubs, Bars
in 5 selected
districts
200,000
292,000
X
UNDP, CSOs,
PTV & PBC
UNDP
Printing &
Publications
74210
55,000
56
federalism and
decentralization
Baseline:
(1) 18th
Amendment has
granted citizens’
constitutional
right to
information.
4.2. UNDP
Fellowship on
Federalism
(2) Right to
Information laws
have not yet
been passed by
any of the
provinces.
(3) CSOs and
media have not
internalized the
impact of this
new constitutional
right to
information.
(4) Youth and
women, the two
key demographic
groups, are
generally
marginalized in
the public policy
domains and
tend to few
opportunities and
platforms to
engage on
political,
economic, social
and civic issues.
4.3. Engagement
with Center for
Civic Education
4.2.1 MPhil
students offered
fellowship on
federalism
through Higher
Education
Commission
X
HEC
UNDP
SVC-Study &
Research 72125
30,000
4.3.1
Development of
Course Module on
Federalism in
Public Universities
X
CCEP
UNDP
Micro Capital
Grant (72605)
25,000
4.3.2
Stakeholders
consultation on
Right to
Information
X
CCEP
UNDP
Micro Capital
Grant (72605)
7,000
4.3.3 All Parties
Dialogue on
Federalism
X
CCEP
UNDP
Micro Capital
Grant (72605)
11,000
4.3.4
Development of 2
operational
manuals on CCI
and provincial
autonomy
X
CCEP
UNDP
Micro Capital
Grant (72605)
7,000
57
Indicators:
(1) Right to
Information laws
are formulated at
federal and
provincial levels
(2) Strengthen
platforms for
women and youth
to participate and
advocate on
public policy
issues
(3) Enhance
Academic
Research on
Devolution,
Federalism and
Decentralization
(4)
Targets:
1) Constitutional
literacy campaign
is launched in 5
districts
2) Establishment
of Media Group
on Governance
3) 2 Operational
Manuals are
developed on
Provincial
Autonomy & CCI
4) 12 fellowships
awarded to public
university
students
Related CP
outcome:
4.1 The capacity
of institutions to
be more
democratic and
4.4 Policy
Advocacy
Dialogues on
Operationalization
of Fundamental
Rights
4.3.5 Publication
of Citizens Wire
Articles
X
CCEP
UNDP
Micro Capital
Grant (72605)
25,000
4.4.1 Stakeholder
consultations
conducted on
operationalizing
Article 19-A
X
UNDP
UNDP
Local Consultant
71300
30,000
Sub-total
190,000
58
accountable is
strengthened,
including, inter
alia, the
engagement of
civil society
organizations,
media and
academia
5. Personnel &
Staffing Cost
5.1.1 National Staff
Salary
Project
Management
Cost
5.1.2 International
staff Salary
5.1.1.1 Salary of
National
Technical Advisor,
Provincial
Advisors,
Communication
Officer,
Operations
Manager, Admin
& Finance
Associate, Project
Officer, Driver
5.1.2.1 Salary of
Chief Technical
Specialist,
Relocation grant
X
UNDP
UNDP
Service
Contract-Inv
X
UNDP
UNDP
Salaries-IP Staff
61305
5.2 Rental &
Maintenance
5.2.1 Repair &
Maint. Vehicle
5.2.2 POL
5.3 Equipment &
Furniture
109,230
81,000
-
5.2.1.1 Repair &
Maintenance of
official Car
5.2.2.1 Fuel,
lubricants, oil
change
X
X
X
X
X
UNDP
UNDP
UNDP
Repair & Maint.
Office
equipment
73410
4,950
UNDP
Repair & Maint.
Office
equipment
73410
4,200
59
5.3.1 IT equipment
5.3.1.1 Laptop,
Printer, Copier,
Handy Cam,
Camera, Scanner,
Audio Recorder
X
UNDP
UNDP
Equipment &
Furniture 72200
5.4 Rent Building
5.4.1 Rent office
5.4.1.1 Rent office
building
X
UNDP
UNDP
Rental & Maint.
Premises 73100
5.5
Communication,
stationery &
Office Supplies
5.5.1
Communications
49,854
5.5.1.1 Landline
Telephone bills,
mobile bills,
postage, EVO
internet bill, office
internet bills
X
UNDP
UNDP
Communications
72400
3,650
UNDP
Stationery &
Office Supplies
72500
2,650
1,200
6,000
5.5.2 Stationery
5.5.2.1 Stationery
5.5.3 Office
Supplies
19,000
5.5.3.1 Office
Supplies
X
X
X
UNDP
X
UNDP
UNDP
Stationery &
Office Supplies
72500
X
UNDP
UNDP
Misc. Exp 74500
UNDP
Printing &
Publications
74210
5.5.4 Misc. Exp
5.5.5 Printing
5.6 DSA &
Trainings
5.5.5.1 Printing of
cards, brochures,
small booklet and
reports
X
UNDP
600
-
60
5.6.1 DSA
5.6.2 Trainings &
Workshops
5.6.1.1 Travelling
allowance, tickets,
trainings
5.6.2.1 trainings &
workshops
refreshment
X
X
X
UNDP
UNDP
DSA 71600
8,500
X
UNDP
UNDP
Trainings 75700
5,050
Sub-total
295,884
Grand Total
ISS
X
1,105,884
X
X
Total Budget for Year 2013
UNDP
UNDP
ISS 74525
16,206
1,122,090
UNDP CO TRAC Allocation 2013
500,000
Resource Gap 2013
622,090
61