GENERAL Parvez Musharraf is right in calling the Devolution Plan a silent revolution. Most revolutions tear the fabric of the status-quo but very few are able to deliver on promises as delivery mechanism is not a part of the revolutionary framework. Planners and managers usually deliberate on an evolutionary process of change avoiding the associated risks and threats of revolutions.

Pakistan is currently in the midst of a revolution brought about by the Devolution Plan as the implementation mechanisms are non-existent. The plan, if successful, will indeed bring about far-reaching changes never experienced before. The Nazims are the comrades of change in this revolution. But who will coach, guide and lead them to deliver results?

Our ‘Devolution Plan’ is designed on bottom-up basis instead of the traditional top-down approach. The Nazims are on their own. In order to exercise executive authority they have to rely on the district co-ordination Officer (DCO). The legislative power is with the councillors. There are no rules of business and no road maps. Finances are being provided for the uplift of the cities and towns but the Nazims are expected to make their own budgets and set their priorities. The old rules are no longer applicable.

The Nazims are expected to keep their paper work in order. Decisions have to be taken after a due process with documentary evidence. Budgets have to be approved and accounts audited. The records of councillor sessions and meetings have to be properly maintained. The files have to be moved and then properly stored. Public complaint and feedback mechanism have to be effective. Can the Nazims do all the above tasks on their own? The answer is a straight No? How can they be helped?

Most DCOs are experienced bureaucrats and know how to operate the existing system. As such they provided an important link with the administrative mechanism above. Interaction with the Nazim and the administration below has to be effectively established. If the revolution fails, the Nazims will be blamed while the DCOs will move on to counter future revolutions and change mechanisms. In other words, ‘if we succeed it is our victory but if we fail it is your defeat’.

Effective decisions require credible data. Unfortunately our information loops are flawed. The governor has formulated plans to visit all the districts of the province. The visit of the provincial chief executive (PCE) to the area can only be useful if the framework of data: collection, processing, monitoring and networking is properly implemented. Nazims must have access to correct information in order to effectively run their cities and towns. The PCE can act as a facilitator of the Devolution Plan.

The Nazims should be provided with guidelines to implement the revolutionary agenda in their areas. The NRB should have an ‘operations management group’ to prepare these frameworks and then monitor their implementation. In additional to the NRB guidance the Nazims should seek help from professionals in setting their priorities, preparing budgets and learning new management techniques including inter-personal skills and building consensus.

Empowerment of the masses and decentralization of authority is at the core of the Devolution Plan. Literacy is the basic building block of the nation. With a literacy rate of around 40% a major effort is needed in this area. After failing to meet the constitutional requirement of 100% literacy the Nazims are now expected to deliver on this important front. In order to lead the empowerment effort the Nazims must be empowered themselves. This calls for massive orientation and training for the elected representatives on the grounds of National Institute of Public Administration (NIPA), Administrative Staff College, Pakistan Staff College (Quetta), National Defence College (NDC), Pakistan Institute of Management (PIM), etc.

Decentralization is not abdication. Effective monitoring loops have to be developed for meaningful transfer of authority at the city and town level. Undue interference by the provincial or federal government is not called for but guidance and resources have to be ensured for the Nazims to function. If a legal opinion is sought or financial guidance is needed whom should the Nazim contact for quick answers. Again the NRB should be able to provide this professional expertise or the Nazims should be at liberty to appoint legal and financial advisers as the need arises.

In the 1973 Constitution there were concurrent areas that were eventually to be a part of the provincial set-up under an autonomous framework. The minister for law also acted as provincial coordinator to oversee the transfer of authority from the centre to the provinces. Now the cities and towns are becoming autonomous. There is a huge list of concurrent issues. The transition and transfer has to be planned to minimize the associated pain.

The PCE can play an important rule in defining the areas and then facilitating the transfer of power to the Nazims. Islamabad has enough experience of transferring power from the central to the provincial pool now that know-how can be utilized by the NRB in ensuring the decentralization of authority as required by the Devolution Plan. In addition to the ‘operations management’ group a devolution resource centre can also be established with head office at Islamabad and branch offices at Karachi, Quetta, Lahore, and Peshawar. The resource centre will be able to provide training and guidance at provincial level. Province-wide training programmes can be arranged to cover all districts.

The document archives at Islamabad is full of plans that never saw the light of day. Islamabad is strong at rhetoric and paperwork and weak at implementation. So far the NRB has acted independently with autonomy and resources.

Now that the plan is in the implementation stage it seems the NRB involvement has increased. Planners and architects have to be involved in all phases of development to narrow the gap between conception and delivery. In addition to devolution; the NRB is now getting involved in electoral reforms as well. Again the full implementation of these reforms including electoral rolls and elimination of constituencies will generate dissent and debate. So far the NRB has produced good conceptual frameworks now it must focus on the delivery mechanisms which are either inadequate or non-existent.

The people of Pakistan overwhelmingly support decentralization of power. The political parties have no major say in the devolution process. Judiciary is perhaps neutral as it largely remains unaffected. Bureaucracy, especially the future of the district management group (DMG) has been rendered un-certain by the Devolution Plan. The post of all powerful deputy commissioner (DC) has been abolished.

Most commissioners have