Civil Service reforms: breaking the cycle of failure

Pakistan has a long history of failed attempts at civil service reform. Each government announces ambitious plans to revamp the bureaucratic machinery, promising a more efficient, transparent and accountable civil service. Yet, every such effort ultimately fizzles out, leaving us back where we started. The root cause of this cyclical failure lies in who we entrust to lead these reform efforts - reform commissions dominated by retired civil servants who once operated within the flawed system they are now expected to reform. This approach can be likened to "asking the gatekeeper to change the rules of entry", as their familiarity with the system often limits their ability to pursue transformative change.

The problem with bureaucracy is not just about conflict of interest, it is also about perspective. Long-term civil servants understand the system deeply but often lack an outsider's vision for radical change. They are part of a culture needing transformation, typically focusing on maintaining the status quo or making small adjustments rather than challenging entrenched norms.

Consider the reform attempts that began with the 1973 Administrative Reforms and continued with efforts in the 2000s. Each initiative aimed at significant changes. Reform commissions have made recommendations, often focusing on issues such as pay scales, perks and procedural adjustments. However, these reforms have generally not addressed more fundamental cultural and structural issues, such as the fundamentally colonial design of the civil service in the country and the continuation of the anachronous service cadres that operate in parallel at both the federal and provincial services.

The rationale for a bureaucracy-led civil service reform frequently relies on their expertise and insider understanding of effective practices. However, this can also limit their perspective, tethering them to traditional thinking. It may be challenging for them to significantly change a system they have long supported, particularly if it involves altering certain established privileges.

Instead, we need reformers who bring a fresh perspective - experts, both domestic and international, who are not beholden to the system they need to change. Academics, policy specialists, professionals from the private sector and members of civil society must be at the forefront of these efforts. These are people who can bring innovative thinking, a willingness to challenge norms, and an unencumbered vision of what an efficient, responsive civil service could look like. Their leadership would focus on dismantling archaic practices and ensuring a merit-based, citizen-centric service, rather than protecting the old guard.

True civil service reform requires disrupting the cozy club of power and privilege that the bureaucracy has become. It demands leaders willing to ask uncomfortable questions, tackle corruption head-on, and dismantle the hierarchies that prevent talented individuals from rising through the ranks. This cannot be achieved by those who have benefited from the system their entire lives. If Pakistan is to build a 21st-century civil service, we need new champions - those with the courage and independence to see the flaws in the system and the resolve to fix them.

Previous reform attempts have failed to address the fundamental issue: the flawed structure of the civil service inherited from British colonisers. The British colonial administration's key motivation was to control a vast population of 390 million through an elite corps of westernised officials, whose number rose to just 4,000 at the time of Partition in 1947. These civil servants were ingrained with the mindset that local people were inferior, and they relied on influential landowners to keep the common people in line. This legacy has seeped into the current bureaucratic structure in Pakistan: bureaucrats still consider themselves the true, all-knowing rulers and look down upon common people and their elected representatives.

The colonial legacy of centralising power has significantly hampered the professionalisation and development of provincial civil services in Pakistan. Despite constitutional guarantees of provincial autonomy, especially reinforced by the 18th Amendment, the practice of appointing central bureaucrats to provincial positions has perpetuated a mindset more akin to ruling rather than serving, hampering the evolution of vibrant, effective provincial administrations. The chief secretaries appointed by the federal government often prioritise perks and privileges, favour central government employees over local talent, and resist the implementation of sustainable reforms that could enhance service delivery and governance at local levels. This systemic suppression prevents provincial civil services from emerging as robust structures capable of autonomous operation and local governance improvement.

Experience from advanced countries shows that effective governance happens at the grassroots level, and establishing a competent, efficient bureaucracy at lower tiers is crucial for meaningful service delivery.

Breaking free from historical and structural barriers demands a bold reimagining of civil service reform, focusing on transparency, accountability and genuine public service. The impetus for this change must come from those outside the entrenched system - innovators committed to transforming how governance operates, starting with leadership. The prevailing mindset, a relic of colonial rule, positions bureaucrats as rulers over the populace, not as servants to the public and their representatives. This outdated perspective necessitates a transformative shift towards governance that empowers rather than controls, spearheaded by reformers who are deeply invested in the principles of democracy and public accountability.

True reform requires the audacity to dismantle archaic structures, confront entrenched power dynamics, and re-center the civil service around citizen needs. We need courageous and innovative thinkers who are not afraid to challenge the status quo and reject mediocrity. The path to reform is not merely about changing procedures but about fundamentally shifting attitudes towards a culture of accountability and proactive public service. Now is the time to adopt bold new ideas and determined efforts to revamp the old guard, aiming to establish a civil service that genuinely embodies the spirit of service to the public. This is the cornerstone of good governance and the key to the nation's prosperity.