Fiscal transparency in Pakistan: rapid improvement in two provinces In Pakistan, public confidence in the state is undermined by poor service delivery and opaque governance arrangements. In 2014, Pakistan ranked 117 out of 168 countries in Transparency International s Corruption Perception Index. 1 For the people of Pakistan, greater insight into the structure and functioning of government finances, as well as decisions on tax and spending, would enable them to better hold their elected representatives to account. Such accountability can result in better quality of services, including health and education, at provincial and local levels. Budget transparency also acts as a powerful disincentive for corruption or financial mismanagement, and can foster greater trust in government. Briefing Note The provincial governments of Punjab and Khyber Pakhtunkhwa (KP) have embarked on a series of budget transparency measures as part of comprehensive governance and service delivery reforms, supported by the UK s Department for International Development (DFID). The reforms, which are being implemented by a consortium led by Oxford Policy Management, are strengthening the planning and management of public finances, and making service delivery more responsive to people s needs. Improved budget transparency in both Punjab and KP, which have a combined population of 125 million people, is an important part of this agenda. 1 www.transparency.org/country#pak.
Oxford Policy Management l Briefing Note Background In recent years, interest in the transparency of public finances, and accountability of fiscal decisionmaking, has grown around the world. This trend has been driven by several developments, including: the proliferation of good governance norms and standards that emphasise greater transparency, accountability and participation in government matters; the introduction of modern public financial management systems; the growth in the number of independent civil society organisations engaging with government decision-making; the widespread use of information and communication technologies around the world; and greater decentralisation and devolution of powers to sub-national levels of government, including the power to raise, allocate and spend public resources. 2 2 Open Budgets, Khagram, Fung, De Renzio (eds), Brookings Institution, Washington DC, 2013. 1 www.transparency.org/country#pak. 2
Fiscal transparency in Pakistan: rapid improvement in two provinces How is DFID s Sub-National Governance Programme supporting budget transparency? In 2014, with the support of DFID s Sub-National Governance (SNG) Programme, the provincial governments of Punjab and KP conducted budget transparency reviews to assess and benchmark the quality and transparency of their budget processes. The methodology for these reviews was based on that of the Open Budget Survey. This is an independent assessment of budget transparency, participation and oversight applied in over a hundred countries by the Open Budget Initiative (OBI), a global research and advocacy programme. At the time, OBI scores globally were not very impressive, with the average score among the hundred countries studied in the 2012 survey being just 43 out of 100. In the South Asia region, Pakistan scored 58 in the 2012 survey, India 68 and Bangladesh 58. The budget transparency reviews conducted in Punjab and KP identified significant room for improvement in budget transparency, with KP scoring 44 and Punjab scoring 55 out of 100. Public launches of the transparency reviews established a budget transparency baseline in each province. Since then, the SNG programme has supported each provincial government in the introduction of a number of transparency reforms. These seek to improve the communication of budget-related data and information and open up channels for citizen feedback and engagement. 3
Oxford Policy Management l Briefing Note Key transparency reforms Key transparency reforms have included the following: Budget execution reports provide an indication of whether or not the government is living up to the expenditure commitments set out in annual budgets. They also support planning for the next financial year by providing a transparent assessment of progress in implementing the previous year s budget. The SNG programme has helped the governments improve the frequency and coverage of these reports, as well as making their content more accessible. Citizens budgets were introduced in 2014. These publications highlight key features of the budget in non-technical language and a visually engaging format that can be understood by a general readership. They simplify the content of the budget, focusing on the information which is of relevance and interest to the general public. Citizens budgets are now produced annually in both Punjab and KP. A pre-budget statement is now published in each province, explaining the governments macroeconomic and fiscal policy and budget priorities. The statements are used in pre-budget consultations involving civil society and development partners. For instance, one such statement provided the basis for an extensive pre-budget session in Punjab s Provincial Assembly. Both provinces have introduced additional measures, not captured under the OBI survey methodology, which have also made important contributions to fiscal transparency. For example, a citizens feedback portal has been set up in KP (www.smart.pmru.gkp.pk). This provides budget information and a channel through which citizens can provide feedback on government services. Information from the portal is used by the government for grievance redressal and to improve service delivery. 4
Fiscal transparency in Pakistan: rapid improvement in two provinces In my view it will promote citizens understanding of budget, encourage interest in the budget-making and build pressure on the government to deliver on its budget commitments Dr. Aisha Pasha Rapid results As a result of these new measures, the two provincial governments have made marked improvements in budget transparency, ascending through the ranks of the OBI much more rapidly than could have otherwise been expected. The Budget Transparency Review score in Punjab increased from 55 to 67 between 2014 and 2017, while KP s score rose from 44 to 66 over the same period. To put these scores into context, at the country level in 2015, Pakistan was given a transparency score of 43, India 46, and Bangladesh 56. The figure below plots the two provinces, as assessed by the SNG programme, against the official international OBI rankings. This demonstrates a rapid improvement, which significantly outperforms other countries in the region, and Pakistan as a whole. 5
Oxford Policy Management l Briefing Note Figure 1 Punjab and KP in the OBI rankings BASELINE 2012 Rank Country OBI 1 NZ 93 2 ZA 90 3 GB 88 4 SE 84 5 FR 83 5 NO 83 7 US 79 8 CZ 75 8 KR 75 10 RU 74 10 SI 74 12 BR 73 13 DE 71 14 India 68 15 SK 67 16 CL 66 17 BG 65 17 UG 65 19 ES 63 20 ID 62 20 PT 62 22 HR 61 22 MX 61 24 IT 60 25 AF 59 25 PL 59 27 Bangladesh 58 27 CO 58 27 Pakistan 58 30 JO 57 30 PE 57 32 PG 56 33 GE 55 33 NA 55 33 Punjab 55 35 UA 54 36 HN 53 37 MW 52 38 GT 51 38 MN 51 40 AR 50 40 BA 50 40 BW 50 40 CR 50 40 GH 50 40 TR 50 46 KE 49 47 KZ 48 47 PH 48 49 AL 47 49 MZ 47 49 RO 47 49 TZ 47 53 LK 46 54 NP 44 54 Khyber Pakhtunkhwa 44 55 LR 43 55 ML 43 55 SV 43 58 AZ 42 58 NI 42 60 MY 39 60 RS 39 60 SL 39 LATEST 2015/2017 Rank Country OBI 1 NZ 88 2 SE 87 3 ZA 86 4 NO 84 5 US 81 6 BR 77 7 FR 76 8 GB 75 8 PE 75 8 RO 75 11 RU 74 12 IT 73 13 DE 71 14 CZ 69 15 Punjab 67 15 SI 68 16 GE 66 16 MX 66 16 Khyber Pakhtunkhwa 66 18 BG 65 18 KR 65 18 MW 65 21 PH 64 21 PL 64 21 PT 64 24 UG 62 25 AR 59 25 ID 59 27 CL 58 27 ES 58 29 CO 57 29 SK 57 31 Bangladesh 56 32 JO 55 32 PG 55 34 CR 54 34 KG 54 36 HR 53 36 SV 53 38 SL 52 39 AZ 51 39 DO 51 39 GH 51 39 KZ 51 39 MN 51 44 EC 50 45 HU 49 46 KE 48 47 BW 47 47 RS 47 49 GT 46 49 India 46 49 ML 46 49 MY 46 49 NA 46 49 NI 46 49 TZ 46 49 UA 46 57 BJ 45 58 CM 44 58 TR 44 60 BA 43 60 BF 43 60 HN 43 60 Pakistan 43 Source: Open Budget Survey data, and data from the SNG programme Annual Review. Note: The OBI Index only covers national budget systems, and the graphic shows where Punjab and KP would have ranked in the 2012 and 2015 indexes for illustrative purposes only. Baseline values are from the 2012 Open Budget Survey for Pakistan, India and Bangladesh; for KP and Punjab, they are based on the baseline which was conducted in 2014, against the 2012 budget. Latest values are for 2017 for KP and Punjab, as per the 2016/17 Annual Review, and the latest Open Budget Survey for Pakistan, India and Bangladesh (2015). 6
Fiscal transparency in Pakistan: rapid improvement in two provinces These new outputs and processes, rather than being one-off additions, have been integrated into the regular publication schedules of the finance departments in both Punjab and KP. As the governments have become more familiar with the production and dissemination of these publications, the SNG programme has scaled back its direct technical assistance. For example, the Government of Punjab developed and disseminated a citizens budget for fiscal year 2016-17 alone, and the programme s support has shifted to focus on incorporating the citizens budget and other transparency initiatives into the government s Budget Manual. This should ensure that they remain a standard feature of the provincial budget cycles for years to come. Long-term results Budget transparency is not a goal in itself, but rather a means of improving governance and the responsiveness of service delivery. It will take time for these longer-term impacts to be realised in full, but there are already promising signs in this direction. The package of transparency reforms has been successful in generating public interest in, and awareness of, public finance issues, and has become a tool for improved legislative scrutiny of the budget. Provincial budgets have also been picked up by the local and national press. For example, the KP citizens budget has been discussed on a series of local radio programmes, and received coverage in mainstream print media with an estimated reach of one million readers. 7
Conclusion UK Aid has been instrumental in the process of improving budget transparency in Punjab and KP. The SNG programme has helped provide a recognised framework and baseline for measuring budget transparency and has supported both governments in the development and publication of new and improved budget documents. Wide dissemination of these publications to citizens, civil society, media and local legislators has been key to building public awareness of budget and service delivery issues, and also to generating demand for these products, which are now considered a regular part of annual budget documentation in both provinces. About the authors Stephanie Allan is a consultant in OPM s Public Financial Management portfolio. She has expertise in strengthening the PFM systems and capacities in the centre of government and sector institutions, as well as in relation to cross-cutting issues, including financing for climate change, nutrition and child protection. She is was part of the team which developed the SNG Value for Money framework. Mohammad Fayyaz is a member of the OPM Pakistan Governance team, and a senior M&E advisor currently working with the SNG KP programme. His areas of expertise are developing monitoring and evaluation frameworks and systems, policy/strategy planning and service delivery reforms, and establishing results-based monitoring and reporting systems within the public sector. Khurram Jilani a pioneer in the SNG programme team in Punjab, is responsible for managing monitoring and evaluation of the programme. He is the custodian of log frame, work plan and M&E and ensures that all the programme s work remains focused on achieving the objectives of the programme. In addition, he holds a master s degrees in Economics and has over 10 years of experience in monitoring, evaluation and research of several donor-funded and private & public sector programmes. About Oxford Policy Management Oxford Policy Management (OPM) is one of the world s leading international policy development and management consultancies. We enable strategic decision-makers in the public and private sectors to identify and implement sustainable solutions for reducing social and economic disadvantage in low- and middle-income countries. We are supported by offices in the UK, Bangladesh, India, Indonesia, Nepal, Nigeria, Pakistan, South Africa and Tanzania. For further information, visit www.opml.co.uk ISSN 2042-0595 l ISBN 978-1-902477-31-2