NPO's role in shaping govt policies
This article is part of a comprehensive paper on Non-profit Organizations, being reproduced here in sections identifying various elements. Last month, we discussed 'government policy and future issues and now we move on to 'role in shaping government policies and examine the impact of non-profit organizations on the way policies are introduced, shaped and implemented. In particular, we answer the following questions: How and to what extent have non-profit organizations been important in introducing and shaping government policies? Do non-profit organizations bring issues to the government's attention at the national and international levels? Do they mobilize public concern? Do they bring legal action? How active are nonprofits in policy advocacy and how effective have they been? To what extent, if at all, are interest or umbrella groups in place that represent the non-profit sector or significant components of it on policy issues vis a vis governments and the public at large?

Overall, the non-profit sector of Pakistan appears to have had a role in the shaping of government policies that is disproportionate with respect to its relatively small size and short history. Broadly speaking, the impact has been registered in two ways. First, nonprofits perform a 'pilot project' role, demonstrating a superior way of service delivery subsequently adopted by government. Second, nonprofits undertake advocacy to promote policy reforms. Sometimes, the policy influence of non-profit organizations is exercised through participation in internal government for a, task forces, commissions and committees without having to put external pressure by building broad public support.

The first type of impact is in a sense a more direct role in influencing government policy. Many non-governmental organizations adopt innovative approaches to service delivery at various stages of project execution. These implementation methodologies may emerge over time as leading to more cost-effective, better targeted and more sustainable delivery. It is important to demonstrate then the replicability of such initiatives at a larger scale by establishing that success in such cases is not the outcome of particularly favourable circumstances or charismatic leadership. If such projects are advertised skilfully in government circles then, the prospects improve for incorporation of the particular project design or implementation methodology into large-scale government programs. It is in this way that particular elements of government policy on service delivery are shaped by non-profit organizations.

Perhaps, the biggest success achieved initially by non-profit organizations in shaping policy on governance structures and modalities of project management and execution is acceptance of the concepts of 'community participation' and 'peoples' empowerment'. This has involved a long struggle and dialogue with line departments, who traditionally saw people as consumers and beneficiaries but not as active participants in the execution of projects. This transformation has implied service delivery that is more demand driven, affordable and sustainable. Community participation has led to appropriate standards of provision and choice of technology. It has made the system more accountable and weeded out much of the inefficiency and corruption. Today, for example, line departments, like the Public Health Engineering Department (PHED), are executing rural water supply and sanitation projects with active involvement of local communities at all stages of planning, design, construction and operation.

Acceptance of the concept of 'empowerment' represents potentially an even greater revolution in thinking. Few years ago, this word was alien to government and treated with great suspicion. It was seen as a threat to proper governance. But now, thanks to the persistent efforts of the community of non-governmental organizations, there is increasing talk of people's empowerment through their social mobilization and greater participation in the process of governance.

Two of the most outstanding examples of non-governmental organizations which have been influential in demonstrating the value of community participation and people's empowerment are the Aga Khan Rural Support Program (AKRSP) in the Northern Areas of Pakistan and the Orangi Pilot Project (OPP) in Karachi. Their success has essentially been replicated in the 1990s by the establishment of national and provincial "Rural Support Programs" by government. These organizations are following the same methodology to the process of mobilization of village communities throughout the country and have already achieved success in areas like micro credit. It is also of considerable significance to note that the mechanisms for local governance in the Devolution Plan of the military government strongly emphasize the need for people's empowerment through the transfer of functions down to the lowest tiers of local government and by ensuring that the bureaucracy is made subordinate to elected representatives.

Despite government antipathy to the advocacy role of non-profit organizations, there have been significant successes. This has frequently involved a lot of preparatory work on a particular issue, from research to public dissemination of proposals and mobilization of public opinion. Often, years have elapsed from commencement of work on an issue to its incorporation into policy. For example, NGOs started work on issues related to the role of women in development and their status in the late 1970s, at a time when the process of Islamisation was underway in Pakistan under the military regime of General Zia-ul-Haq and in the wake of growing realisation by international agencies of the need to focus on gender inequality. It was only in the Seventh Five Year Plan (1988 to 1993) when official recognition was given for the first time to the problems of women and the need to reduce gender inequality. But even now, few programs and initiatives have been put in place to enhance the status of women. The present military government has constituted a Women's Commission (see Box 7), which has significant representation from non-profit organizations. The international donor agencies have also played a critical role in this field.

Greatest success has been achieved in influencing policy in areas where no policies existed and there was broad public consensus that something needs to be done. For example, the Human Rights Commission (HRC) has been able to pilot through the Senate its draft on the Bonded Labour Act. The presence of bonded labour, implying human exploitation of the worst form, in the areas of the country, which have extreme forms of feudalism, had been strongly condemned in the media and a public consensus had developed that this form of exploitation had to be removed. The HRC has also prepared a Law for the Disadvantaged, which envisages that disadvantaged people like women, children and minorities have access to quick redress in special judicial tribunals. This law was promulgated in the form of an ordinance, which has unfortunately lapsed. The HRC has also managed to get reforms introduced in other areas like juvenile justice and the electoral system. The annual report of the HRC is widely recognized, both nationally and internationally, as a comprehensive and objective statement on the state of human rights in Pakistan.

Similarly, Pakistan had no environmental policy for a long time. Non-profit organizations played the lead role in the formulation of a national conservation policy. Success has been achieved in the setting up of environmental standards and pollution charges. However, policy implementation has been weak. Environmental NGOs now have the task of monitoring the process of implementation and highlighting the costs of non-implementation of the policy.

In some cases, pursuit of the advocacy role by NGOs has implied resort to legal action. As mentioned earlier, many of the NGOs that campaign against honour killings of women have been instrumental in obtaining protection from the courts of women who were under threat. This has placed many of the leaders of such NGOs under the risk of retaliation by conservative groups and families of women who have sought justice. A coalition of local NGOs in the North West Frontier Province (NWFP) agitated against the large displacement of people by the Ghazi Barotha dam, and took the matter to the courts. This has compelled government to formulate a policy on the rehabilitation and resettlement of people displaced by hydel projects. In Karachi, where violation of zoning and building by laws by high-rise construction is rampant, non-profit organizations, like the SHEHRI, have sought redress through the courts. In a few landmark cases, judgments have led to the stoppage of construction and even demolition. The Building Authority is now monitoring the implementation of building regulations much more rigorously.

There have also been some major failures. Although the for-profit and the non-profit sectors have a major role in the provision of education and curative health services in the country, they have had little role to play in the formulation of education and health policies. In May 1998, some NGOs agitated publicly against nuclear blasts by Pakistan, but this effort was unsuccessful because no significant public support could be mobilized. At the time of the military takeover in October 1999, some NGOs criticized the change especially from the viewpoint of the possible threat to human rights. But in the face of widespread disillusionment of the people with the functioning of democratic processes, the transition to a military government was generally welcomed. However, the present military administration has preserved most of the fundamental rights and allowed considerable freedom of the press unlike previous military governments. This can at least partially be attributed to the emergence of a stronger and more mature civil society in Pakistan, which is more conscious of its rights. More recently, NGOs have protested against the draconian provisions of the blasphemy law. The Chief Executive of Pakistan, General Parvez Musharraf, initially promised to soften these provisions but changed his position under pressure from religious groups.

A positive development in recent years is that representatives of non-profit organizations have been invited by government to participate in committees, commissions, working groups and task forces constituted to recommend change in various areas. This represents clear recognition of the role that NGO's can play in the formulation of government policies. For example, soon after the military takeover a large number of standing advisory groups were set up to deal with various social and economic issues. NGOs have found significant representation in most of these groups. As highlighted earlier, perhaps in an ultimate act of recognition, the military government has inducted a number of distinguished members of the NGO community into key portfolios in federal and provincial cabinets. This has facilitated the role of non-profit organizations in the shaping of government policies.

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