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LaunchReport
ProcessOrientedPovertyFocusedGenderBased
AnalysisofPunjabBudget200910
RoyalPalmGolfandCountryClub,Lahore
6th
January2011
StrengtheningPovertyReductionStrategyMonitoringPunjab
Pakistan
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Table of Contents
Page no.
Executive Summary 01
Address by the Chief Guest 05
Presentation by Dr. Aisha Ghaus-Pasha 07
Discussants Comments-I 19
Discussants Comments-II 24
Question & Answer Session 26
Comments by the Chief Guest 28
Closing Remarks 30
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ExecutiveSummary
StrengtheningPovertyReductionStrategyMonitoring(SPRSM)Punjaborganizedalaunchof
thereport
Process
Oriented
Poverty
Focused
Gender
Based
Analysis
of
Punjab
Budget
in
a
localClubon6th
January2011.The report reviewsprocessesofbudget formulationwith the
objective to see how far poverty and gender concerns are embedded in these processes,
proposeschangesinPC1FormandBudgetCallCircular,identifiesthegapsintransferoffunds
andutilization;analysestrends inallocationsandspending inpropoorsectorswithagender
lens,assesses thequalityofdifferent interventions,and recommendsareaswhere increased
allocations shouldbemade.Theeventwas attendedby representatives from theacademia,
governmentdepartments,NGOsanddonors.
Dr. Allah BakhshMalik, Secretary Literacy Department,Government of the Punjabwas the
ChiefGuestinthelaunchofthereport.TheChiefGuestinhisinauguraladdressexpressedthat
it isheartening to see thatnow in collaborationwith StrengtheningPRSMonitoringPunjab,
Governmentof thePunjab ismoving towardsGenderResponsiveBudgeting.He termed the
initiativeof ProcessOrientedPovertyFocusedGenderBasedAnalysisasaworthwhileonein
the sense that it portrays light on not only less affluent marginalized and disenfranchised
citizensofthesociety, ithas inparticulartouchedupongenderthat isextremelyimportant in
thecontextofPakistan. StatingPakistanssituation in termsofHumanDevelopment Index,
netenrolmentratioandGenderParityIndex,hesaid,allthesethingstendthepolicymakersto
thinkandconcentratethatparticularlyallocationsaremadetothegenderbasedsectorsand
budgetshavetobegendersensitive.
The chief guest added that due to vagaries of nature and some of the things which were
beyond the controlwedetrackedbut still the government is committed thatbasedon the
resources available it will ensure that gender based responsive budgeting continues. He
stressedtheneedforrightallocationsonthebasisofgender,ruralurbandivide,andbackward
anddevelopedareas.
The inaugural address was followed by presentation by Dr. Aisha GhausPasha, Director,
Institute
of
Public
Policy
and
author
of
the
report.
She
first
introduced
the
context
of
the
report
by highlighting Pakistans commitment to Millennium Development Goals and gender
differences in various development indicators. She then briefed the participants about
different government initiatives like Gender Reform Action Plan and Gender Responsive
Budgeting Initiative. Following that she highlighted budget making process in 200910 and
stressed the need to institutionalize the processes to bring greater conformitywith gender
sensitive budgeting goals. Classifying various sectors (as per the Federal Poverty Reduction
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StrategyPapersapproach) intopropoorandnonpropoorandchoosingprowomensectors
fromthepropoorsectors,shepresentedtrendsofexpendituresduring200405and200809.
Sheshowedthatoverall,propoorexpendituresinthePunjabhavedemonstratedahighannual
growthrateof23percent.However,growth inprowomenexpendituresatabout20percent
stands
a
bit
lower.
She
told
the
participants
that
total
pro
poor
expenditures
of
Government
of
thePunjabin200809was60.5%oftotalexpenditureswhileprowomenexpendituresstoodat
31%oftotalprovincialexpenditures.Inthedevelopmentprogrammefor200910,prowomen
allocationswere28.5%of the totaloutlaywhileallpropoor sectorshad53% share. In the
totalprovincial expenditures (budget estimate) for the same year,prowomen expenditures
were32%whiletotalpropoorexpenditurewas64%.
Theauthoralso identifiedgaps inallocationsandexpendituresandnoticedthatmidyearre
allocations tend to result in more cutbacks in education sector, particularly women/girls
education.Inherrecommendations,shecalledformorepropoorexpendituresandmoreflow
offunds
towards
pro
women
sectors
like
education,
health
and
water
supply
and
sanitation.
She also stressed the need for propoor and prowomen allocations to be targeted to the
backwarddistrictsof theprovince.Shewasof theview thatgoalsof gendermainstreaming
requiregreatersensitization.Forthistoachieve,women legislatorsshouldplayamoreactive
role and capacityneeds tobebuild inprogrammes likeGRAP.Dr.Aisha also recommended
incorporationofGenderImpactStatementinPCI,PCIIandBudgetCallCircular.Afterwards,discussantssharedtheircommentsonthereport.First,Mr.RabNawaz,Secretary
Irrigation and Power Department, spoke. He said that various procedures in allocating and
spendingof
the
money
need
to
be
improved.
Particularly,
he
observed,
mid
year
re
allocations
shouldbeapprovedbythelegislature.Hecriticizedthewaypropoorsectorsaredefinedinthe
PRSP.Healsoopinedthatinsteadofincomesupportingprogrammesofvariouskinds,thepoor
shouldbeprovidedwithcapitaltobeapartoftheprocessofeconomicgrowth. Hewarned
thatresourceposition isnotgoingtobe improveduntilwearereadytotaxtherich.Healso
suggested that various interventions falling under the ambit of social protection should be
mergedintoasingledepartment.
Dr.AbdulQuddus,Director,PunjabEconomicResearch Institute, inhis comments suggested
that roadsmight not be considered a propoor sector as only a small part of its cost goes
directlytothepoorwhileusageofroadscantbesaidtobemorebeneficialforthepoor.He
also highlighted the need for building capacity in genderdisaggregating various data and
indicators.
A question and answer session ensued. Participants asked various questions regarding
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methodologyofthereportandeffectivenessofgovernmentalpoliciestoaddresspovertyand
genderconcerns,etc.
Dr.AllahBakhshMalik,SecretaryLiteracyDepartment,thenmadefewobservations.Hepraised
theproceedings
of
the
seminar
and
responded
to
few
points
raised
in
the
seminar.
First
he
spokeaboutincidenceofpoverty.Henotedthataftertherecentflood,povertyinPakistanhas
enormously risen. He observed, With this kind of poverty, what sort of macroeconomic
stabilityandwhatsortofsecurityandcertaintywecanexpect?Hemaintainedthatweshould
not forget thatbest thing foreconomicgrowth inanypolity is certaintyand stabilityof the
environmentinwhichweareliving.Inhisview,therayofhopeisthecivilsocietyinthecountry
thathasnowstartedtoplayitsroleactively.Hehowevermaintainedthatweneedtoimprove
the literacy,allocatemoreresources forthesocialsectorandtothepoorandtoensurethat
expenditureisnotmadeonbigroadsbutonfarmtomarketroads.Heexpressedhishopethat
bydoing
so
we
will
be
on
the
road
to
progress
in
the
years
to
come.
Chief Economist Dr. Muhammad Rizwan Taqi wrapped up the launch seminar with his
concluding remarks.He explained that thoughGovernment of the Punjab is investing large
chunksofmoney into socialprotection, poverty reduction and empowerment of vulnerable
sections in the society such as women and children, improvement in service delivery and
uplifting of the marginalized groups is not all about allocations and expenditures. Overall
governance is also crucially important if various polices have to bear desired fruits. Punjab
Governmentisalsofocusingonimprovinggovernancesoastoreducepovertyintheprovince.
He also informed that governmentof the Punjab hasnow special focus ondevelopmentof
backwarddistrictsofthePunjab.Heexpressedhishopethatthereportwillreceiveattentionof
thepolicymakersanditsrecommendationswillbeactedupon.Endingthelaunchseminar,he
thankedUNDPforitscontinuedsupportandthankedalltheparticipantsforgracingtheevent.
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PROCEEDINSOFTHELAUNCHSEMINAR
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AddressbytheChiefGuest,
SecretaryLiteracyDepartment,GovernmentofthePunjab
TheeventbeganwiththerecitationfromtheHolyQuran.Afterwards,Dr.AllahBakhshMalik,
Secretary Literacy Department, Government of the Punjab, who was the Chief Guest at the
launchseminar,wasinvitedtogivetheinauguraladdress.Thetextofhisspeechisreproduced
below:
BismillahirRahmanirRahim
LadiesandGentlemen,
Very
Good
Morning
and
Assalam
o
Alaikum!
ItisasingularhonortotalktothisaugustgatheringonthelaunchofthereporttitledProcess
OrientedPovertyFocusedGenderBasedAnalysisofPunjabBudget200910.
LadiesandGentlemen,
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Itisworthwhileinitiativeinthesensethatitportrayslightonnotonlylessaffluentmarginalized
anddisenfranchised citizensof the society, ithas inparticular touchedupon gender that is
extremely important in the context of Pakistan. Ifwe look theHuman Development Index,
Pakistan isoneofthe lowest. Ifwe lookatthenetenrolment ratio that isbarely55percent
again
one
of
the
lowest.
If
we
talk
of
Gender
Parity
Index,
again
it
is
one
of
the
lowest
around
theglobe.Soallthesethingstendthepolicymakerstothinkandconcentratethatparticularly
allocationsaremadetothegenderbasedsectorsandbudgetshavetobegendersensitive.
Ifweareabletoallocaterightamountofresourcesonthebasisofgenderandnotonlythat;in
termsofourruralurbandivide,intermsofourbackwardanddevelopedareasandintermsof
ourleastdevelopedandbetterdevelopeddistrictsonlythenthereisarayofhopethatinthe
near futurewewillbealignedwith theeconomicgrowthandeconomicdevelopment that is
required.
Itis
also
heartening
to
see
that
in
collaboration
with
Strengthening
PRS
Monitoring
Punjab,
Governmentof the Punjab ismoving towardsGenderResponsiveBudgeting.And the credit
goestothepresentredistributivecoalitionherebecausethepoliticaleconomyorthepolitical
decision making around is committed with resilience to achieve the objectives which are
focusedonGenderawarenessandpublicexpendituretrackingsurveys.
Overaperiodof timePunjabhas takena leadas compared tootherprovincesespecially in
particulartogenderbasedbudgeting.Unfortunately,duetovagariesofnatureandsomeofthe
thingswhichwerebeyondthecontrolwedetrackedbutstillthegovernmentiscommittedthat
based
on
the
resources
available
it
will
ensure
that
its
gender
based
responsive
budgeting
continues.
ImustcongratulateDr.MuhammadRizwanTaqi,theDirectorPERIandImustcongratulateDr.
AishaGhausPashaforthiswonderfulwork.And,Ithinkthatmaverick,mercurialideasthatare
comingupwillultimatelytransformintoactionandtherewillbeawinwinsituation.
Thankyouladiesandgentlemen.
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PresentationbyDr.AishaGhausPasha,
Director,InstituteofPublicPolicy
Dr. Aisha GhausPasha, author of the report, made a detailed presentation about
findings
of
the
report.
The
slides
of
the
presentation
are
reproduced
as
under:
By
Dr. Aisha Ghaus-Pasha
Director
Institute of Public PolicyBeaconhouse National University, Lahore
Process Oriented Poverty FocusedGender Based Analysis of Punjabs
Budget, 2009-10
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Introduction
Pakistan committed to Poverty Reduction andGender Equality
Millennium Development Goals
1. Eradicate Extreme Poverty and Hunger
2. Achieve Universal Primary Education
3. Promote Gender Equality and Empower Women
4. Reduce Child Mortality
5. Improve Maternal Health
6. Combat HIV/AIDS, Malaria and other Diseases
7. Ensure Environmental Sustainability
2
TREND IN GENDER RELATED INDICATORS, PUNJAB
MALE FEMALE
Literacy Rate
1990 45.5 24.2
2008 70.0 59.0
Combined* Enrolment rate
1990 36.4 23.62008 55.8 48.0
Fully Immunized Children
1995-96 48 47
2007-08 79 73
Access to Drinking Water
1995-96 19 19
2007-08 28 28
Labour Force Participation Rate
1990-91 83.6 16.9
2007-08 82.5 25.2
* Primary + Secondary3
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MAGNITUDE OF GENDER INEQUALITY INDEX FORPAKISTAN
(Ratio of Male to Female)
Educational Attainment
Index
Labour Force
ParticipationIndex
Gender
InequalityIndex
1973 148.8 196.7 148.6
1983 141.5 183.9 141.7
1993 136.2 172.1 135.9
2005 112.3 165.9 125.9
4
Backdrop to the Budget, 2009-10
Adverse Macroeconomic Developments- Slowing
down of Growth, High Inflation (especially food
prices)
Diversion of Public Resources to Law and Order
Shortfall of Revenues /Transfers from Federal
Governments (pre-NFC)
Difficult State of Finances of Punjab5
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Recent Reforms in the Planning andBudgetary Process
Poverty Reduction Strategy Paper and the
Medium Term Budgetary Framework
Long Term Planning and the Medium Term
Development Framework
Gender Reform Action Plan (GRAP)
Gender Responsive Budgeting Initiative
(GRBI)6
Gender Reform Action Plan (GRAP)
Main Budgetary Reforms
1. Engendering the PRSP framework
2. Amending Policy formulation process to make it moregender sensitive
3. Gender review of existing policies
4. Institutionalization of gender based budgeting
5. Adopt gender sensitive budget as an analyticaltechnique for gender sensitive resource allocation Institutionalize pre-budget dialogue with stakeholders
Gender based review of all sectors
Changes in budget making process (e.g. BCC, creationof new codes for women specific facilities, creation ofseparate sections in PSDP/ADPs)
7
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Gender Responsive BudgetingInitiative
Main Activities
Awareness raising
Gender based budgetary analysis
Gender sensitizing the budgetary process
Capacity building and Advocacy
8
Budget Making Process in 2009-10
Non-Development
Development Budget
Identification of Schemes
Approval of Schemes
Execution of Schemes
There is need to institutionalize the processes to
bring greater conformity with gender sensitive
budgeting goals
9
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List of PRSP Sectors
Pro-Women Sectors
Education Social Welfare
Health Water Supply & Sanitation
Population Planning Food Support Program
Un-Allocable
Roads Highways, & Bridges Food Subsidies
Natural Calamities & Other Disasters Low Cost Housing
Irrigation Law and Order
Land Reclamation Administration of Justice
Rural Development Khushal Pakistan
Rural Electrification10
TREND IN PRSP EXPENDITURES
Rs in Billion
2004-
05
2008-
09
Growth
RatePro-Women Expenditures 67.8 141.3 20.2 %
Total Pro-Poor Expenditures 120.4 275.4 23.0 %
Total Provincial Expenditures 199.2 455.5 23.0%
Pro-Women Expenditures as % of
Total
34.0 % 31.0 %
Pro-Poor Expenditures as % of total 60.4 % 60.5 %
11
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STRUCTURE OF PRO-POOR EXPENDITURE INPUNJAB, 2008-09
Current
Expenditure
Development
Expenditure
Rs in
Billion
%
Share
Rs in
Billion
%
Share
Pro-Poor Expenditure 163.0 57.7 101.4 58.5
Pro-Women Expenditures 97.7 34.6 32.6 18.8
Unallocable Expenditure 65.3 23.1 68.8 39.7
Total Provincial Expenditures 282.3 100.0 173.2 100.0
12
DEVELOPMENT PROGRAM IN PRO-POORSECTORS
% of Total
Allocations2009-10
Projection2011-12
Pro-Women 28.5 31.2
Unallocable 24.9 26.5
Pro-Poor Sectors 53.4 57.7
Other Sectors 46.6 42.3
Total 100.0 100.0
13
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GAPS IN ALLOCATIONS AND EXPENDITURESIN PRSP SECTORS
Revised as % of Budget
2004-
05
2005-
06
2006-
07
2007-
08
2008-
09
Total Pro-Poor Expenditure 104 121 107 77 97
Pro-Women 75 85 85 71 96
Unallocable 140 147 120 81 98
Other ProvincialExpenditure
109 109 123 109 120
Total Expenditure 107 113 116 94 109
14
Analysed over 600 schemes in Education and
Health sectors
Cutbacks more in education, particularly in
women/girls education
Tendency to spread the development outlay
across schemes. Allocations only proportion of
estimated cost (3% to 100%)
15
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Impact of Provincial Budget 2009-10
Number of relief measures in the Budget
Salary increase
Income & food support
Education, health, Agriculture
Low cost Housing
16
BUDGET ALLOCATION TO PRSP SECTORS IN PUNJAB,2009-10
2009-10
Allocations
(Rs in Billion)
% Share
2009-10
Growth Over 2008-
09 (%)
Pro-Women Expenditures 157.8 32.2 21.1
Education 70.2 14.3 -7.9
Health 58.9 12.0 39.6
Population Planning 1.6 0.3 30.2
Social Welfare 0.9 0.2 25.6
Water Supply & Sanitation 11.8 2.4 20.0
Food Support Program 14.2 2.9 -
17
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BUDGET ALLOCATION TO PRSP SECTORS INPUNJAB, 2009-10
2009-10Allocations
(Rs in billion)
% Share2009-10
Growth Over2008-09 (%)
Un-Allocable 157.7 32.2 14.4Roads highways, & Bridges 54.7 11.2 8.9
Natural Calamities & Other Disasters 1.1 0.2 -60.4
Irrigation 28.9 5.9 10.7
Land Reclamation 0.2 0.0 -1.0
Rural Development 7.9 1.6 -
Rural Electrification - - -
Food Subsidies 12.5 2.6 418.2
Low Cost Housing 3.6 0.7 -
Law and Order 43.6 8.9 10.1
Administration of Justice 5.3 1.1 21.4
Khushal Pakistan - - -
Total Pro-Poor Expenditures 315.8 64.4 19.4
Other Sectors 174.1 35.5 -8.9
Total Provincial Expenditures 489.9 100.0 7.5
* As per Provincial Budget Document18
Evaluated Social Safety Schemes
Wheat subsidy, Sasti Roti, Public Transport, Subsidized
Tractors, Food Support Schemes
Criteria: Gender orientation, Targeting efficiency, Extent
of coverage, Degree of ease of access, Share of program
expenditure of benefits, Adequacy of support, Income
equivalence of transfer, Extent of self financing, Degree
of impact on development
=> Highest scores Wheat: subsidies/Sasti Roti and Public
transport Subsidy
19
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Issue in Implementation Capacity
During 2009-10, over 4000 schemes under
implementation including over 3600 on-goingand 454 new schemes . Total cost of new
schemes was as much as Rs 493 billion ascompared to a throw forward of on-going
schemes of Rs 304 billion.
By the end of 2009-10,
Throw forward Rs 639 billion
Annual Development Outlay Rs 175 billion
20
Recommendations
Process and Procedures
Greater ownership with Departmental/Districtauthorities
More active involvement of women legislators(womens causus)
Improve internal capacity of GRAP
Incorporate Gender Impact Statement in PC1 and IIand BCC
Sensitization of goals of gender mainstreaming inplanning and budgeting process
GRB Analysis tools capacity within relevantgovernment departments
Focus on preparation of Gender Disaggregated
Statistics21
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Recommendations
Expenditure Allocations
7th NFC Award window of opportunity for
poverty alleviation and gender empowerment
in the province
Specifically focusing on backward districts
Minimise mid-year reallocations
22
Thank You
23
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DiscussantsCommentsonProcessOrientedPovertyFocused
GenderBasedAnalysisofPunjabBudget200910
Mr.RabNawaz,Secretary IrrigationandPowerDepartment,whowasSecretaryPlanningand
Development Department when the budgetfor 200910 was being made, was invited as a
discussanttosharehisobservationsafterthepresentationbytheauthor.Hisremarksaregiven
below.
BismillahirRahmanirRahim
Iampersonallygrateful toDr.MuhammadRizwanTaqi forgivingme thisopportunity.And,
whatevergood
or
bad
you
find
in
this
2009
10
budget,
Ialso
had
arole
to
play
in
that.
Let
me
firststartwithwhatIthinkofDr.Aishasstudy.Iamextremelyimpressedbyit.Myonlyissue
withthereportisthatitprobablydoesnotcovertothatextenttheoverallmacroenvironment
inwhichwemakethesebudgets.And,that isprobablythemost importantfactor inhowour
budget making take place and because that very process again determines how we treat
povertyandhowwetreatgenderissuesthroughourbudgets.
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Ifyouaskmetherearethreelevelsinournationalpolitywhichultimatelydeterminehowwe
aretreatingthelessprivilegedsegmentsofoursociety.Oneisthemacrolevelwhichisbasically
yourpoliticocultural environment inwhichwe all in variousdimensions areoperating.And
thereisamesolevelwhereallthisbudgetaryallocationsandbudgetsanddifferentinstruments
take
place.
And
then
there
is
a
micro
level
where
the
departments
come
in
and
how
they
are
implementingtheirbudgetsandwhattheydowiththeirallocations,whatkindofcapacitythey
haveandwhytheyarenotabletoutilizetheirfunds,etc.
Anotheraspectthatshouldhavecomeupmoreloudlyinthisreportistheprofessionalcapacity
and professional autonomy of your two most important departments which deal with the
budgetmakingandthesearetheP&DDepartmentandtheFinanceDepartment.And,againin
this politico cultural environment what kind of professional capability and what kind of
professionalautonomythesetwoinstitutionsenjoy.
Another thing, which I think would have added value to this report is the analysis of
differentiatingbetweentheslogansandthecommitmentsandthereisawholelotofdifference
[betweenthesetwo].Thereisalotofwindowdressingintermsofourcommitments.Starting
fromPRSP, Ihaveserious issueswithourPovertyReductionStrategyPaper.Because ifthat is
the foundation then itsaverywrong foundationbecause thendown the line it isdistorting
everythingforexample, intermsofallocation,whatwecallthepropoorexpenditures.Ihave
an issuewiththat.Howtheyarepropoor.Howtheydirectlybenefitpovertyreduction. Ifwe
have increased the propoor allocations by 23 percent over the last three years what
proportionate poverty reduction has taken place in the province? Logically, it should have
caused some dent in the poverty in the province. Has it happened? And if that has not
happenedthenitshouldhavebeencoveredinthisreportthatwhereistheproblemthen.
Letmegetawayfromthereportalittlebitandsharethethingswhichhesitatedmymindwhen
IwasatthePlanningandDevelopmentDepartment.Whenwetalkaboutpovertyandgender
basedbudgeting,whatwearetalkingabout.Weareessentiallytalkingaboutempowerment.
Wewant to empower theweaker segmentsof the society tobecome selfrespecting,more
productive people who have more choices, who have much more equitable share in the
available resources to improve theirown lives.Now forme themost importantempowering
instrumentin
any
society
is
the
rule
of
law
in
its
all
dimensions.
If
you
have
rule
of
law
then
all
theselowerlevelinterventionswhethertheyarebudgets,whethertheyarelandrights,women
rightstheyallworktogethertobringaboutthechangeyouare lookingat.Thebudget isone
littleinstrumentinwholeschemeofthings.Butifruleoflawisnotinplacewhichunfortunately
isthesituationtodaythenrestofthesethingsultimatelydontmakeanydifference.
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Thenistheoverallculturalpoliticalcontextinwhichyouareoperating. Ipersonallyfeelthat
weareapartofveryelitistsystemandbecauseofitalltheinterventionswhichtakeplaceand
all the interventions that do not take place they all have a very strong elitist bias. Look at
education sector for example. In any sensible country, they use their education system for
national
integration,
to
create
a
kind
of
proto
type
citizen
which
ultimately
helps
the
society
to
moveforward.Inoureducationsystemweareverysuccessfullyoverthelastsixtythreeyears
createdadivisiveeducationsystem. Thereisaneducationsystemfortheelitewherechildren
do theirOlevels andAlevels andgo abroad and then there is thisorphanpubliceducation
system which itself has six kind of curriculums, which has multiple kind of medium of
instruction,youarenotverysurewhichschoolisteachinginwhatlanguage.Andinthatelitist
system,budgetalsoultimatelybecomesanexpressionofthatelitism.So forPRSP, ifyouare
buildingtheringroadinLahoreandspendingonethirdoronefourthofyourresourcesonone
schemeinamegacitythatispropoor.Andonceyoudothisanalysisthathowmuchyouare
spendingonthepropoor,Iamsuretheringroadisincludedinthatandyoucancalculatehow
manypooraregettingbenefitoutoftheringroad.
ThenthethirdmajorissueandwhichIthinkthereportwasnotattherightplacetodiscussit
butithasastrongnexuswithitthatyouhavenoadvocateforthepoorinthiscountry.Which
governmentdepartmenttalksaboutthepoor?YouhaveZakat,youhaveBaitulMal,youhave
BenazirIncomeSupportProgramme,youhaveSocialWelfareDepartment.Whoamongthemis
thechampionforthepoor? Whohasthecapacitytoevendefinewhoisthepoorinoursociety
becauseunlessyoudefinewhoisthepoorhowwillyoutargetthepoor.Andonceyoudefine
thepoor,youtargetthepoor,whichdepartmenthasthenthecapacitytohandletheresources
andtomakesurethatyouassistthepoorinamoretargetedmanner.Againineverysensible
countrywheretheyareseriousaboutthepooryouwillfindasocialprotectiondepartmentor
socialprotectionministryetc.whichareconsideredtobethepeopletoberesponsibleforuplift
ofthepoor.Inourcaseitisattenplacestheandultimatelynooneisresponsibleforthat.
Fourth dimensionwhich Dr. Sahiba very articulately brought it about is thewhole issue of
dependenceonNationalFinanceCommissionanduncertaintyofthoseresources.Punjabinits
size, in its resources, in itspopulation is larger than80percentcountries in thisworld.Why
shouldPunjabbesomuchdependantonfederalresourcesfor itsbudgetmaking?Okaythere
arestructuralissuesandmajortaxesareleviedbythefederalgovernment.Whateffortweare
makingtogenerateourownresourcesattheprovinciallevel?Weareantitax.Wedontwant
to tax the rich.Weare reluctant toeven rationalizeour servicecharges. [Herehegave the
exampleoftheirrigationwaterchargeof130Rs.Peryearperacrewhichhasnotbeenrevised
since2003despitehugeincreaseinvalueofagriculturalproduce]. Youwillneverhaveenough
resourcesbecausetherichdonotwanttopaytaxinthiscountry. Sothenyouwillhavetogo
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toindirecttaxationwhichultimatelyburdensyourfixincomepeople,yourlowestsalarypeople,
yourdailywagers.
Myfinaltwocommentswillbeaboutthiswholebudget.Howsacrosanctthisbudget is.AndI
will
talk
about
two
dimensions.
One
is
the
size
of
this
budget.
These
are
fake
budgets
on
two
counts.One,theyassumethatyouwillcontinuetogetthemoneyfromthefederalgovernment
accordingtoNFCand ifthisdoesnothappenyouhavenobudget.Soyouaredependenton
someoneelse forvery impressive lookingbudget.The second is theyare feelgoodbudgets.
Lastyear itwas160billion; thisyear itshouldbe180billion.Whetherornotwehave those
extra20billionbutbecausewehaveto lookgoodweshouldhaveahigherbudget.Andthat
hasveryseriousimplication.Ifyoudonthavetheresourcesforwhatyouareprojectingyouare
creatinga fakekindofexpectationnotonlyamong thepublic representativeswho feel that
nowtheyshouldbegettingdevelopmentschemesaccordingtothisbudgetforwhichyoudont
havethemoney.Andsecondyoualsogetintothisstrapofprofligacybecauseinonemonthor
twomonthyouforgetthatyoudidnothaveactuallythemoneyforthismuch.Youarelooking
atfiguresandsayreleasethis,releasethatalsoandreleasethatalso.
Mylastpoint,whichDr.Sahibahasveryablybroughtoutinherreport,isaboutthesanctityof
thisbudget.Atstartoftheyearyoumakethesefigures,howmuch ispropoor,howmuch is
goingtothewomen.Thenyougototheassemblyandgetitapproved. Inanycivilizedsystem
anychangeinthebudgethastogobacktothepeoplewhohaveapprovedit.Butwhatactually
happens during the year? There are reappropriations, there are reallocationswithout any
recoursetotheelectedforumwhereyougotyouroriginalbudgetapproved.Thatisjustbeing
doneondirectives.Soyou startwithvery impressive figures: thismuch ispropoorand this
muchisprowomen.Butatendoftheyearalmosthalfofthatishijackedbythesectorswhich
are importantforthedecisionmakersandwhicharenotnecessarilypropoororprowomen.
Now what we need to do to fix this problem? The biggest issue is of commitment and
intellectualhonesty.Youhavetobring inprofessionalautonomy inyour institutions likeP&D
wheretheycansaynotothingsthatthiswasdecidedandifyouaresayingsomethingtotally
opposite,itcanthappen.
And, you need a kind of social protection department or agency, if you are serious about
poverty.Thewayitiscurrentlyfracturedamongsomanydepartments,youwillneverhavethat
kindofstronginstitutionbasedsystemtohelpthepoortohelpthewomen.
And,youhavetogowithamoretargetedapproach.Iwillonlyacceptthoseexpenditurespro
poorwhich areproperly targeted;not road sector schemes, irrigation schemes.Whichpoor
personownsland?Howirrigationschemesaregoingtodirectlybenefithim?
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Finally, a very effective Legislative oversight on the budget utilization is needed. If ADP is
approvedbythe legislaturethen itsreviewshouldalsotakeplace inthe legislature insteadof
P&DDepartmentorintheofficeofChiefMinister/Secretary.
Sothesearefewofmywords.Dr.Sahibathankyouverymuchforthisnicereport.Ithinkitwill
add a lotof value toworkof P&DDepartment andhopefully itwillbe startofmuchmore
intellectualandindepthregularanalysisofhowweareusingourresources.
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DiscussantsCommentsonProcessOrientedPovertyFocused
GenderBasedAnalysisofPunjabBudget200910
Dr.MuhammadAbdulQuddus,Director,PunjabEconomicResearch Institute,was invitedasa
discussantaftertheremarksbyMr.RabNawaz.Hisspeechisreproducedbelow.
BismillahirRahmanirRahim
HonorableChiefGuest,Dr.AishaGhausPasha,LadiesandGentlemen,
AssalamoAlaikum!
FirstofallIwanttocongratulatePlanningandDevelopmentDepartmentandSPRSPunjabfor
producingthisreportwhichfillsanimportantvoid.Governmentsbudgetsneedtobeanalyzed
deeplyfortheirimplicationsforpovertystrickenpeopleandforgendermainstreaming.
Letmesharesomeofmyobservationsonthisreport.
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1. The analysis of allocations and expenditures using specific sector codes as used byfederalPRSPsecretariatisaverygoodideaandIthinkitwillhelpintheproductionof
morereportsonPunjabsprogresstowardspovertyreduction. Theauthorhasherself
admitted that the federal government has adopted a liberal definition of propoor
sectors.
I
too
think
we
should
revise
this
classification.
For
example,
presently
roads
are
included aspropoor expenditure. I thinkonly a smallpartof costof the roads goes
directlytolaborinvolved.Usageofroadscantbesaidasmostlydonebythepoorsowe
mightdropitfromourdefinitionofpropoorsectors.
2. Theauthorhashighlightedissuesinutilizationoffunds.Butherfocusislimitedtothinspread of allocation. I think there are many other issues in utilization of funds for
exampleproceduraldelaysthatneedtobehighlighted.Moreover, issues inreleaseof
fundshavenotgainedmuchattention.Thesealsoneedtobehighlightedandresolved.
3. The author has mentioned the inability of the departments to generate genderdisaggregated data. I think this is very important area and government must move
towardsbuildingcapacityinthisregard.
4. Thereporthasagooddiscussionofprocessofbudgetformulation.ButIthinkthatmorefocus is on development expenditure than the current expenditure. As current
expenditure is far greater than development expenditure we should also analyze it
deeply.
5. The author points out that there is no institutional mechanism to ensure that thegenderimpactoftheproposedschemesisconsideredinschemeidentificationandPC
formsalsodonotcontainanyprovision thatgenderdisaggregatedanalysis isdone. I
thinkthisistheareawhichneedsurgentattentionofgovernmentofthePunjab.
6. An important issue which the author needs to address here is that should totalprovincialexpendituresbeadjusted for transferto localgovernments.Thesetransfers
form a big share in total provincial expenditures and are obligatory under Provincial
FinanceCommissionAwards.Ithinkananalysisofprovincialexpenditureprioritiesmust
adjust totalexpenditures for these transfers;otherwise, theshareofexpenditureson
propoorsectorsintotalprovincialexpenditureswouldbelowershowingafalseimage
oflowprovincialpriorityattachedtothesesectors(theauthorherselfadmitsinChapter
5thatduetoabsenceofabreakupoflocalexpenditures...thecomponentofpropoor
expenditureislikelytobeunderstated).
7. IalsothinkthatanalysisofMTDFcanalsobeimprovedifsamePRSPcodesarealsousedfor development schemes. So I think there is a need to add NAM codes with the
developmentschemestoosothatanalysiscouldbeimproved.
8. Thankyou.
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Question&AnswerSession
Afterthediscussantsremarks,thefloorwasopenedforcommentsandquestions.
Mrs.ShahidaSaleem,DeanofAppliedSciences,KinnairdCollegeforWomen,Lahoreexpressed
hisconcernoverrisingtrendsofruralpovertyinPunjab.Shesaiddespitevariousprogrammes,
ruralpovertyinPunjabhasincreasedandaskedwhatarethegovernmentpoliciestoeradicate
ruralpoverty.Shealsoenquiredabout thecriteria fordistinctionbetweenpropoorandpro
women. She suspected that there is some overlapping in the sectors defined in these
categories.
Mr.RabNawazrespondedbysayingthattherearetwowaysinwhichwecanlookatthisthing.
One iswhatcanbedone immediately toarrest this trendandsecond iswhatyoucando in
longerterm
to
reverse
this
trend.
On
the
first
count,
the
current
programmes
for
poverty
reductionarenotsufficientintermsofcoverage,allocationortheirapproach.Areourpoverty
reductionprogrammesareaimedatenablingthepoortocomeoutofpovertytraportheyare
justanintravenousdriptomakethemsurvive?Hisviewwasthatourcurrentprogrammesare
probablyjust togive thepoorsomeconsolationonly.Healsopointed to targeting issues for
exampleincaseofPunjabgovernmentsincomesupportprogrammeselectionwasdoneonthe
basisofMPAswhichisnotverycredible.Hethoughtthatuntilaccesstoproductiveresourcesis
providedtothepoor,thingsarenotgoingtoimprove.And,themainproductiveresourceinthe
ruralareasisland. HeinformedtheparticipantsthatevennowourShariahCourthassaidthat
landreforms
are
un
Islamic.
He
stated
that
we
have
done
all
sorts
of
colonization
in
the
past
sixtythreeyearsbutnonewasforthepoor.AccordingtoMr.RabNawaz,theonlygood land
schemewasBhuttosfivemarlaschemebecauseoncethepoormovedtotheirownlandthey
wereable tomake theirowneconomic choices. Sounlessweprovide thepoorwith skills,
creditandlandwecannotreduceruralpovertyheadded.
Dr.AishaGhausPashaexplained thatallseventeen sectorsmentioned in the reportarepro
poor.That isthewayPRSPhasdefinedthemrightlyorwrongly.Shesaid, Therewasapoint
madethattheseallmightnotbepropoorandIalsomentionedinthereportthatbighighways
arenotalwayscontributingverymuchtoalleviatingpoverty.Withinthesepropoorsectors,
sheadded, wehave taken thosesectorswhicharebenefiting thewomendisproportionately
moree.g.education,health,etc.; soprowomen sectorsare subsetofpropoor sectors.As
regardseffectivenessofgovernmentalpolicies,shewasoftheopinionthatthepovertyisrising
primarilydue to inflationwhich isa federalgovernmentmandate.She informed thatweare
financingdeficitbyborrowingfromStateBankofPakistanwhichisdirectlyincreasinginflation.
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Shewas of the view that the proposed ReformedGeneral Sales Tax is not as regressive as
borrowingfromSBPasalotofitisonservicessectorwhichmostofthepoordonotuse.
Ms.ShaheenAttiqueurRehman,ViceChairperson,BunyadFoundation,askedtheauthorthat
howfarhaveshehaslinkedpovertyespeciallygenderbasedwiththeMillenniumDevelopment
Goals.She
also
advised
to
have
district
level
studies
like
this
and
have
larger
audiences
to
share
thereportswith.Shealsopointedoutthatcorruptionisaverybigleakageintheentiresystem
which should have been shown in the report. She also suggested that women related
interventionsandprogrammes,whicharecurrentlyarescattered,mustbeconsolidated.She
alsoaskedaboutfutureoflocalgovernments.
Mr.MuhammadAkramRana,PMEOfficer,UNICEFcommentedthat it isneededthatpoverty
andgenderissuesareconsideredwhenweapprovedtheschemesandmakethebudget.Sowe
needtolookdeeperintothebudgetmakingprocess.HehopedthatP&DDepartmentwillbring
out
more
research
on
this
topic.
Mr. Rab Nawaz seconded Ms. Shaheens view that the findings of the report should be
presentedatlargerscaleparticularlywiththeelectedrepresentativesandlocalgovernments.
Dr. Aisha GhausPasha said that we stand committed to MDGs. Recent floods and
macroeconomicsituationhasputusbackbutstillMDGsareourfocussheadded.Sheadmitted
thatissuesofgovernanceandcorruptionhavetobeaddressedforeffectivepovertyreduction.
Shesaidthereas there isnovoiceof thepoornooneaskswhymidyear reallocations takes
place. She advised legislators to play more active role in this regard. Regarding local
governments,she
said
that
there
are
services
that
have
to
be
provided
by
local
governments.
Theproblemsofelitecaptureandcorruptionmustnothinderexistenceoflocalgovernments.
Theyhave tobe thereand theyshouldbestrengthenedbybuilding theircapacity,providing
themwithmoreresourcesandbymakingthemaccountable.
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CommentsbytheChiefGuest
SecretaryLiteracyDepartment,GovernmentofthePunjab
AftertheQ&Asession,Dr.AllahBakhshMalik,theChiefGuest,madesomeobservationsabout
the launchseminar.Hepraisedthecontentsoftheproceedingsandrespondedtofewpoints
raisedintheseminar.
First he spoke about incidence ofpoverty.He noted that after the recent flood, poverty in
Pakistan has enormously risen. He observed, With this kind of poverty, what sort of
macroeconomicstabilityandwhatsortofsecurityandcertaintywecanexpect?Hemaintained
thatwe
should
not
forget
that
best
thing
for
economic
growth
in
any
polity
is
certainty
and
stabilityoftheenvironmentinwhichweareliving.
About thepointof resources raisedbyMs.ShaheenAttiqueurRehman,hewasof theview
thattherearenotrightallocationsfortherightsectorse.g.education,literacy,health,etc. But
weall know that there isnoparetooptimalutilizationof allocated resourcesheadded.He
citedDeSotosbookTheOtherPathinwhichDeSotohasinformedthatresourceallocationin
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developingcountries ismadebytheredistributivecoalitionofthatcountrywhichmayconsist
ofselectedfewsuchaspoliticians,generals,bureaucratsetc.Hesaidthattherayofhopeisthe
civilsocietyinthecountrythathasnowstartedtoplayitsroleactively.Hehowevermaintained
thatweneedto improvetheliteracy,allocatemoreresourcesforthesocialsectorandtothe
poor
and
to
ensure
that
expenditure
is
not
made
on
big
roads
but
on
farm
to
market
roads.
He
expressedhishopethatbydoingsowewillbeontheroadtoprogressintheyearstocome.
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ClosingRemarksby
ChiefEconomist,PlanningandDevelopmentDepartment
Dr.Muhammad
Rizwan
Taqi,
Chief
Economist,
Planning
and
Development
Department,
wrappedupthelaunchseminarwithhisclosingremarks.Hisspeechisreproducedbelow.
BismillahirRahmanirRahim
Honorable Chief Guest, Dr. AishaGhaus Pasha, respected discussants, distinguished guests,
ladiesandgentlemen,
AssalamoAlaikum!
Itwas really a great experience forme toparticipate in this report launch. Listening to the
presentationofDr.Aisha,remarksbythediscussantsand livelyquestionandanswerssession
was a very good learning experience. It also givespleasure to see that various initiativesof
GovernmentofthePunjabandothershavegeneratedkeen interest inthesubjectwhich the
present report dealswith and to see that this event has been able to attract notables of
government,academiaandNGOs.
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Asyouhave learnedGovernmentof thePunjab, in collaborationwithStrengtheningPoverty
ReductionStrategyMonitoring(SPRSM)Punjabisworkingtostrengthenitscapacitytomonitor
implementation on Poverty Reduction Strategy of the provincial government. An important
component of the programme is to analyze public spending in propoor sectors through a
gender
lens
to
see
how
needs
of
men
and
women
are
being
addressed.
In
this
connection,
the
present report was commissioned by SPRSMPunjab to look, in historical perspective, at
process of budget formulation, allocations and utilization of fundswith a focus on goals of
povertyreductionandgendermainstreamingandrecommendchangestoachievethesegoals
ofGovernmentofthePunjab.
As you have seen, this report identifies the gaps in budget making, transfer of funds and
utilization; proposes changes to facilitate government in smoothening of its budget
formulation,allocationsandutilization;analysestrendsinallocationsandspendinginpropoor
sectorswithagenderlens.
Astheauthorhaspresented,thereportfollowsPakistanPovertyReductionStrategyPaperIIin
definingpovertyfocusedsectors.Thereareseventeenbudgetaryheadstheexpendituresunder
which are classified asexpendituresonpropoor sectors.These include roads andbuildings;
watersupplyandsanitation;education;health;agriculture;ruraldevelopment;subsidies;and
low costhousingetc. These sectorsare further classified intoprowomenexpenditures (i.e.
expenditures benefiting women disproportionally more) and unallocable expenditures (i.e.
expenditureswhich cannot bedistinguishedon thebasisof gender). The report shows that
total propoor expenditures in recent years have hovered around 62% and prowomen
expenditures
are
also
a
healthy
33%
of
total
provincial
expenditures.
Overall,
pro
poor
expendituresinthePunjabhavedemonstratedahighannualgrowthrateofalmost23percent.
However,growthinprowomenexpendituresatabout20percentstandsabitlowerthanthe
overall growth inpropoor expenditures. Therefore, the report recommends a case forpro
poorexpenditure tobe targeted towardsprowomen sectors. Italsomakesacase for these
expenditurestobetargetedtothebackwarddistrictsoftheprovince.
Ashonorablechiefguestmentionedinhisaddress,GovernmentofthePunjabattacheshighest
prioritytopovertyreductionandgenderequality.Itremainscommittedtofurtherincreasethe
allocations forpropoorandprowomen sectors.Governmentof thePunjabhasnow special
focuson
development
of
backward
districts
of
the
Punjab.
ThoughGovernmentof thePunjab is investing largechunksofmoney into socialprotection,
poverty reduction and empowerment of vulnerable sections in the society such aswomen,
children and minorities, improvement in service delivery and uplifting of the marginalized
groups is not all about allocations and expenditures. Overall governance is also crucially
importantifvariouspoliceshavetobeardesiredfruits.PunjabGovernmentisalsofocusingon
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improvinggovernancesoastoreducepovertyintheprovince.
An importantpointwhichthereportraises isabout importanceofgenderdisaggregateddata
rightfromthescheme identification leveltoschemeevaluation level.Thegovernment isnow
also
striving
to
build
capacity
in
gender
disaggregating
various
data
and
indicators.
Ihopethisreportwillreceiveattentionofthepolicymakersand itsrecommendationswillbe
welltaken.IexpectthatfuturebudgetsofthePunjabwillbemorepovertyfocusedandmore
gendersensitive.
In the end I would like to congratulate all those whojoined hands to carry out this study,
especiallyUNDPfor itscontinuedsupportandcooperation. IalsogratefultotheChiefGuest,
Dr. Aisha GhausPasha, respected discussants, and to all of you for gracing this event and
makingthis
event
successful.
Thankyou.