Intellectual Framework and Core Thesis
Tariq Mahmood Awan’s Fixing the Executive Branch of Government in Pakistan presents one of the most coherent and constitutionally grounded analyses of Pakistan’s administrative dysfunction. The book situates the crisis of governance squarely within the constitutional, federal, and structural imbalance of the executive branch.
Unlike most reform texts that rely on managerial jargon, Awan roots his argument in Articles 240–242 of the Constitution, making a compelling legal case that Pakistan’s administrative framework violates the spirit of federalism and parliamentary democracy.
The central thesis — that Pakistan cannot function as a genuine democratic federation unless its bureaucracy is restructured through provincial legislation and decentralization — is both bold and empirically justified. The author demonstrates how the bureaucracy has evolved into a “parallel state,” unaccountable to legislatures or local representatives, perpetuating a colonial command model within a postcolonial democracy.
Quality of Research and Analytical Depth
The research quality of this book is exceptional. Each chapter combines constitutional interpretation, comparative analysis, and practical policy insight. Awan draws on his first-hand experience as a senior civil servant to expose systemic failures — from federal domination of provincial posts to the erosion of local governance after the rollback of the Musharraf-era devolution plan.
He substantiates his arguments with credible references such as reports from the UNDP, World Bank, and PIDE, demonstrating a high level of academic reliability. His discussion on Unified Pay Scales, cadre monopolies, and reservation of provincial posts reflects a deep understanding of technical governance issues that most scholars tend to avoid.
Despite its analytical rigor, the book remains highly readable. Awan’s narrative avoids legal verbosity, making it accessible for bureaucrats, legislators, policymakers, and researchers alike.
Reform Blueprint and Practical Utility
The book’s most significant contribution lies in its five-rule reform framework, which outlines:
- Constitutionalization of civil services under Article 240.
2. Structural alignment of the executive with parliamentary governance.
3. Creation of specialized, rather than generalist, cadres.
4. Codification of service laws and cadre structures.
5. Reform of service terms, incentives, and accountability mechanisms.
This framework is both realistic and legally implementable, not a utopian vision detached from Pakistan’s realities. The author calls for immediate provincial legislation, establishment of a Civil Service Reform Commission, and revival of empowered local governments under Article 140A. These proposals are actionable and pragmatic — a rare quality in Pakistan’s reform discourse.
Comparative Perspective and Policy Innovation
Awan demonstrates impressive awareness of international administrative reform models, citing examples from the Philippines and other post-colonial federations. Yet, he adapts these lessons to Pakistan’s constitutional environment rather than imitating them blindly.
His advocacy for dismantling Unified Pay Scales, ending the entitlement culture, and introducing performance-linked incentives reflects a modern public management philosophy. He avoids the common pitfall of glorifying Western bureaucracies, instead deriving reform logic from within Pakistan’s own constitutional framework — an intellectually disciplined approach that distinguishes his work.
Constitutional and Federal Vision
Perhaps the book’s greatest strength lies in its unwavering constitutional integrity. Awan refuses to treat administrative reform as a technical or managerial issue; instead, he anchors it in the constitutional division of powers between the federation and the provinces.
By exposing the illegality of the 1954 CSP Rules and the continued federal encroachment through the PAS/DMG cadres, Awan identifies a structural breach in Pakistan’s constitutional order. His insistence that provincial assemblies legislate their own service laws, and that All-Pakistan Services be limited to subjects under the Council of Common Interests, is not theoretical—it is an essential correction to decades of bureaucratic overreach.
Contribution to the Reform Discourse
Within Pakistan’s policy and governance literature, this book stands out as a transformative addition. It goes beyond conventional administrative manuals by re-politicizing the reform question — reminding readers that bureaucratic power without democratic legitimacy is unconstitutional.
In a country where civil service reform has often been bureaucrat-led and self-serving, Awan’s work shifts the debate back to legislators, provincial governments, and civil society. It also introduces a fresh moral and philosophical dimension, asserting that governance reform is not merely administrative but ethical — a return to the sovereignty of the people.
Limitations and Future Scope
Although the analysis is robust and comprehensive, a few areas could benefit from deeper exploration:
Fiscal federalism: While the book rightly critiques population-based NFC formulas, it could further link fiscal autonomy to administrative reform.
Implementation roadmap: Though the framework is clear, inclusion of sample legislative drafts or model provincial acts would strengthen its practical utility.
Public engagement: The text largely targets policymakers. Future editions could incorporate civic education strategies to engage citizens in demanding accountable governance.
These, however, are areas for future enrichment, not flaws in the present work.
Overall Evaluation
Criterion Rating
Scholarly Quality ★★★★★
Policy Relevance ★★★★★
Practical Feasibility ★★★★☆
Innovative Contribution ★★★★★
Awan’s book stands as the most comprehensive, constitutionally consistent, and policy-viable blueprint for administrative reform in Pakistan to date. It masterfully combines insider experience, academic depth, and constitutional reasoning in a single volume — a rare achievement in Pakistan’s governance literature.
Conclusion
Fixing the Executive Branch of Government in Pakistan is more than a book — it is a manifesto for administrative and democratic federalism. It reframes civil service reform as a constitutional struggle rather than a bureaucratic adjustment.
If implemented, particularly its calls for provincial legislation and political empowerment, this roadmap could permanently reshape Pakistan’s governance structure, ending the unitary administrative order that has constrained democracy since 1947.
For policymakers, legislators, scholars, and civil servants, it should be mandatory reading. For Pakistan’s reform discourse, it sets a new intellectual and moral benchmark.
The review is written by Muhammad Zubair, who is a seasoned civil servant in the government of Punjab, Pakistan.
