AgendaforFatareform

AgendaforFatareform
Introduction
ThePrimeMinisterofPakistanhas announcedhisintentionforbringingreformstoFata.Inthis
connectionahighlevelcommitteehasbeenformedtoadvisethegovernment.Ontheotherhandthereis
aviolentinsurgencyinmanypartsofFata.Waziristanisthecenterofthisrebellionandsmallerpockets
existinotheragencies.Bajauragencyalsoshowssignsofacceleratingtroublewhichisalsonowbecoming
visible in Mohmand agency. Khyber agency is in the grips of warlords who are rapidly expanding their
influence and destroying the security infrastructure in Khyber, threatening Peshawar and attempting to
closethePeshawarTorkhamroutetoAfghanistanwhichwillhaveaveryseriousimpactonPakistan.
BeforepresentingthecaseforreforminFataananalysisispresentedregardingadesignweakness
withinthebasicdesignofthePakistanistatewhichisresponsiblefortheperiodiccrisisendangeringher
security.TheprinciplecauseofPakistanidifficultiesliesintheexistenceoflargephysicalspacesoflandin
whichmorethan40millionpeopleofFataandNWFPlive.Theyarestrippedofidentityandtheirlandis
consideredasageostrategicspacewithnamesthatresembleformulasfromachemistrytextbookFata,
NWFPratherthanplaceswherepeopledwell!
They are classified as such because they have often been used for foreign policy adventures in
Pakistans north west. It is argued that if there were democracy and full empowerment of the people
livingintheselocationstheywouldhavemergedintothenationalmainstreamalongtimeagoandwould
haveobtainedhumanratherthanacronymicidentities.ItwouldalsomakeitdifficultforthePakistanielite
tomanipulatethepeoplewhohadidentitiesandpushthemintoexternaladventuresliketheMujahideen
WarinwhichtheRussianswereexpelledfromAfghanistan.
The map below shows large swathes of areas in Fata and NWFP which have not been fully
integrated.Ithasledtoweakadministrativecontrolandalackofcohesion.Theseareasincludethewhole
ofFata,theMalakanddivisionandalawlessbeltexpandingintothedistrict.Thesearetheareaswhere
theradicalsaresupreme.AlthoughthispaperaddressestheproblemsofFatayettheplightofMalakand
whichliesinNWFPalsoneedstobeflagged;Pata(provinciallyadministeredtribalareas)reformsarealso
essential.
Theseregionsprovideasafehaventoanybigotorirredentistadventurerwhowantstoraisethe
flag of revolt. These areas also invite foreign nonsate entities like the alQaeda and now the Kashmiri
Mujahideen.TheregionistheheadquarterofforcesbentonviolentlychangingthenatureofPakistan.
TherebelsintheseisolatedareasarenowchallengingthestateinFataandNWFPandarenowconverging
into southern Punjab. That is the sum of the challenge facing Pakistan and the world. It is therefore
essentialtoendtheisolationofFatabymainstreamingitandbringingitintothenormalnationbuilding
processwherethegrievancesofthecitizensaredealtwithintheambitofhumanandfundamentalrights.
Theymustalsobetreatedwithjusticeundertheruleoflaw.
MapofFata,Pata&NWFPDistricts

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AgendaforFatareform

ThetragedyisthatthisadministrativeanomalyisprotectedunderArt246247oftheConstitution.
In tribal areas special laws different from the rest of the country are applicable. Human Rights do not
exist;thefundamentalrightsapplicabletoPakistanisarenotavailabletoprotectthetribesmanfromstate
ordevelopmentoppression.AnobserverwillbejustifiedinthinkingthatPakistanstoppedattheleftbank
of the Indus! Or at best there are different varieties of the same state. This makes national integration
impossible.
Onanotherlevel,itisthestrategicuseoftheseareasbythePakistanielite,whichintegratesitself
into international agendas and extracts high rents which replace national savings. This may be the
explanationwhylessthan2%ofthePakistanipopulationpaytaxesandcreatesalowsavingrateof16
18%oftheGDP.AtthesametimethepawnsinthisnewversionoftheGreatGamethepeoplewhoare
unlucky to be born in these places have a marginal and a disempowered existence! This cynical
exploitationofsuchalargegroupofpeopleformorethan200yearshascometohauntnotonlyPakistan
buttheworld!
During the past five years Pakistan received more than $ 10 billion from the US for Pakistans
contributiontotheWaronTerror.Thesanctionsimposedonheraftershetestedhernuclearweaponsin
1998 were also lifted.Pakistanalsohadher loans restructured andreceivedfresh funds for many new
programmes.Itisestimatedthatthesemeasurescontributedatleast3%annuallytotheGDPofPakistan.
ThemainbeneficiariesofthisbountywerenotFATAandNWFP.Pakistanallowedherselftobeusedasa
slotmachine,1inagameofstrategy;thegraphbelowshowshowPakistanseconomicgrowthistiedto
goodrelationswiththeU.S.2

Graph3

1
The term is attributed to Mr. Shahid Javed Burki
2
The graph correlates the milestones in Pakistans foreign policy with its rate of economic growth. There is a direct co-
relationship between high economic growth and a U.S friendly foreign policy. Economic management is thus marginal
to Pakistans growth. The driver of Pakistans economic well being is its foreign and security policy.
3
Derived from RIPORT, Militancy in the Pashtun Belt:Perspective of a Peace Jirga Participant, Sept 2007, Peshawar,
P.20

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Theotherquestionishowinvestmentinpeopleortheinfrastructurecantakeplacecontinuously
and in a predictable manner when a sizable portion of investment is derived from tax payers of other
nations?Inordertoattractsuchfundsrecourseismadetoagendas,whoseaimistokeeptheUSengaged.
Itisnottherightwayofmanagingthecountry.Thecostofsuchapolicyisthesacrificeofthewellbeingof
thepeopleofFataandNWFP.Nowondertheyareupinarms!

Historicalbackground
BritaindefeatedtheSikhsandoccupiedthePunjabdistrictsin1849.ThefutureNWFPprovincelay
tothewestoftheIndusandwasapartofPunjab.FurthereastwasthevastnessofIndia.Thesecurityof
IndiawasalwaysthepivotofBritainsforeignpolicywhoseaimwastoprotectitfromRussia.Asecond
range of threats more local in their nature arose out of the frequent raids conducted by the tribes on
districtswhichnowcomprisetheNWFP;ViceroyCurzoncreatedtheNWFPin1901byseparatingitfrom
Punjabbecauseofitsspeciallawandorderproblems.
Attheendofthe19thcentury,BritaininitiatedawaveofconsolidationofherIndiandominionby
encouraging internationalization of borders between Iran and Afghanistan to the east, Afghanistan and
Russiatothenorthandnortheast,AfghanistanandIndiademarcatedintothewestandbetweenIndia
andChinatotheeast.
AseconddefensiveborderwascreatedbetweenAfghanistanandIndiainthenorthweststarting
fromChitralinthenorthtoD.I.Khaninthesouthandwherethetribesdwelled.Itwasconvertedintoa
tribalarea,approximatelythesizeofBelgiumwhichtodayhasapopulationofabout4million.
OneoftheleastacknowledgedcontributionofBritaintowardsstatecraftwastheconversionof
the geographical border land of the tribes into a shield by regulation! They kept the tribal areas
underdevelopedandincreasedtheefficiencyasakillingmachineoftheBritishIndianarmyaswellasthe
tribesmenbyconstantfighting.ItwasBritainsbattleinoculationschool!
Secondly,throughthispolicythetribalareaswereconvertedintoapricklyhedge;noinvader
could expect to have a safe passage to India through this route. To keep the manpower of tribal areas
from leaving, they were kept under developed and made to believe that their system of local
administrationbasedontheJirgawasunique!Iftheybecametooeducateditwasfearedthattheywould
leavetheseterritories!TheBritishcleverlycraftedaDraconianlawtofixthissystemintime.Itiscalledthe
FrontierCrimesRegulation.Thesereactionarydevicesweremeanttoensurethefreezingoftribesmenin
anarchaicsocialformationtillperpetuity!Throughcleverpropagandathetribesmenwereeducatedand
convinced that this system was a reflection of the essence of Pukhtunwali or the Pukhtun code of
traditionalconduct!
Toabsolveherselfoftheresponsibilitytodevelopandeducatethetribesmenonaparwiththe
Indians,theBritishcreatedanamazinglegalfiction.ThetribalareasweretobeconsideredapartIndia,
butnotapartofBritishIndia!
InsteadofrectifyingthisinvolvedconceptualedificeconstructedforimperialpurposesbyBritain,
wemistakenlyacknowledgedthatthetribalareashadanexclusiveidentityandincludedthisexceptionin
theInstrumentofAccessionin1947atthetimeofPartition.Latter,weprotectedthisanomalyinthe1973
ConstitutionbyretainingtheseparatenessunderArticles246247oftheConstitution.
It was but natural that the tribal areas composed of a war like people, deprived of economic
developmentandlyingnexttocomparativelyricherpeoplewouldtrytopossessthesamerichesthrough
raidsandkidnappings.Theincome,legal,humanrightsandeconomicdevelopmentdifferencesbetween
FataandPakistanarehugeasthetablebelowhints:

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Tableofcomparativesocialsectorindicators

Indicator Pakistan NWFP FATA

Literacyrate(bothsexes,%) 43.92 35.41 17.42
Maleliteracyrate(%) 54.81 51.39 29.51
Femaleliteracyrate(%) 32.02 18.82 3.00
Populationperdoctor 1,226 4,916 7,670
Populationperbedinhealthinstitutions 1,341 1,594 2,179
Road(persqkm) 0.26 0.13 0.17

Currentsituationoftribaladministration
When the military moved into FATA in 2001, even the limited access system of indirect
administration collapsed because the military commander out ranked the political agent. This is yet
another less mentioned outcome of Martial Laws in Pakistan; it subverted the normal chain of civilian
command in Fata. When the British designed this system they never thought of the iterations and
consequenceswhichamilitarytakeoverwouldgeneratefortribalareas.
The patronage system became confused, when the military began directing it towards its
supporters.Thepoliticalagentandtheelderstiedtohimwereeclipsed.Thisreducedthecontrolofthe
government over the tribes. By 2004, the Political Agents in Waziristan became mere shadows of their
formerselves.Atthesametimetheradicalsrealizedthattheirgreatestfoeswhocouldresistthemwould
betheelders.Sotheybegantoassassinatethem.Todateabout275havebeenkilled!
AnotherpooroutcomeforFatawasgeneratedbytheLocalGovernmentReformwhichafforded
space to the radicals by weakening of the provincial governments executive authority. Many of the
provincial governments powers were transferred to the new district governments. According to the
PakistaniConstitutionthereareonlytwotiersofgovernmentthefederalandtheprovincial.Throughthe
LocalGovernmentReformsof2002,athirdtierofdistrictgovernmentwascreatedandtheguardiansof
theprovincesexecutiveauthoritythemagistracystoodabolished.
Ifthedistrictgovernmentcomposedofelectedpersonswaslimitedtolookaftertheprovisionof
servicesandeconomicdevelopmentonly,therewouldbemeritinthisreform.Onthecontrarythereform
abolished three tiers of administration which looked after state protection and enforced the provincial
governmentswritbyregulatingvariouslaws!
In this process the office of the Commissioner was also abolished. He was the provincial
governments senior regional coordinator ensuring peace, law and order and good governance on a
regional level. He was the link between tribal area and the district. Even more unfortunate was the
simultaneousabolitionofthemagistracysystem,whichwasapillarofstabilityinPakistanandIndiawhere
itstillcontinuestoendure.Themagistracysystemispivotal incontrollingcrime,lawandorderandthe
healthyfunctioningofthestate.
BothIndiaandPakistanwereadministeredbyasystemofmagistrateswhosejobwastoenforce
theregulatoryandlegalauthorityoftheprovince.Theywerethecustodiansofthewelfarethepeopleand
many of them combined under them powers derived from the land revenue act and the criminal
procedurecode.Theyalsoensuredmaintenanceofpublicorderaswellastheupkeepofthecanaland
drainagesystems.
Furthermoretheysupervisedtheworkingofpolicestationssothatthepopulationwasprotected
againstpoliceviolenceandmaladministration.Intimesofdisastertheycoordinatedrelief.Thisstructure
was abolished in a thoughtless manner as if space had to be found for the lawless bands who are now
threateningthestate!
Afurtherconsequenceoftheabolitionofthemagistracywasthedryingupofthepoolofofficers
forserviceinthetribal agenciesasassistantpolitical agentsoraspolitical agentsbecausetheirtraining
pathsasassistantorasdeputycommissionersstoodabolishedasaresultofthedissolutionofmagistracy!
ItisthecasetodaythatveryfewgoodofficersarenowavailableforpostinginFata.Whathappenswhen

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the few who are still serving retire? There is no system producing the next generation of tribal
administrators.
Another serious blow to integration of tribal areas into the province was administered when a
GovernoroftheNWFPwonapprovalforamostregressivemeasurewhichwastheseparationoftheFata
secretariatfromtheprovince.Itmaybenotedthatprofessionalservicesinhospitalsandschoolsaswellas
otherfieldsinFataareprovidedbytheNWFPcivilservice.HencetherationalefortheintegrationofFata
intoNWFPandnotitsseparationashasbeendone.
ThishadcreatedatransferofexperiencetoFataofgovernmentservantswhohadlearnedtheir
skillsinNWFP.ItalsoprovidedFatawithamuchlargerpoolofofficerstoselectfrom.SinceFatadidnot
haveitsownservice,theofficersservinginFataandwhoreceivetrainingduringthecourseoftheirjob
whentransferredbacktotheprovincetakeawaythebenefitoftheirexperienceinFata.Thereisthusno
continuityandcapacityisnotdeveloped.Asamatteroffacteventhepreviouscapacityhasbeenlost!
Allthefactorsenumeratedabovecombinedtoreducetheeffectivenessofthepoliticalagent.This
wasnotlostonthealQaedaandotherswhohaddecampedfromAfghanistanandwerenowpresentin
FATA.Theyemergedandbegantheirevangelizingmission.Theyenrolledtribesmenandothersandalso
establishednumeroustrainingcamps.TheyspreadtheirinfluenceintothedistrictsofNWFP.Thespread
of these warriors went unchecked, since there was now no designated structure of the provincial
government left to challenge them. In Fata the political agent could not check their growth as he had
beenmarginalizedbythemilitary.

Tribalareastaskforceonreform
It is not the case that the Pakistan government was not confronting the challenge of reform in
Fata. In April 2006, the Presidents Task Force on Tribal Reform (Strengthening and Rationalization of
AdministrationReport),submitteditsreport.Thistaskforcewasformedtorecommendmeasuresforthe
revivaloftheauthorityofthepoliticalagentformeetingthesecuritychallengesintribalareas.
The committee was headed by a very experienced civil servant. The report of the committee is
importantforwhatitsaidbetweenthelinesratherthanwhatitsaidexplicitly.Someofitsmainfindings
andrecommendationswere!
ThetribalbalanceinFatawasdisturbedbytheMujahideenwaragainsttheUSSRfrom197988.
TheestablishmentoftrainingandrefugeecampsinFataduringthisperiodradicalizedthetribes
ThemovementofthemilitarytoFatapost9/11reducedtheauthorityofthepoliticalagentsand
theywerethusnotabletoinfluencetheturnofeventsinfavorofgovernmentpolicies.
Thepoliticalagentssupremacyinanagencymustberecognizedbyallthestakeholdersincluding
themilitary,iftheeffectivenessofgovernmentwastoincrease.
The best option for the future of Fata was its merger with NWFP, however since it could cause
problems in these delicate times it could wait after examination by a Commission especially
constitutedforexaminingthismatter.
TherewasaneedtoreviewandamendtheFCR
Fatashouldbegivenresponsiblelocalgovernment
ThegovernmentshouldreinstatetheCommissionerbutinsteadcallhimaCoordinator
Thereshouldbemoreemphasisondevelopmenttobringatparthesorrysocialsectorindicators
oftribalareas.
Thedevelopmentbudgetoftribalareasneededtobeincreasedmanyfold.Anewdevelopment
authorityshouldbecreated
ManyoftherecommendationsoftheTaskForcehavebeenapplied.Theimportantonesbeingthe
approvalofa$2.3billiontenyeardevelopmentplancalledtheSustainableDevelopmentStrategy.Only$
1billionhasbeencommitted.Theremainingamountistobefound.Adevelopmentauthorityhasbeen

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created.Apartiallyempoweredlocalgovernmentsystemisinplace,whichdoesnotmeettheaspirations
of the people. There is no progress regarding political or empowerment reform, which is crucial for
isolatingtheradicals.
However,asinthepastthiscommitteetooshiedawayfromproposingarapidmergerofFatainto
NWFP. It failed because its analysis of the causes of the decline of the administration of tribal areas is
flawed.ThepoliticalagenthasbeenbyepassedbymanymeasuresinitiatedinPakistansince2002.Heis
now marginal and is confronted by a radical movement. He cannot operate within the dynamics of the
tribestheyhavebecomeautonomousinasense.Theyneedtobebroughtbackthroughwideranging
reformsindicatedbelow.

ProposedFatareformhighlights
The analysis above has explained the back ground and has indicated why reform leading to the
mergerofthetribalareasintoNWFPisessential,ifthelivesofthetribesmenaretobeimprovedandthe
menaceofprovidingsafehaventowarlordsistoend.Inordertodosothefollowingneedstobedone:
A strong advocacy program should be launched in Fata and within Pakistan explaining why the
agreedreformisimportantforthestabilityofPakistanandthedevelopmentofthepeople.
Consultations with all sections of the tribes and within Pakistan should begin prior to the
introductionofthereformsalongwiththeimplementationofaPeacePlan.
StepsshouldbeimmediatelytakentomergeFataSecretariatintotheprovincialsecretariatwitha
strengthenedcapacity.
Simultaneously,thePoliticalPartiesActshouldbeextendedtoFata.
FCRshouldbereplacedbyaliberalFataRegulationprovidingmorefundamentalrightsalongwith
rightsofjudicialappealandreview.
FullyempoweredLocalgovernmentshouldbeintroducedandelectionsheldunderit.
Developmentshouldshiftitsemphasisfromsectoraltoacommunitybasedapproach
A comprehensive stabilization strategy shouldbe devisedbythe civil andmilitaryestablishment
forFatasoastoreducereactionagainstthegovernmentcausedbyantimilitantoperationswhich
arelikelytocontinueforsomeyears.
In2010,electionofFatamemberstotheProvincialAssemblyshouldtakeplace.
ThenomenclatureofthepoliticalagentshouldbechangedtoExecutiveofficer.
WhileundertakingFatareforms,simultaneouslyPatashouldbemergedintoNWFP.
AConstitutionalamendmentwillbeneededtoreplaceArt246247reflectingthechangesthatwill
beinevitableafterfollowingtheprocessindicatedbelow.

Risksandchallenges
Reforming the tribal areas is the one of the biggest challenges facing this country. Any reform
processwillfacethefollowingrisksandarguments:
The religious parties and the TTP (Tehriq e Taliban Pakistan) will insist that instead of
mainstreaming it by amendment of FCR and other political reforms, Fata should remain under
theircontrolasinthepastandShariatshouldbeintroducedinstead.TheTTPwhichisfightingthe
statehasmadethisdemandalready
ManypartslikeWaziristanwillresisttheendingoftribalisolationsinceithelpsinthecreationof
resistanceandinfightingthewarinAfghanistan.
Thetribalvestedinterestwithinitspatronagebasedsmallelitewillalsoagitatetheprotectionof
statusquo.

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Themainsupportersofthereformswillbetheyounggenerationandthosewhoareeducated.

Proposedreformprocess
ThePMshouldobtainthePresidentsapprovalforreform
Preliminary discussions should be held with the PM to obtain approval of the reform process
frameworkandanindicativebudgetforactivitiesunderthisreformprocessobtained
Preparationofdraftreformproposals
NotificationofaTaskForceonFataReform,whichshouldbesmallandmusthavemembersfrom
NWFP, military (National Security Advisor?). It should have TORs based inter alia on issues
indicatedaboveunderProposedFatareformhighlights.
Notification of Fata Reform Issues (Resolution) Committee chaired by the Prime Minister and
including two other senior ministers and head of the task force as members, who will resolve
reformissues.
Identificationofanorganizationtostartmoderatedconsultationprocesswithtribesmenthrough
FGDs(callthemJirgas).ThisorganizationwillbeanextensionoftheTaskForceandwillbeholding
theconsultativeprocessaftermappingthelikelyplayersneededforconsultation.
After mapping the consultative process the organization will submit its proposal for approval of
theTFalongwithabudgetaryproposal.
HoldingofFGD(willtake3months)
SubmissionoffindingsofFGDtotaskforce
TheTFdebatesandsubmitsproposalstoFataReformCommitteeforresolutionofissues.
ThePMconsultsvariousorgansofstate;hecreatesalobbyofsupportersforreforminParliament
FataReformBillispresentedtoParliamentinamaximumofsixmonthsafterthestartofthe1st
FGD.
TheReformBillisapprovedbyparliamentandbecomeslaw
Animplementationcommitteeisformedtomonitortheimplementationofthereforms;theFataReform
(Resolution)Committeeremainsintactandcontinuestoremovebottlenecksinthewayofreform.

Conclusion
ForthereasonsgivenonecanconcludethatPakistanislikelytoremainanunstablestatewitha
weakadministrationandadisempoweredpeoplewhoareconstantlyatwarwiththemselves,unlesswe
recognizetheproblemsandcorrectthem.ReformsinFATAwillbethemostimportantmeasurethatcan
bringpeacetotheregionandstrengthenPakistan.
Reforms will be resisted and challenged but then no serious reform is ever smooth. It may be
arguedthatletreformsbediscussedwhenthereispeace.Itishoweverfeltthatthereformprocessitself
will be an effective intervention which will accelerate peace building and will give a chance to the
aggrieved to carry out their discourse within the confines of the Pakistani state institutions by getting
electedandnegotiatingintheassemblies.
Itisthereforeproposedthatthispanelmaydebatetheproposalssubmittedinthispaperandany
others that the panel members may introduce after which the structure and process of reform may be
recommendedforimplementation.