300. Case Study report 4.1 - Book - Aga Khan Development Network

Collaboration between Governmentand Civil Society OrganisationsA Report by Pakistan Centre for PhilanthropyPakistanCentre forPhilanthropy

Collaboration between Governmentand Civil Society OrganisationsA Report by Pakistan Centre for Philanthropy

The Pakistan Centre for Philanthropy (PCP) acknowledges financial support for this reportfrom the Aga Khan Foundation (Pakistan) through the Civil Society Programme of the AgaKhan Development Network (AKDN). PCP is an implementing partner organization for thisactivity.Opinions expressed in this publication do not necessarily represent the official views of HisHighness the Aga Khan, the Aga Khan Development Network or any of its related agencies orinstitutions CAny reproduction of this report without prior permission of PCP and AKF (P) is discouraged.The Aga KhanFoundation (Pakistan)The Pakistan Centrefor PhilanthropyPrinted by xxxxx IslamabadCover and design, copy-editing, desktop composition and production management: Asad Zia Iqbal andMohammad Faisal Rana, Pakistan Centre for Philanthropy, IslamabadPublished in May 2007

PrefaceRanked 134 out of 177 countries onthe Human Development Index (HDI),Pakistan's social indicators remain aspitiful as ever says UNDP's HumanDevelopment Report 2006. Accordingto the UN Human Development Reportof 2004, a child born in Bangladesh,India, Nepal, Bhutan, Sri Lanka andother South Asian countries has a betterchance of enjoying a good standard ofliving in terms of human developmentthan the average child in Pakistan. Thereport categorizes Pakistan as the “worstperformer in South Asia” in terms ofhuman development.Although the primary responsibility ofinvestment and management ofsustainable development lies with theState, it is acknowledged thatgovernment with its limited resourcesalone cannot resolve the myriad socialand economic problems of Pakistan'sburgeoning population. The questionarises that if not the Government thenwhat other alternatives are available toachieve sustainable development?Elsewhere in the world the focus seemsto be on creating productive and viablelinkages with key stakeholders such asthe private sector and the civil society toensure the attainment of developmentgoals.A partnership approach increasinglyadopted in many countries advocatescollaboration between the government,the private and the civil society sectorfor sustainable development. Thesethree key stakeholders in developmentcapitalize on their unique strengths inresponding to development issues. NoGovernment or Civil SocietyOrganization (CSO) has the means orthe resources to go the distance alone.Collaborations require working withand harnessing the resources of theentire community in meeting the needsof the vulnerable population.Our social interface too hasexperienced these paradigmaticchanges; an increasing number ofcoalitions are being formed amongstthe public, private and civil societysector to tackle the development crisis.Being at the crossroads of a new andchallenging social paradigm, a needwas felt to delve into the dynamics of asuccessful collaboration. The Aga KhanDevelopment Network (AKDN) inconsonance with its developmentphilosophy has started a newprogramme that would enhance thecompetencies of the civil society sector.This exploratory research entails afocused study of some successfulexamples of existing Government-CSOCollaboration and concurrentlyattempts to identify what translates intoa successful collaboration.In 1998, the AKDN commissionedstudies on 'indigenous philanthropy' inP r e f a c eI

Pakistan to advance the idea of selfrelianceand reduce dependency onforeign aid. The design required astrengthened civil society supported byan enabling environment working forpublic benefit. This 'Initiative onIndigenous Philanthropy' led to theestablishment of Pakistan Centre forPhilanthropy (PCP) in 2001. Sinceinception PCP has been working to setthe state and civil society, together, onthe path towards a facilitative policy,legal and fiscal environment for citizenorganizations in Pakistan. PCP'scompetence, capacity and relevantexperience and engagement with civilsociety manifested through itsprogrammes led to the AKDN-PCPjoint effort to undertake this baselineexploratory study.encumber the development process.This study, being exploratory ratherthan evaluative, sets the context andopens up the door to further debateand research to build upon the idea offostering strong and effectivecollaboration between the governmentand civil society.The PCP Board hopes that this reportwill prove to be an initial step infostering an environment of trust andmutual understanding between theGovernment and CSOs. The fruition ofthese efforts would be strong andeffective coalitions between theGovernment and CSOs necessary forequitable growth and developmentultimately leading to improvement ofthe quality of life of the least fortunate.This study explores successfulcollaborations between theGovernment and CSOs across thecountry by identifying concrete successparameters. PCP documents thisresearched information in the form ofcase studies, highlighting the good andmutually rewarding collaborations andtheir advantages. Lastly the study alsoattempts to define the obligations ofGovernment as well as CSOs and thelack of effective mechanisms which

AcknowledgementsSymphony is created when all the notesare in sync with each other; similarly avaluable piece of research is the fruitionof many minds working in symmetry.This report on “Government - CSOCollaboration” will be a catalyst inredefining the existing nature ofengagement between the Governmentand CSOs.First and foremost PCP acknowledgesthe financial support provided for thisstudy by the Aga Khan Foundation(Pakistan) through the Civil SocietyProgramme (CSP) of the Aga KhanDevelopment Network (AKDN). A wordof acknowledgement for Mr. RichardHolloway, Programme Director CSP,AFK (Geneva) and Mr. Gul NajamJamy, Programme Officer CSP, AKF (P)for their valuable advice andcontinuous support.I would like to acknowledge andappreciate the untiring and committedefforts of our staff whose dedicated andpainstaking work made this reportpossible; principal contribution ofProgram Officers Ahmad Naqvi, RafiaRauf and Junior Programme OfficerSara Haq for careful compilation andanalysis of the report. Theprofessionalism and the dedication ofthe entire team in meticulouslydesigning and executing the projectdeserve recognition: Asad Zia, AzharMehmood and Faisal Rana for theirefforts in collecting data from both theGovernment and the NGOs.Recognition is due to the backstoppingsupport of the Manager Finance &Administration, Syed MohammadAhmad and Finance & AdministrationOfficer, Rashid Rafiq whose efficiency inarranging the logistics was crucial to thesmooth travelling of the teams acrossthe country. A note of thanks to AleezaAkbar, Faisal Rana and Asad Zia for thelayout and design of the document.A special word of appreciation andthanks to Senior Programme Manager,Eazaz A. Dar for diligently leading theteam, providing invaluable guidance inconceptualizing the report frame workand in punctilious review and editing ofthe report.We are greatly indebted to the NGOsand Government officials for theirprompt response in providing us withrelevant data without which theformulation and culmination of thisreport would have not been possible.Finally, a word of gratitude forChairman Dr. Shams Kassim-Lakha forhis sustained guidance andencouragement in all aspects of thisdaunting task. His and Board ofDirectors support has been a source ofgreat inspiration for us to continue ourefforts in broadening the knowledgebase through research.Shahnaz Wazir AliExecutive DirectorA c k n o w l d g e m e n t sIII

Executive SummaryPakistan's diverse and pluralistic civilsociety sector is a major player in thedevelopment of the nation. The focusof the present study was on identifyingmutually rewarding collaborationsbetween government and civil society.To bring objectivity and evidence to thefindings the study starts with anexamination of the broader civil societycanvas and specifies it with examplesof collaborations between governmentand different types of civil societyorganisations operating in the country.The analysis is based on the historicaland operational dimensions ofcollaboration of 19 CSOs selectedfrom across the country. The datacollected has been compiled in theform of this report i.e. a booklet ofCase Studies, which will bedisseminated in a national workshop.The first of its kind study, it hasproduced valuable lessons, which willbe shared in the national workshopwith stakeholders. We hope that thenational workshop will serve as aplatform for generating furtherdiscussion about the nature and thetypes of existing CSO and governmentcollaboration and to find ways andmeans of fostering stronger andeffective partnerships.The study can be divided in three partsi.e. the introduction, the case studiesand findings/conclusion.The first chapter gives an insight intothe why, what and how ofcollaboration. After a thoroughdiscussion on the global dynamics ofcollaboration, the debate then movesonto the civil society scenario inPakistan encompassing the typicalNGOs and the non-traditional civilsociety sector. A major volume of thereport reflects on the evolution of civilsociety in Pakistan and how with thepassage of time the traditionalacrimonious relationship of the statewith civil society has given way toconstructive engagement. This chapteralso includes the methodology and theconstraints of the research.The chapter concludes that in Pakistansynergistic and constructiveengagement of CSOs with governmentis still in its infancy, and most of theseengagements are associated withservice delivery interventions in areassuch as health, education, povertyreduction and communitydevelopment. Concurrently research onthe broader civil society sector revealedthat most partnerships betweengovernment and CSOs fall in theclassic consultative or service deliverymodes of engagements. Mutuallyrewarding relationships remain few andsporadic and have not contributedsubstantially towards building strongmodels for further replication. Most ofthe symbiotic engagements are thusfound in the typical developmentorganizations i.e. NGOs a subset ofCSOs.

In the present study the existenceof Contractor-Client collaborativemodel is only 17% of thedocumented case studies, DonorDriven Relationship was prevalentin 17% of the case studies, thecooperative collaboration throughMarriage of Convenienceappeared to be the operatingmode of 65% of the cases. A paradigm shift in developmentthought and practice has broughtabout a distinct change in thetraditional roles of governmentand CSOs that have definedcross-sector collaborations inPakistan's social developmentscenario. Only 1% of the cases in thepresent study provided evidence ofa relationship where the twoparties were jointly involved inpolicy formulation. It was also noted that a CSOcould have varying types ofcollaboration with the governmentat different points during its lifecycle.project for its successfulimplementation. The prevalent attitude that policyframing is the privilege of thegovernment only. In collaborations in which thegovernment acts as the financier,delay in the release of installmentof funds has been noticed as arecurrent problem.Reservations of government on theother hand impressed upon the factthat while the CSOs play a positive rolein creating awareness but most of thetimes the issues are over emphasized.In addition, the officials felt that thedegree of involvement should be thesame at all stages of the project,usually CSOs start with a closerinteraction, which fizzles away as theproject nears its completion.Some challenges faced by CSOsincluded: CSOs have to ensure thecontinued involvement of thegovernment in all stages of a

AcronymsAKRSPAKF (P)APBRSPCCBCBOCODCDCODDCDGDTCEFATAFBSGBTIGEMGOPGROHDIIRCKPPLGOMMSMONRBNGOPCPPFCPRCsPRSPPRSPRSPSHGSRSPTMAUCVOWOAga Khan Rural Support ProgrammeAgha Khan Foundation, PakistanAndhra PradeshBaluchistan Rural Support ProgrammeCitizens Community BoardsCommunity Based OrganisationCommunity OrganisationDeputy CommissionerDistrict Coordination OfficerDistrict Development CommitteeDistrict GovernmentDevolution Trust for Community EmpowermentFederally Administered Tribal AreasFederal Bureau of StatisticsGhazi Barotha Taraqiati IdaraGender Empowerment MeasureGovernment of PakistanGrass Root OrganisationHuman Development IndexIndus Resource CentreKhushal Pakistan ProgramLocal Government OrdinanceMahila Mandal SamakhyasMarket-Oriented OrganisationNational Reconstruction BureauNon-Governmental OrganizationPakistan Centre for PhilanthropyProvincial Finance CommissionProvincial Finance CommissionsPoverty Reduction Strategy PaperPunjab Rural Support ProgrammeRural Support ProgrammeSelf-Help GroupsSarhad Rural Support ProgrammeTehsil/Town Municipal AdministrationUnion CouncilVillage OrganisationWomen's OrganisationA c k n o w l d g e m e n t sIII

C o n t e n t s2C a s e S t u d i e s 25Participatory IntegratedDevelopment Society (PIDS)25BalochistanSociety for EmpoweringHuman Resources (SEHER)Society for Community Support &Primary Education in Balochistan (SCSPEB)26281Environmental Protection Society (EPS)Pakistan Village DevelopmentProgramme (PVDP)3536NWFPI n t r o d u c t i o nDimensions of Civil SocietyChanging Social DynamicsPakistan MilieuRoad to ReformResearch Methodology02030301PunjabFamily Planning Associationof Pakistan (FPAP)Ghazi Barotha Taraqiati Idara (GBTI)Idara-e-Taleem-o-Agahi (ITA)414345Punjab Rural Support Programme (PRSP) 47

3Finding of the study 74What makes a collaboration successful?Issues and ChallangesRecommendationsSindhHealth and NutritionDevelopment Society (HANDS)Indus Resource Centre (IRC)ISRA Islamic Foundation (IIF)Marie Stopes Society (MSS)515254564Government - CSO CollaborationA Pictorial ViewNorthern AreasAga khan RuralSupport Programme (AKRSP)Danyore Local SupportOrganization GilgitKarakorum Area DevelopmentOrganization (KADO)Marafie Foundation (MF)66Professional Development Centre North (PDCN) 67Area Development Organisation (ADO)61636473AnnexAppendix 1: Research Matrix 91Appendix 2: Survey Questionnaire 83Appendix 3: Short-listed Organisations forfield survey and interviewsList of Tables/ GraphsGraph 1: Questionnaires send to stakeholdersGraph 2: Sector wise response of stakeholdersGraph 3: Response on questionnairesGraph 4: Relationship between Govt and Civil SocietyAJ & KAbout the CentrePCP Board of DirectorsInside back coverBack flap

IntroductionFinancial and physical capital in thepast were considered to be the onlynecessary ingredients for thedevelopment of society however newthought and actions reinforced byrecent events have enabled us torecognize the importance of socialcapital. Social capital refers to thehuman resource assets, norms andnetworks that enable collective action.The central premise of social capital isthat such networks have value and arecritical for poverty alleviation andsustainable human and economicdevelopment. The concept of socialcapital now frequently used in thedevelopment world impresses upon theneed for a greater degree ofcollaboration amongst the public,private and the citizen sector.the answers or the competencies torespond to the burgeoning developmentissues. Working separately, the differentsectors develop activities in isolationoften competing with each otherresulting in duplication of efforts andcausing wastage of scarce resources.This working in parallelism over a periodof time undermines synergies anddevelopment of societies. Collaborationis therefore essentially a mechanismdesigned to deliver effective, integratedand sustainable solutions to cultural,social, economic and environmentalchallenges by building concertedapproaches. There is no gainsaying thefact that a of new mix resources,competencies and synergies offerssolutions to some of the world's mostpressing social and economic problems.1Robert Putnam, Bowling Alone:The collapse and revival ofAmerican community, New York:Simon and Schuster, 2000.The question arises as to what is therationale for collaboration, why doesthe state or civil society need thisinterdependency. Collaborativepartnerships have been crucial inbringing about major economic orpolitical changes in countriesundergoing transformations. This“Collaboration approach” is redefiningthe traditional roles of government, civilsociety and business and is offeringinnovative solutions to developmentalchallenges.For a state to advance into the ranks ofdeveloping countries, it is imperativethat all sectors (public, private and civilsociety) make specific and coordinatedcontributions. No sector alone has allThe focus of Centre's this enquiry is onexamining the nature of relationshipbetween two crucial partners in socialdevelopment i.e government and civilsociety. The role, functions andresponsibilities of government are welldefined but the role, domain andlegitimacy of civil society is still a topic ofintensive debate and discourse. Thisfield based social action researchprovides an insight and confirms thatthere is immense value to governmentcivil society collaboration; structural andattitudinal issues and problems that actas barriers can be overcome withappropriately designed approaches andinteractions. This report aims athighlighting the value of collaborationbetween government and civil society,

identifies issues involved and showcasesa few successful and mutuallyrewarding collaboration. Thisendeavour can be springboard tofurther research and debate for findingways and means to foster even strongerand more effective collaborationbetween the two. The following sectionspresent the subject at hand as has beenexamined.to highlight that Civil Society as anumbrella term refers to almost all groupsoutside government. Civil society - theprincipal player in articulating the needsof various groups - creates awarenessabout key issues in order to influencepolicy formulation and decision-making.It is christened as the “third sector”, anentity distinct from government andbusiness.Dimensions of Civil Society:According to AKDN-PCP understanding,civil society organizations (CSOs)The variety of roles, diversity of encompass a vast array of organizations -functions and broad range of CSOs public benefit or mutual benefitmakes it difficult for developmentorganisations - both formal and informal.practitioners to reach a consensus on a They are a host of not-for-profit or nonsingledefinition of CSOs andprofit associations through which societycategorisation. An Asian Development voluntarily participates in the political and(ADB) Report divides CSOs into four socioeconomic development processes.categories on the basis of theirThey include all institutions such as nonorientation. The first includes Charitable governmental organisations (NGOs),CSOs who strive to meet the basicright based groups, charities,needs of the poor such as provision of philanthropic foundations, professionalfood, shelter, medicines, and cashassociations, trade unions, labour unions,donations. Service CSOs are a second cultural and religious groups, social andcategory, they provide health, family sports groups, media, chambers andplanning and education services;community groups covering cooperativescommunities are integral to theand community developmentimplementation of their programmes. organizations.Participatory CSOs, a third categoryare those based on the concept of self- Community groups play significant roleshelp projects, where local people are at the local level and are considered asinvolved particularly in thegenuine indigenous organizations. Theyimplementation of a project bytake many different forms and can becontributing cash, tools, land,described as private voluntarymaterials, labour and participation of organizations (PVOs), community-basedcommunity begins with the needorganizations (CBOs), voluntarydefinition and continues into thedevelopment organization (VDOs) andplanning and implementation stages. people's organizations (POs). CSOs areLastly are the empowering CSOs these typically established through volunteerism,are 'rights' NGOs whose aim is to helppoor people develop a betterunderstanding of the social, politicaland economic factors affecting their2lives and to increase their self-reliance.Their main role is characterised bylobbying, advocacy and campaigning.For ease of understanding, it is prudentmostly working without any remunerationand most CSOs continue to draw and3depend upon volunteerism. The figurebelow gives a clearer view of the nonprofit sector.23Asian Development Bank, TheUrban Poor and BasicInfrastructure Services in Asiaand the Pacific. Manila, 1991.African CSOs Speak on the WorldSummit on the InformationSocietyNovember 2005, United NationsEconomic Commission forAfrica.I n t r o d u c t i o n02

45John Hopkins Study 2002.Abdullah Paracha, Saad,Devolution Plan in Pakistan,August 2003.This sector provides a host of services tosociety including social service delivery,empowerment of disadvantagedcommunities, advocacy for basichuman rights, capacity building,development of infrastructure andinfluencing policies. According to theresearch conducted by the JohnsHopkins University through itsComparative Non-profit Sector projectthe “civil society sector has emerged asa major economic force in addition tobeing a major contributor to socialdevelopment and political4participation”.Changing Social DynamicsDevolution is the transfer of power andresources to lower-level authoritieswhich are largely or wholly independentof higher levels of government and tolocal elected representatives.Devolution is not unique to a particularcountry but is increasingly reflective of aglobal trend: for greater empowermentof the people. Most developingcountries are embracingdecentralization whether in LatinAmerica, Europe or East Asia. Need forpolitical stability and more effective andefficient service delivery are the primaryreasons for devolution. Dispensingformal political power to elected locallevel politicians is an emerging globaltrend. Devolution is expected to achievehigher economic efficiency, betteraccountability, larger resourcemobilization, lower cost of serviceprovision and higher satisfaction of localpreferences. Devolving resourceallocation decisions to locally electedleaders can improve the match betweenthe mix of services produced by thepublic sector and the preferences of thelocal population. Decentralization isconsidered to be particularly beneficialfor rural development in disadvantagedlocations. It usually entails a net transferof fiscal resources from richer to poorerareas and leads to an increase in thequantity and quality of expenditures in5these areas.This new governance paradigm whilerecognizing the significance of civilsociety in the development process, callsfor a strong collaboration between civilsociety and the state. Collaborationsprovide the multi-actor, integratedsolutions often required by the scopeand nature of the problems being dealt

with. Each player brings with itselfunique skills and competencies thatsupplement the ongoing developmentactivities.Collaborations foster greater benefitssuch as giving the players access to awider pool of resources, expertise,experience, dynamism and innovation toaddressing complex challenges andissues, efficiency by means of sharedcosts and effective delivery systems,capacity building of work force and lastlycollaborations also ensure long-termsustainability of development efforts.Participatory developmentThe notion of participatory development emphasizes broader involvement of allpeople in the productive decision-making processes, in access to education, healthand other public services and a more equitable sharing of the benefits. The fullerinvolvement of society at large in the planning and implementation of developmentactivities is a basic element of the notion of participatory development. This impliesthat, rather than governments doing the job alone, they should provide a frameworkfor the population to take part in the decision-making process, to encouragecommunities to provide critical contributions in the delivery of services needed bythe population. This in no way means by-passing government, but merely implieschannelling development activities through the use of civil society organizations andother decentralized channels. It is also clear, on the other hand, that effectiveprogress towards realization of the objectives of participatory development requiresfundamental changes in basic attitudes, national planning and implementationsystems and in relationships with governments, especially for coordination anddialogue on policy issues.Source: African CSOs Speak on the World Summit on the Information SocietyNovember 2005, United Nations Economic Commission for Africa.Government, the mainstay ofdevelopment plays a pivotal role byproviding funding and support to theCSOs for development. Without astrong establishment and provision ofan enabling environment the civilsociety sector would be paralyzed;CSOs on the other hand enhanceoperational performance bycontributing local knowledge, providingtechnical expertise and leveragingsocial capital. They also bringinnovative ideas and solutions as wellas participatory approaches to solvinglocal problems. CSOs are now movingbeyond merely delivering socialprogrammes or services. They are alsomaking valuable contributions in thedevelopment of social and economicpolicies and in monitoring the impact ofpolicies and programmes at the grassroots level.In this backdrop of multi-stakeholderdependency, civil society remains acrucial player for the implementation ofsustainable development. The better civilsociety is organized - the higher its levelof social capital - the better it is able toexpress this social demand and toprovide leadership in the effort to meetit. Social capital is formalized in civilsociety organizations (CSOs), voluntaryassociations, organizations, movementsand networks that live and work in thesocial space outside the state and theprivate sector. The last few decades haveseen phenomenal growth in CSOs whoI n t r o d u c t i o n04

global warming, degradation of thenatural environment, terrorism and therisks of proliferation of weapons ofmass-destruction further amplify theneed for concerted and collaborativepartnerships. There are an ever-increasing number of examples of sucharrangements at local, regional,national and international levels thathave made tangible and significantcontributions to sustainabledevelopment.work in a vast array of sectoral andinterest groups, including agriculture,environment, development, health,human rights, indigenous peoples,peace, population, religion, trade,youth and women. The growingimportance of CSOs on theinternational stage and the positiveroles they play is an affirmation of thefact that “civil society is as much part oftoday's global governance as6governments”.6Statement by the United NationsResident Coordinator NicolaHarrington at the NansenDialogue Network BalkanRegional Conference on ConflictPrevention and Peace Building,Igalo, Montenegro, Serbia &Montenegro, 4 November 2004.Cross-sector collaboration is not new.Some level of social and economicinter-dependence forced or voluntary -has always been fundamental to alldevelopmental endeavours. Historically,government-CSO relations have beencharacterized by mutual antipathy anddistrust but now with the increasingpressures on the natural environmenttogether with growing social andeconomic inequities; the need forintegrated solutions to glaring globalproblems has become more imperative.Collaboration translates into thegovernments garnering the support ofnon-state actors by broadening anddeepening the ownership of thecoalition and by engaging allstakeholders as fully as possible. Civilsociety organizations by their verynature tend to be closer to thegrassroots level and hence feel thepulse of their communities as comparedto the government. CSOs often haveconstituencies that they can mobilize atlevels that government may find difficultto reach.Global ScenarioRecent global events such as thedemographic explosion, ideologicalconflicts, cultural and religious tensions,growing inequity and poverty, thedisparity between rich and poor, forcedmigrations, the oppression of women,The World Bank first began to interactwith civil society in the 1970s throughdialogue with CSOs on environmentalconcerns. Today the World Bank consultsand collaborates with thousands ofCSOs throughout the world, such ascommunity-based organizations (COs),CSOs, NGOs, social movements,labour unions, faith-based groups, andfoundations. The World Bank haslearned through these three decades ofinteraction that the participation ofCSOs in government developmentprojects and programs bringseffectiveness and transparency to theprojects.UNDP engages with civil societyorganizations at all levels to promote theMillennium Development Goals (MDGs)and support people in their efforts tobuild a better life. Substantivecollaborations with CSOs are of greaterstrategic importance than ever beforegiven the integral role of civil societyactors in development. There is growingrecognition that engagement with CSOsis critical to national ownership,accountability, good governance,decentralization, democratization ofdevelopment co-operation and thequality and relevance of officialdevelopment programmes. RicardoReport's recommendations are enoughevidence of this fact. Similar examplesof seeking collaborations with CSOs in

various countries can be found on partof international organisations such asFAO, UNICEF, ILO and UNHCR etc.Government - CSO collaborations havealso made crucial contributions toreconstructions in conflict zones aroundthe world. In this post-conflict scenario,collaborations are an essentialmechanism of building andstrengthening civil society, businessesand government. It is beyond thecapacity of war ravaged governmentsor any individual sector to alone dealwith the massive developmentchallenges. Post-conflict reconstructionprocess requires coordinated efforts fromall stakeholders, through identificationand synergizing of mutual strengths andcapabilities. Together, government, theprivate sector and civil societycollaboration make up a formidable teamfor successful reconstruction. Similarexamples are found in Afghanistan,Palestine and Sudan, where despiteextremely difficult situations; thebreakdown of government apparatuscalled for and ensured collaborationbetween government and civil societyorgainsations.Post-Conflict PartnershipMozambiqueAgainst a background of post-colonial exigencies and disappointing economicdevelopment, Mozambique experienced full-scale civil war throughout the 1980s.However, the introduction of multi-party democracy created the necessary conditionsfor resolving conflict in Mozambique and addressing the economic devastationcaused by the protracted war. A little over a decade ago Mozambique transited froma civil war situation to peace. Mozambican Civil Society played a significant role inthe creation of an enabling environment for sustained peace and reconstruction.The activities of civil society in Mozambique are also carried out in the context of aviable partnership with government and the private sector. For its part thegovernment has encouraged the involvement of civil society in the reconstructionprocess and therefore, has acted to facilitate both the establishment and work ofCSOs in several ways. The increased number of indigenous CSOs substantiates thisafter the peace agreement in 1992.Source: UNECA. "Profiles of African NGOs in Peace and Conflict Resolution:Selected Country Cases, 1999Apart from the development agencies,governments and CSOs in manydeveloped and developing countriesare forging collaborations to deal withendemic social problems.program to cater to needs of the poorchildren especially girls and mobilizationof villagebased community health workers7to provide services at the doorsteps.Bangladesh's social indicators havegreatly improved over the past 15 yearsand this can be attributed to the multi-player approach adopted by the state.Some ground breaking interventionsinclude credit delivery to the poor,development of non-formal educationIn Latin America, major players such asthe Inter-American Development Bank,CIVICUS (the World Alliance for CitizenParticipation), the Synergos Institute (ananti-poverty development organization)and the Ford, Inter-American and Mottfoundations have joined forces withnational consortia of NGOs to implement7The World Bank. BangladeshDevelopment Series Paper No 11.Miguel Darcy de Oliveira andRajesh Tandon, Emergence ofglobal civil society , Issues ofDemocracy, USIA ElectronicJournals, Vol. 1, No. 8, July 1996.V i l l a g e a n d Wo m e n D e v e l o p m e n t O r g a n i s a t i o n s ( V O S / W O s )06

a common action agenda in support ofcivil society. Governments are alsobeing challenged to open up to newcollaborations with citizen organizations8to promote social development.In India a campaign against the use ofchild labour in the carpet industry wassuccessfully carried out in collaborationwith Government, the South AsianCoalition on Child Servitude (SACCS)and the Centre for Rural Education andDevelopment Action (CREDA). Thecampaign initially focused on bondedcarpet-children which later widened outto all children working illegally in thecarpet industry. Since 1983, enormousprogress has been achieved in thisregard. NGOs have worked with thejudiciary and government officials toenforce existing laws; they have beenable to threaten export marketssufficiently to effectuate some changesin industry without actuallyimplementing a boycott. Theyestablished the labelling scheme(Rugmark) and they have also had asignificant impact on the reduction inchild labour in the specific industries.This campaign significantly worked onmoving forward the debate on child9labour in the entire country.Pakistani MilieuThe government recognizes thatPakistan's social indicators lag wellbehind even of those countries atcomparable levels of income. Low publicexpenditures on health and education,either expressed in per capita terms oras a share of GDP, has been oneimportant factor contributing toPakistan's poor performance.The social reformers and developmentpractitioners in Pakistan believe thatcollaboration between government,private sector and civil society is now theonly solution to the country's growingsocial concerns. There is also a growingbelief that Millennium DevelopmentGoals (MDGs) can only be attainedthrough this cross sector partnership.Each sector has a range ofcompetencies, aspirations and styles ofoperation that through successfulcollaborations could achieve a commonvision.In Pakistan, the civil society sector hasemerged as a significant force inpromoting social and humandevelopment in the last decade and itscontribution is recognised by allstakeholders (government, national andinternational donors, media and theordinary citizens). Civil societyorganisations are privileged associatesof national and internationaldevelopment agencies in deliveringsocial services in various areas. This hasduly been acknowledged in variouspolicy papers of Government of Pakistansuch as Poverty Reduction Strategy Paper(PRSP), PSDP, Vision 2015 and89Miguel Darcy de Oliveira andRajesh Tandon, Emergence ofglobal civil society , Issues ofDemocracy, USIA ElectronicJournals, Vol. 1, No. 8, July 1996.Chapman, Jennifer and ThomasFisher, The effectiveness ofNGO campaigning London:NEF, 1999.“The poverty reduction strategy recognizes the significant role that NGOs can playin social service delivery, advocacy, and empowerment. However, the arrangementsdo not exist to identify credible Not-for-Profit Organisations (NPOs) that can betrusted for contributions from corporate philanthropists towards social investment.Certification of NPOs will help bridge that gap. As a first step, the Government hasauthorized the PCP for such certification.”Source: PRSP 2003; Para 5.190 5.191

Civil society in Pakistan like elsewhere society and the state is crucial toin the world encompasses a diverse and achieving good governance andbroad range of non-state actorssustained development. There is alsoincluding NGOs, CBOs, NGOmarked evidence that participation can incoalitions, faith-based organizations, many situations improve the quality,professional associations, trade unions, effectiveness, and sustainability of projectslabour unions, citizens groups,and strengthens ownership andvoluntary organisations media,commitment of government andchambers of commerce and industry stakeholders. Changes in the traditionaland associations with diverse interests socio-economic spaces have promptedthat work with or against thean evolution in the way the state and thegovernment. Though confronted with civil society interface. The statedefinitional issues, Johns Hopkins-SPDC traditionally focused on civil society in itsstudy of 2002 shows the number of operations and dialogue. However,registered nonprofit organisations in nowadays there is general acceptancePakistan as 56,000 and anotherthat the state must reach out to the entire30,000 as not registered. These spectrum of the civil society and not justorganizations vary a great deal in terms to the typical development NGOsof their size, scope and effectiveness.They strive to address issues ranging Approaches to Collaborationfrom religious instruction, education,health, agriculture, micro- finance,While examining collaborations betweensmall enterprise development andgovernment and civil society, it is prudenthousing to community policing,to first view its nature on the basis ofconsumer protection and civil rights theoretical framework and then proceedadvocacy. This study also provides the to ground realities. Any relationship ofbase line data helpful in dispellingCSOs with government is naturallysome misperceptions about the civil subject to a host of issues and problems.society: that CSOs' revenue base is The independence and autonomy ofmainly indigenously generated i.e 5% CSOs depends primarily on thecomes from the donors and 6% isregulatory framework and policy stance ofcontributed by government and only government, even in democratic countriesbecause of confrontational stance of government is usually wary of giving2% right based advocacy organisations carte blanch to them. This history ofon certain issues, it cannot be said that mutual distrust can be attributed to aCSOs have antagonistic relationship. number of factors; the wider outreachare donor driven there isand impact of CSOs work, particularlythe competitive edge at the grassrootsDespite due recognition by thelevel is a source of skepticism andgovernment, CSOs contribution toresentment amongst government officials,society and congruity of purpose, the secondly CSOs' claim to know the pulserelationship between government and of community especially at the grass rootsthe civil society sector is sometimes level is a major contention between thesemarred by mistrust and scepticism which two players and lastly CSOs that have ahinders smooth functioning andreformist agenda are again derided byachievement of mutual interests. Yet as the government for creating discord in theemphasized in the World Development society. CSOs that have an ideologicalReport 2004, collaborative andcongruity with that of government tend todynamic relationship between civilbe the most successful working in thisV i l l a g e a n d Wo m e n D e v e l o p m e n t O r g a n i s a t i o n s ( V O S / W O s )08

system, a slight breach of which leadsto their facing hurdles in attainment ofdevelopment goals.Government and CSO relationshipGovernmentsPostureSupportNeutralityHostilityActivity of NPOsServiceDeliveryService Delivery/AdvocacyAdvocacyIn totalitarian societies, on the otherhand, CSOs simply cannot operateindependently for their existence is notacknowledged by the government.Often Government assistance andsupport is turned down for fear of ittranslating into control. AmnestyInternational is one example wherebythey have strict policy against acceptingany form of Government assistance,financial or otherwise. Despite the workthat CSOs do, it is important to notethat not all CSOs are apolitical anduncontroversial. A good number ofthem may contribute nothing to thegood of society such as religiousextremists, xenophobic organizationsand extremist revolutionaries andradicals. Some have suspectundemocratic structures: transparencyin operations and accountability of suchorganizations is highly questionable.Nevertheless CSOs have a tremendousimpact in our lives and it is theresponsibility of the state to provide anenvironment where they can flourishand make positive contributions to thesociety.The relationship between the state andcivil society is determined by manycontextual factors, a fundamentalexample of which is the ruling politicalregime and the type of approach aspecific government adopts towardorganized interests expressed in civicaction. James Manor identifies possibletypes of approaches through which thesetwo players interact.Laissez -faire approach: A passiveapproach that refrains from strongengagement with civil society but mayenable the organization of citizens inindependent civil society organizations.Co-optation approach: Governmentsseek to co-opt some or all interests in anattempt to control civil society throughrelationships of dependencyPatronage approach: Similar to thecooptation approach, however thisapproach usually divides citizens'interests along 'client' lines.Consultative and Proactiveapproach: Governments seek tomobilize all or the majority of theirorganized interests in order to buildpolitical consensus. This approach maycreate a climate of strong citizenengagement in public debate and actionhowever it can surpass the boundaries ofindependent and critical mobilization.These complex and multiple levels ofengagement of government with civil

society and vice versa define theparameters in which they both interface.Existent legal, institutional and policyframeworks also play an integral role informulating an environment forconstructive and synergisticengagement between the two.In Pakistan a centralized regulatoryregime, unhelpful Federal andProvincial laws and intricate fiscal andtax regimes administered bybureaucratic elite limit a liberal andinclusive environment in which civilsociety can engage with government.Despite the prevailing non-conducive"engagement environment", there aresome if not many points where thegovernment interacts with the civilsociety.Devolution of power anddecentralization manifests the paradigmshift in the policy of the government.This avant-garde shift envisages greateropportunities for meaningful andeffective collaboration between theCSOs and the government in Pakistan.Though in the nascent and evolutionaryphase, “resistance” is now beinggradually replaced by “engagement” asthe dominant approach because bothCSOs and governments have begun tounderstand that neither can singlehandedlymeet the developmentobjectives. Successful examples ofpublic-private partnerships in socialdevelopment initiatives across the globehave helped create a strong case forgovernment-CSO cooperation among10key stakeholders in Pakistan as well.Sequential collaborative process:In Pakistan, today's rapidly changing,continually evolving and mostdemanding society no single institutionis sufficiently equipped to perform allfunctions alone. Cognisant of this factthere has been an increasing trend ingovernment and civil societyorganisations (CSOs) to exploreopportunities of working together.The different working strategies adoptedin this collaboration equation varydepending both on the type of settings aswell as the degree of willingness of thoseinvolved. However, apparently theseefforts directed towards forgingcollaborations seem to move on adevelopmental continuum of complexityand commitment ranging from the mostinformal to the most elaborative andempowering. The stages in this continuumare generally categorized as:-Networking: Essentially characterised byan exchange of information for mutualbenefit, networking is generallyconsidered to be the most informal ofcross sector linkages.Coordination: Adopted for acquiringmutual benefits as well as for achieving acommon purpose, coordination involvesboth exchange of information as well asaltering of activities. Compared tonetworking, coordination involves moretime, high levels of trust and greaterorganisational involvement.Cooperation: In this working strategybesides exchange of information andalteration of activities an added feature isthe sharing of resources (human, financialand/or technical). Compared to theprevious two, cooperation requiressubstantial amount of time, higher levelsof trust, greater organisationalcommitment and formalization ofactivities between the two sectors throughlegal agreements.Collaboration: Placed at the highestlevel of the continuum, key principles of acollaborative partnership involveemphasis on building capacity for mutualbenefit, producing policy change anddeveloping long term ownership of the10Asian Development Bank,Institutional Strengthening ofGovernment-NGO cooperation,2005.V i l l a g e a n d Wo m e n D e v e l o p m e n t O r g a n i s a t i o n s ( V O S / W O s )10

collaborative purpose, process and joint plan for problem solving with shortoutcomes. In a collaboration, theterm outputs as well as long termsectors involved work together for outcomes, combined setting of prioritiesachievement of a common objective by and a mutually agreed strategy forexchanging information, alteringaddressing the challenges to beactivities, sharing resources andencountered is finalised at this stage.enhancing each other's capacity. In this Emphasis on this as an essential preprocesswhich is marked withrequisite of collaborative engagement isconsiderable time commitments and primarily because occurrence of conflictincreased levels of trust, both partners and disagreement in an atmosphere ofend up sharing responsibilities, risks distrust where there are no skills andand the rewards.norms for constructive engagement willresult in the failure of any collaborativeOf the four working strategies aeffort. These early actions contribute farcollaborative partnership is the only one more to the utility as well aswhich is characterised by a common sustainability of collaboration than anyvision, meaningful power sharing, subsequent actions.mutual decision making and long termsustainability of the collaborative efforts. Developing ConsultativeEnvironmentMoving towards a SuccessfulCollaboration by its nature is highlyCollaboration:interactive. To constructively deal withCollaboration is a constantly changing problems or conflicts arising during thisand continually evolving process and sustained interaction among participantslike any other effort requires constant it is essential that lines of communicationnurturing. To help build collaboration to be kept open between the sectors. Ina level where it achieves the status of a collaboration one essential premise ismutually beneficial, constructive and that answers to all questions andwell-defined relationship entered into by solution of all problems come from thetwo different partners and is at the same participants involved. Therefore, bothtime successful in achieving the shared sectors must be kept involved from thevision and mission of the collaborative start with the objective of ensuringeffort, certain fundamental principles mutual discussion and mutualneed to be kept in focus at all times. agreement at all steps of the interface.Collaborations are influenced by the Establishing Common diversity of participants involved andGroundsplagued by their variety of self interests.In a collaborative setting, theTo promote and safeguard theparticipants involved are not members collaborative process in such a case, anof a single organisation. Consequently, environment enlisting total participationtheir training, experiences, values, and maximum support of the partnersperceptions and needs differ markedly. from the beginning is an absoluteIn such a situation, building a climate essential. Such an environment isof trust and openness is of utmostgenerally characterised by each sideimportance. Identification of mutual having the willingness to make internalinterests, similar problems, shared changes required for a cross sectoralaspirations so as to arrive at common working relationship and nonworkingground takes precedence. It is acceptance as well as nonimperativethat a commonimplementation of unilateral decisionunderstanding of the issues at hand, a making.

Sharing Resourceslargely depends on promoting andencouraging such a shift.Contributions sought are based onbroad definitions of capacities, assets Building each other's capacityand resources. Both the government A collaborative endeavour aims toand civil society have substantial human facilitate mutual relationship among thoseand technical resources that can be working together for a common purpose.made available in creating synergies. It seeks to increase those capacities of theBesides the obvious financial resources partners that are relevant for addressingthese include, knowledge of newthe challenges identified by the tworesearch, information gathering, access sectors. The basic premise of capacityto local communities, planningbuilding is based on the acknowledgmentexpertise, legal help, specific expertise and mapping of each others assets,on a wide variety of subjects,recognition of the values contributed bydevelopment of monitoring system and each partner and the realisation that eachdocumentation of record. In asector can play an integral role inconstructive collaboration, both non- enhancing the others capacity.financial as well as financialcontributions are equally valued. For A collaboration committed to capacitythis reason both the sectors dulybuilding focuses on facilitating friendlyacknowledge contribution of oneaccess to resources that normally may beanother to the equation. This mutual restricted to only those with authority,respect for each other's nature and level status or money; providing wheneverof contribution results in anpossible, specifically requested skillengagement where power is equally development opportunities in anshared and justly used. (ftn)appropriate manner and setting and most Focusing on the common goalimportantly, sharing risks as well asresponsibilities in challengingCollaborations will succeed andcircumstances.therefore will be sustainable only whenan understanding of the broader Devising Policypurpose permeates the attitudes and Collaborations must have some advocacybehaviour of the partners. This shift and policy input role. For without itfrom narrow, parochial interests to a collaboration would be nothing morebroader perspective is subtle andthan an attempt directed towards activitiesevolving. In such a case the two sectors such as, gathering of data or provision ofwill not cease pursuing their individual services required. To take theinterests however the difference will be collaborative process to higher levels ofin their realisation that self interest can inclusiveness and effectiveness it isonly be obtained through theessential that the collaborative structureachievement of the broader goal.has an advocacy focus that aims atbringing required, relevant yet innovativeThis shift is a profound one that marks changes in the prevailing policy anda turning point in the life of astrategic framework.collaborative effort. For this is the timewhen a collaborative endeavour moves Ensuring Sustainability of thefrom a 'We -They' to an 'Us' scenario.Collaborative EffortConstructing and sustaining aA successful collaboration attempts tocollaborative climate for the long run ensure continuation of its efforts beyondV i l l a g e a n d Wo m e n D e v e l o p m e n t O r g a n i s a t i o n s ( V O S / W O s )12

the termination of the initiative itself. development index by addressing issuesGenerally, for the purpose supportive ranging from health and education toand inclusive methods are adopted architecture, culture, micro-finance,which ensure that, responsibility for the disaster reduction, rural development,future sustenance of the collaborative promotion of private-sector enterpriseproduct is given to the people most and strengthening of the civil society.affected by the endeavour.The network's civil society activities focusCollaboration is known for beingon extending, improving and sustainingempowering in nature andhealth, education and welfare servicesempowerment essentially involvesfor the poor by forging collaborationsworking with people rather than doing it involving government, businesses andfor them. For this reason, community citizen organizations. Besides respondingparticipation and transfer of resources to the endemic social issues of theto community is generally adopted as country, the Network relentlesslythe mechanism for ensuring long term engages in research to come up withsustainability of the collaborative effort. innovative yet pragmatic solutions tostreamline the nascent civil societyFinally, it needs to be kept in mind that sector.it takes time to create a well designed,mutually rewarding and constructive In line with this tradition, the Networkcollaboration. Establishment ofrecently launched a Civil Societyrespectful, trusting relationships Programme (CSP) simultaneously in 8between partners results fromcountries having five components aimedunderstanding each other's beliefs, at building the competencies of the civilmotivations and for accomplishment society sector. Under this programmeand defining as well as addressing AKDN and PCP collaborated to conductchallenges in a manner that provides the instant exploratory research onopportunities for both partners to share government-CSO collaboration inin their solutions, these are procedures Pakistan.that emerge slowly, steadily andthrough constant nurturing.This joint collaboration of AKDN-PCP isaimed at achieving the shared visionPartnering for Changeand philosophy that government andcivil society have important roles to playThe Aga Khan Development Network in nation building, and particularly in(AKDN) one of the pioneerdevelopment efforts to improve thedevelopment networks in Pakistan, is a quality of life of the marginalized. Thegroup of development agencies which synergy that would arise as a result ofincludes the Aga Khan Foundation mutual trust and strong collaboration(AKF), Aga Khan Agency for Micro- between the Government and the CSOfinance (AKAM), Aga Khan Education will undoubtedly be a potent force inServices (AKES),Aga Khan Fund for reforming the social developmentEconomic Development (AKFED), Aga interface of our country.Khan Planning and Building Services(AKPBS), Aga Khan Health Services Methodology(AKHS),Focus Humanitarian Assistance(FOCUS), Aga Khan Trust for Culture The focus of this enquiry was more(AKTC),University of Central Asia (UCA) exploratory than evaluative. Thisand Aga Khan University (AKU). AKDN research was carried out in a briefis committed to improving the social period of four months. Research tools

Graph 1: Questionaire sent to StakeholdersGovernmentEDO - CD of101 Districts200 Civil SocietyOrganisationswere extensively used to add objectivityto the study. Primarily data wascollected through conducting interviews,distributing questionnaires and carryingout focus group discussions whileannual reports various resourcematerial and internet research served assecondary information sources.organisations available with PCP wasused. The questionnaire was also sent tothe Executive District Officers, CommunityDevelopment (EDO CD) of the country's101 districts. Of these 22 casesdemonstrating significant constructivecollaboration were selected and afterthorough analysis of the inputs receivedand in view of the nature and objectivesof the study, a sample of 19 CSOs wasshort listed for publication.In order to gain insight into the history,growth and role of CSOs and theoreticalaspect of collaboration between CSOsand government, resource material andrelevant literature was consulted alongwith a web search.The process of this social actionresearch began with laying out thedesign, finalising the approach andresearch tools. A comprehensiveresearch matrix was developedcontaining the stepwise details. An inhousediscussion and review of primary received (graph 1 and 3).data of NGOs, who applied forcertification, was conducted to shortlistrelevant NGOs. To develop a strategyand work plan for the study, a series ofconsultative meetings were held withconcerned stakeholders i.e. CSOs withexperience of working with thegovernment, Social Welfare Departmentofficials, Education and HealthDepartments, National EducationFoundations as well as Punjab andSindh Education Foundation andinternational donor agencies. On thebasis of guidelines provided in thesessions, a questionnaire wasdeveloped to collect information andfor examining all possible types ofcollaboration between government andthe CSOs (Appendix 2). Thequestionnaire along with a coveringletter explaining the purpose was sent toaround 200 CSOs across Pakistan. Forthis purpose, the database of civilsociety organisations or nonprofitIn spite of a month long period involvingrigorous follow up and reminders, theresponse rate to the given questionnaireswas not encouraging. A 25% responserate from the civil society sector and thatof only 5% from the government wasGraph 2: Sector wise response of stakeholdersHealth17%CapacityBuilding16%Others13%Poverty Alleiation13%Education41%A detailed field plan was chalked outwhich involved visits to selected CSOs,holding of exhaustive interview sessionswith the concerned government officialsand CSO staff and visits of the projectsites. Credibility of the data obtained wasfurther enhanced by recording thefeedback of beneficiaries. Fieldresearchers also obtained some projectrelated documents such asMemorandums of Understanding (MoU)signed between the government and theV i l l a g e a n d Wo m e n D e v e l o p m e n t O r g a n i s a t i o n s ( V O S / W O s )14

CSO, project proposals, budgets,monitoring forms and audit reports.These documents now form an essentialpart of PCP's extensive researchdatabase.To ensure nationwide representation,CSOs from all four provinces and AJK& NA were selected. Apart from theprovincial representation aspect, CSOswere also selected keeping in mind theirsectoral interventions and the nature oftheir collaboration with different tiers ofthe government. The data collected wasextensively reviewed and analyzed andcompiled in the form of this report i.e abooklet of Case Studies. The report willsubsequently be translated andpublished in both as well. Besidessharing the report findings withstakeholders in a national workshop,the report will be widely disseminated.The national workshop will serve as aplatform for generating furtherdiscussion about the nature and thetypes of existing CSO and governmentcollaboration and to find ways andmeans of fostering stronger and moreeffective partnerships.LimitationsAny intellectual discourse or endeavoursuch as research is bound to confrontsome challenges and difficulties. Thefield based and exploratory researchalso faced many challenges andconstraints. Of foremost importance isthe limitations of approach and basicdesign of research. The study is first ofits kind, and a significant challenge hasbeen to set the baseline both in terms ofinformation, data and methodology.Secondly, setting the contextualbackground in the design keeping inview the complex and ever evolvingPakistani milieu of both civil society andgovernment was further exacerbated bydefinitional issues. While conductingthe field surveys for this report, the teamGraph 3: Response to Questionnaires200200180160140120100101806025% Civil Society Organizations40205%Government0AddresseeRespondantshad to face certain practical constraintswhich should be kept in mind. Firstly, theteam was faced with time constraints asthe allocated time was four months andthe research team had to ensuregeographical and sectoralrepresentation. Also, there were accessto information and availability of dataconstraints since statistics were seldomconsolidated at different tiers ofgovernment and the team was facedwith non-availability of secondary data.Due to the insignificant interest ofvarious government departments andCSOs, the response rate toquestionnaires was discouragingly lowi.e 25% from CSOs and 5% fromgovernment departments. The traditionalcultural impediments contributed to thelimitations as several Women'sOrganizations could not be interviewed.Furthermore, the team was faced withmobility constraints in the northern areasof Skardu and the hot and humid areasof inner Sindh.Broader canvas of the studyPakistan's civil society sector boasts of along and varied past and an equallydiverse and inspirational present.Keeping in mind the diversities of thecivil society sector in Pakistan and to findexamples of mutually rewardingcollaborations between government andcivil society, a non exclusive approachwas adopted. In the present study, an

attempt was made to start with theexamination of the broader civil societycanvas and find examples ofcollaborations between governmentand different types of civil societyorganisations operating in the country.PCP's in-house database of NGOs andof a few other CSOs were consultedand studied. The collated and/orreported evidence of governmentCSOinterface was analysed to see if natureof engagement qualifies as a mutuallyrewarding, constructive and meaningfulcollaboration. Unfortunately theconcrete successful collaborativeexamples were only found with thetypical development NGOs.A few sample cases of broader civilsociety organisations examined are:Pakistan Engineering Council(professionals association)The Pakistan Engineering Council wasestablished as a corporate body underan Act of the Parliament, PEC Act No. V,on January 10, 1976 (amended videOrdinance No.XXIII of 2006). TheCouncil's Board comprises of bothgovernment and non governmentmembers. This body being an extendedarm of the government performs theregulatory functions on behalf of thegovernment such as registration ofengineers, architects and consultingengineers, accreditation of engineeringprogrammes of universities, settingstandards and development andendorsement of engineering productsetc. On the other hand it is arepresentative body of engineeringprofessionals and serves as a mediumfor a particular segment of civil societyi.e professional group's concerns,voices and perspectives for transmissionto policy making authorities of thegovernment. PEC also serves as aplatform for consultation and collectivepolicy input of the professionals inrelevant legislations. It performs thefunction of enforcing code of conduct aswell.A cursory analysis of this statutoryautonomous body reveals that in spite ofthe apparently pervasive and dominantrole of the government in theestablishment and subsequent functioningof the Council, PEC has attempted tomake this engagement of equal footing.Acting as a fully representative body ofthe engineering community in the country,the Council plays a cooperative role andparticipates actively in Consultative andAdvisory Committees/Boards constitutedby successive governments and providesnecessary inputs in the decision makingprocess. It assists the Federal Governmentas a Think Tank, provides support inconducting technical enquiries andrecommends remedial measures on thesubjects referred. PEC's relationship withthe government has not always beensmooth since the Council has also beentrying to contest the agreements enteredinto by the Government Ministries andvarious other Development Organizationswith the International Financing Agencieswhich are overwhelmingly in favour of theforeign consulting engineering firms andconstruction companies and patently inviolation of the PEC Bye-laws. Over theyears, despite differences in opinions andpolicy matters, an active and vibrantrelationship has developed between PECand government on the principle ofmutual co-existence. In this arrangement,PEC in its role as a regulatory body actsas an extension of the government, whileat the same time maintaining itsprofessional identity as a representativevoice of the engineering community ofPakistan.Pakistan Medical & Dental Council(professional association)Pakistan Medical & Dental Council wasconstituted in accordance with theV i l l a g e a n d Wo m e n D e v e l o p m e n t O r g a n i s a t i o n s ( V O S / W O s )16

ecommendations of a HealthConference held at Lahore inNovember 1947 by adopting the IndianMedical Council Act 1933 with a viewto regulating Medical Education inPakistan. Government members arenominated and various segments ofmedical professionals are representedby election on the governing body. Theobjective of PM&DC is to establish auniform minimum standard of basicand the higher education in medicine.The Council not only lays down theminimum standards for the degrees ofMBBS, BDS, and higher qualificationslike MD, MS, MDS and otherpostgraduate diplomas like DO andDLO, it also issues licences to medicalpractitioners in the country and enforcescode of ethics.The Council is financially independentand generates its finances itself. TheCouncil in view of its civil societycharacter also protects the interest ofmedical professionals in the countryand on their behalf provides policyinput to the government regardingrelevant legislations. It is a supremebody and takes all policy decisions. Itdoes not receive any grant from theGovernment yet has very close workingrelations to promote good standards inthe field of medical science.Pakistan Electronic and MediaAuthority (PEMRA) & PakistanBroadcasting Association (PBA) -(media)The Government-Media relationship isa fiery topic that has generated greatattention in the field of media studiesthroughout the world. The concept offreedom of the press is also underdiscussion especially in developingcountries. Governments in almost allthe countries of the world try to exertcontrol over the mass media. InPakistan, the print media is privatelyowned and the government influence isindirect through regulatory laws such asthe Press and Publications Ordinance.According to the results of the study,government exercises considerableinfluence on print media content inPakistan. The print media is supervisedby the Ministry of Information.Professional associations such as AllPakistan Newspaper Society (APNS) andCouncil of Pakistan Newspaper Editors(CPNE) are the civil society bodies thatprotect interest of journalists and thesector.In recognition of the changingenvironment and a demanding public,today there are multiple choices in termsof TV channels and radio stationsensuring free flow of information at ourdoor steps. Pakistan BroadcastingAssociation (PBA) comprises of allelectronic networks including FM radiostations, cable networks, TV channels,multi-channel multipoint distributionservices (MMDS) or wireless cable,Internet protocol TV channel distributionservices (IP).Pakistan Electronic and Media Authority(PEMRA) constituted under the PEMRAOrdinance 2002 on 1 March 2002. Itregulates functioning of satellite TV,Teleport for broad casting services anddirect-to-home television distributionservices(DTH). Through this service,subscribers or end users, receivingsignals directly from geo-stationarysatellites. The Authority is responsible forfacilitating and regulating theestablishment and operation of allbroadcast media and distributionservices in Pakistan established for thepurpose of international, national,provincial, district and local or specialtarget audiences. Its mandate is toimprove the standards of information,education and entertainment; enlargethe choices available to the people ofPakistan in the media.

Research shows that at the policy level,there exists a constructive engagementbetween the government, its sectorspecific regulatory authority andrepresentatives of different mediaassociations. It involves gettingfeedback from the stakeholders at allstages of decision making and holdingworkshops and seminars for thepurpose of capacity building. Thequality of the equitable engagementbetween Pakistan Broad CastingAssociation and Pakistan ElectronicMedia Regulatory Authority was foundto be enabling and rewarding for bothpartners based on mutual accountabilityand transparency and sharing ofinformation. It is evident on the part ofthe government to involve regulatingauthorities at the policy level, capacitybuilding and holding discussions withthe objective of ensuring that the voiceof people is heard and issues areresolved with the consensus of themajority, under the rules andregulations of the PEMRA Ordinance.Consumer Protection Networks(public benefit right basedorganisations)A rights-based civil initiative ConsumerProtection Network (CRCP) isregistered under the Trust Act, 1882and was established in 1998. It largelyworks through local fund-raising andengaging volunteers. It is working withthe mission "to articulate and promotethe interests and rights of citizens andconsumers at all socio-economic levels,with a particular emphasis on theinarticulate and disadvantaged groups;and facilitate the emergence of anorganized movement in Pakistan, sothat the citizens could have legallyenforceable rights." The Network forConsumer Protection is a national,public interest, not-for-profit civil societyorganization. It is registered withSecurities Exchange Commission ofPakistan under Section 42 of theCompanies Ordinance 1984. Theorganization came into being in 1992 asan "Association for Rational Use ofMedication in Pakistan" in the wake ofillegal drug trafficking. It is working withthe mission “To protect and promote theinterest of all Pakistani consumers: byeducating them about their rights; byproviding them independent informationabout goods and services; and byinforming them about government'sperformance as protector of their rights,especially the poor consumers. Topromote the interest of consumers byfacilitating their organization and byadvocating for pro-consumer policies thatalso address structural inequities. Theorganization also promotes responsibleand sustainable consumption practices insociety, as well as the development ofalternative systems.”Both these networks are primarily workingin advocacy and awareness raising,consumer mobilization, law suggestionand governance along with areas ofresearch and publications. CRCP isinvolved in training, and fund-raisingactivities as well. Within these coreprogram areas, CRCP focuses on varioussectors, which include essential and basicgoods and services sector as water,health, public utilities which includetelecommunication, electricity, oil andgas, institutional mechanisms forregulation and legislative frameworks.During its initial years, The Networkadvocated policy with a mission "topromote rational use of drugs andessential drugs concept and in order tooptimize the usefulness of drugs and helpbring equity in their access". A watch dogrole was also assumed to keep an eye onspurious drugs, non-available essentialdrugs and drug pricing. Building on this,The Network for Consumer Protection hasbecome a national consumer protectionorganization with a broad mandate andmulti-pronged strategy.V i l l a g e a n d Wo m e n D e v e l o p m e n t O r g a n i s a t i o n s ( V O S / W O s )18

Both the networks are engaged inbuilding the capacity of the legislativeorgan of the federal Government toperform its basic functions namely,citizens' representation, oversight of theexecutive and law-making. They arealso facilitating civil society to getinvolved in the legislative processes andto hold the legislature accountable. Inaddition, Consumer Rights Commissionof Pakistan (CRCP) is working towardsthe improved use of media andresearch in legislative endeavours. Sofar their engagement with thegovernment has been in the shape oftrying to influence policy, serving aspressure groups, filing public interestlitigations, lobbying and campaigningfor enactment of consumer protectionlegislation in Pakistan. However thenetworks are still in infancy in Pakistan.They need to mature and grow in orderto attain the state of a mutuallyrewarding coexistence with thegovernment.Labour Unions in Pakistan (rightsbased organisations)Labour class serves the nationaleconomy as the largest segment ofworking class Pakistanis. Only aboutthree per cent of the total labour forcein Pakistan is unionized. The TradeUnions in Pakistan are involved inCollective Bargaining for a labourcontract between employers andemployees. In 1949, an All PakistanConfederation of Labour with affiliatesin East and West Pakistan wasestablished, which later got affiliated tothe International Confederation of FreeTrade Unions (ICFTU). The existingthree national level trade unionfederations of Pakistan are namely AllPakistan Federation of Trade Unions(APFTU) formed in 1960; PakistanNational Federation of Trade Unions(PNFTU) formed in 1962 and AllPakistan Federation of Labour (APFL)formed in 1966. These have affiliationswith international similar organizationsand local industrial sectorsThese unions have had their highs andlows in terms of their relationships andengagement with government. At timesthese were banned and at othersgovernment sought their collaboration.Some of the instances of theircollaborative partnerships withgovernment are: a series of RapidAssessments of bonded labour in ninedifferent economic sectors undertakenby top Pakistani researchers, under theguidance of the Bonded LabourResearch Forum (BLRF) with activecollaboration of Ministry of Labour. TheRAs were collected and published in asingle Compendium under theGovernment logo. Technical supportthrough a full time Bonded LabourAdvisor has been provided to theMinistry of Labour. This is an example ofboth positive and at timesconfrontational collaboration. ILO alsoclosely works in collaboration with theselabour unions in Pakistan.Citizens Police Liaison Committee(CPLC)This is a unique example of civil societyorganizing itself in the form of a citizensgroup, which was mainly driven bycitizens' security concerns and protectionof their interests. CPLC was formed twodecades ago in Karachi on citizensinitiative, mainly of the businesscommunity in the backdrop of rising lawand order and crime situation in the city.Since its creation CPLC has beensuccessful in filling the void created bythe absence of community policingsystem in the country. CPLC works intandem with city police and assists intracing criminals, keeps record andcrime statistics, helps in investigationand serves as a forum to redress publicgrievances against police. The membersof CPLC finance the committee office

and activities expenditures themselvesand are totally independent. Policedepartment heavily relies on CPLC forassistance and the Government ofSindh after seeing its benefits and utilityhas assigned official status to theCommittee by a gazette notification.Analysis of examplesPakistan's diverse and pluralistic civilsociety sector is growing and evolvingrapidly. Analysis of some of the existingexamples reveals that collaborationbetween government and broaderrange of CSOs is mainly need basedand driven by necessity for mutual coexistence.These range from mereengagement to networking or mayevolve to cooperation and coordinationbut seldom culminate to effectivecollaboration. The following dynamicsare highlighted:Technically, a professional associationis an organization existing to further aparticular profession, guard interests ofconcerned professionals and maintainand enforce standards and ethics in theprofession. Analysis of above examplesof professional associations indicatessome take the form of a hybrid bodyregulating the relevant sector on behalfof the government and relaying thevoices, concerns and policy suggestionsto government on behalf of theprofessionals. However, it goes to saythat establishment of these associationsis not triggered by the initiatives of theirmembers or that they do not representthe interests of the members or speakfor the protection of their rights. Insteadthe existing scenario should be seenagainst the backdrop of the regulatoryand standard setting role of the saidassociations, the governmentnecessitates its involvement in theseassociations as being a strategic need.It is apparent from an analysis of thecase studies of the associations that beinghybrid and intermediary organisations,the nature of interaction between themand government is not only frequent butalso long term. But such an interfacecannot really be classified ascollaboration. For collaborationessentially entails the coming together oftwo distinct entities in a mutuallybeneficial and well defined relationshipfor the achievement of common goals. Inthe case of professional associations theapparently predominant role of thegovernment in structuring and functioningof these associations appears anythingbut a collaborative effort. In the existingdispensation these associations appear tobe acting more as an extension ofgovernment rather than workingalongside it as equal partners involved ina constructive engagement.Historical development of civil societysector in Pakistan is characterised by bothconflict and coordination dependingupon the CSO's nature of activity. On thewhole, the relationship between state andcivil society is illustrated most aptly by thedichotomy in attitude of the government,with the government's posture leaningtowards facilitation in case oforganisations engaged in service deliveryand of hostility in case of those engagedin social or political advocacy.This implicit government policy ofregarding the advocacy and/or rightsbased organisations as being on aconfrontational course with thegovernment was also evident from thesample of case studies analysed. Theabsence of frequent, active and long termengagements between the governmentand such organisations is indicative of thegovernment's apparent discouragementof the advocacy role of CSOs in thecontext of sensitive social, religious andpolitical issues. Over the years, variousacts of government against labourV i l l a g e a n d Wo m e n D e v e l o p m e n t O r g a n i s a t i o n s ( V O S / W O s )20

unions, human rights organisations andthe like, demonstrate the government'smodus operandi with regard toadvocacy and rights basedorganisations.It would not be fair to lay the completeonus of an absence of collaborativeinterface on the government. It needs tobe kept in mind that the CSOs acting ascitizens' representatives and advocatesof civil rights issues also do notthemselves want to compromise theirindependence by collaborating with thegovernment.The prevailing situation has henceresulted in two sectors workingseparately often in isolation, mostly ona confrontational course with eachother, at times duplicating efforts, andcausing wastage of resources and inturn failing to deliver effective,integrated and sustainable solutions tosocial, religious and politicalchallenges.Public benefit non-profitorganisations are essentially involvedin service delivery and social welfarework. Due to the nature of their workand because these organisations playan integral role in complementing thegovernment's initiatives andinterventions, government's interactionwith them has increased substantiallyduring the last 2 decades. Theintroduction of fiscal incentives, asystem of partial grant funding and amore liberal approach towards publicprivate partnership are all steps takenwith the objective of consolidating therole of public benefit non-profitorganisations. On the other hand, theseorganisations realize the indispensabilityof government's role in effectiveexecution of their interventions.In Pakistan just as role of civil society isgradually evolving through the years,similarly the terms of engagementbetween this sector and that ofgovernment are also being re-defined.With hybrid and intermediaryprofessional associations on one end ofthe spectrum and independent advocacyand rights based organisations on theother, a somewhat balanced approach isonly evident in the case of public benefitNPOs. It is hoped that with the passageof time this relationship existing in thetwo civil society segments wouldgradually alter and mature to that of amutually respectful and beneficialconcrete collaboration of equality asfound to exist between the governmentand public benefit dvelopment NGOs.The present study has focused onexploring, identifying and analysing casestudies of successful collaborativeengagements between the governmentand the public benefit organisations. InPakistan synergistic and constructiveengagement of CSOs and governmentis still in its nascent stages. Mostly theseengagements are associated with servicedelivery interventions in areas likehealth, education, poverty reduction andcommunity development. The reason forthis is that such an arrangement offersimmediate outcomes with relatively welldefined processes being complementary.Similar to the general trend around theworld CSOs that venture into advocacyand human rights are perceived to beanti-state or foreign agenda pushers.Concurrently research on broader civilsociety sector revealed that mostengagements between the governmentand CSOs fall in the classic consultativeor service delivery types of engagements.Mutually rewarding relationships remainfew and sporadic and have notcontributed substantially towardsbuilding strong models for furtherreplication. Most of the symbiotic andmutually rewarding engagements arethus found in the typical developmentorganizations i.e NGOs a subset of

CSOs. Analysis and documentation ofsuch rewarding partnerships will pavethe way towards viable models forgovernment and CSO collaboration.V i l l a g e a n d Wo m e n D e v e l o p m e n t O r g a n i s a t i o n s ( V O S / W O s )22

Case Studies

Balochistan

The province of Balochistan in Pakistan is the largest in the countryby geographical area. It contains most of historical Balochistan andis named after the Baloch. Balochistan is located at the easternedge of the Iranian plateau and in the border region betweenSouthwest, Central, and South Asia. It is geographically the largestof the four provinces at 347,190 km² and composes 42% of thetotal land area of Pakistan. The population density is very low dueto the mountainous terrain and scarcity of water. The southernregion is known as Makran. The central region is known as Kalat.Very cold winters and hot summers characterise the climate of theupper highlands. Winters of the lower highlands vary from extremelycold in the northern districts to mild conditions closer to the Makrancoast. Summers are hot and dry, especially the arid zones ofChaghai and Kharan districts. The plain areas are also very hot insummer with temperatures rising as high as 120 °F (50 °C).Balochistan has a population of around 8 million inhabitants. TheBaloch form the majority in the south and east of the province,while the Pashtuns are the majority in the north and 769,000Afghan refugees can be found in the province. The unicameralProvincial Assembly of Balochistan comprises 65 seats of which 4%are reserved for non-Muslims and 16% for women only. Balochistanis divided into 27 Pakistani districts. There are five main publicuniversities in Balochistan, as well as several private institutions.

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N SParticipatory IntegratedDevelopment Society(PIDS) --- a ray of hopeDistrict Awaran is at a distance of 16hours drive from provincial capitalQuetta. The terrain is dry and ruggedwith minimum sources of perennialwater exacerbated by scanty rains. Interms of drinking water supply, thesituation is even more alarming. Lessthen 15 percent of the population hasaccess to safe drinking water inBaluchistan. This Trans Indus provincewith few dry and seasonal river basinshas no small dams, check dams or delayaction dams for water storage. Localpeople use their indigenous wisdom inbuilding earthen dams to store flood orrain water in all parts of Baluchistan.The only dam built in the 1960s, onHub River is not sufficient to cater to theneeds of the entire province.Cognizant of the situation, PIDS wasestablished in 1999 by few concernedcitizens who worked for BaluchistanRural Water Supply Sanitation Project(BRUWAS) a joint venture ofGovernment of Baluchistan and RoyalNetherlands Government. Theorganization focuses on improvingdrinking water supply, sanitation andhygiene through five programmes andstrives for achieving quality outputthrough combined input of socialmobilization, community participation,women involvement and throughcreating sense of ownership forsustainable development.In a span of seven years, PIDS hasestablished linkages with government,donors, partner organizations and thelocal community to bring about socialdevelopment in one of the most"If there had been some water,"remarks Aftab Aziz who worked on arecent study to assess the impact of thedrought here, "the fields would havebeen green and the entire valley wouldhave been bustling with humanactivity”.backward areas of Baluchistan.Collaborating partners of PIDS includeUNICEF, Local Government. & RuralDevelopment Department (LG&RDD),Public Health Department (PHED),Primary Education Department (PED),Catholic Relief Services Pakistan, WorldWide Fund (WWF), Trust for VoluntaryOrganization (TVO), UNDP, FrontierResources Centre and NGORC.Collaborations with the governmentinclude (1999-2000) PHE SocialMobilization and Capacity Buildingproject in four towns Kuchlak, Kharan,Mastung, and Hub, SanitationAcceleration Tehsil Package with Districtand Tehsil Government, SchoolEnvironment Improvement andCommunity Water Supply Scheme,QKAEMP with City District Governmentand Multiple Cluster Indicator Surveywith Planning & DevelopmentDepartment.In 2000, the Government of Baluchistanallocated funds for provision of safedrinking water through installation ofhand pumps and capacity building ofthe beneficiaries in Ziarat, Kalat andAwaran districts. PIDS with its history ofworking in close collaboration with poorcommunities and a high success rate ofits previous projects with differentinternational donors was the ideal

candidate to carry out implementation of providing safe drinking water to thethis project. Through communitycommunities of far flung areas was notparticipation, PIDS has so far installed only need based but was mutually1,259 pumps in ten districts of rewarding as well. The analysis of thisBaluchistan benefiting approximately case however reveals that the role of150,000 people. For PIDS, the government in this particularcollaboration translated into the efficient collaboration was restricted to theutilization of resources, sustainability and provision of finances for the project.improved project implementationThe government advertised the projectthrough transparent execution of the in the press and PIDS got selected onproject.the basis of its institutional history ofworking with communities and itsCollaborations often help partiescapacity for social mobilisation. Anovercome handicaps that they would MOU was signed however no properfind difficult to address individually. monitoring mechanism was developedGovernment had the resources forby the government to assess thepumps but lacked the capacity, outreach progress of project implementation.and particular social skills required to PIDS implemented and monitored theimplement the project and PIDS with its project itself as their reputation andexpertise in this field and strongchance to work again with thecommunity linkages assisted thegovernment was at stake. Thisgovernment in provision of water to the relationship at best can be termed asfar flung communities. Whether it is patron client relationship as no outputeducation, health or any other sector the other than the provision of water couldbenefits of these synergisticbe found. Neither the relationshipcollaborations cannot be ignored.continued after the project nor did anypolicy level changes take place as aAn examination of this successful case result of project implementation. Nostudy of collaboration helps us safely mechanism was developed toconclude that the desired concreteincorporate lessons leanrt into any futureoutcome of the collaborative projects ater supply project.Society for EmpoweringHuman Resources(SEHR)------ empowering for the futurViolence, abuse, negligence,exploitation and discrimination remain athreat throughout the life cycle ofprisoners including juveniles, womenand senior citizens in Pakistan.Inconsistent and limited jail reforms, anoverburdened and insensitive judicialsystem, mistreatment of prisoners, lackof efficient coordination between jailsand interior and foreignministries/departments and outdatedand orthodox jail manuals are thefactors which make prisoners morevulnerable. Access to transparent andspeedy justice remains a dream formany.Government of Pakistan introduced andC a s e S t u d i e s26

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N Sinstructed the provincial government toratify and implement the Juvenile JusticeSystem Ordinance (JJSO). Althoughmost of the provincial governmentsratified the rules, yet neither probationand parole officers have beenappointed nor jails turned into betterplaces to provide a better environmentfor juveniles. In these circumstancessome of the condemned innocentchildren come out as professional andhardened criminals after a stint in thejail.SEHR was created with a vision ofdeveloping a pro-poor(minorities/children/women) alternativemodel to normalize their imbalancedrelationship with the society. It works toachieve a violence-free environment thatis suitable for growth, whilst protectingand restoring human rights. SEHR isrecognized for its efforts with regard toprotection and upholding of humanrights and its policy level engagementand political advocacy. SEHR works onall dimensions of those “Rights”including those of juvenile prisoners,women prisoners, Foreigner's Actprisoners, minorities and women inshelter homes. It's major programmesinclude Legal Empowerment, WomenEmpowerment and Child Protection.SEHR works in collaboration with manyreputed international advocacy agenciesnamely OXFAM-GB, Save the ChildrenUK, Save the Children Sweden, GroupDevelopment and UNDP. SEHR also hasstrong linkages with government at boththe federal and the provincial level andthis close rapport helps SEHR inimplementing various projects with theassistance of the government.In 2004, SEHR on its own initiativeworking with foreign prisoners throughits Legal Aid programme observedduring the visits to Mach and QuettaDistrict Jails the condition of juvenileand women prisoners and decided to…Ibrahim son of Saifal an inhabitantof Dhadar Village in Baluchistan wasconvicted in a robbery caseincarcerated in 2004 and had atraumatic experience. The juvenileexhibited behaviour associated with anextreme state of shock, experiencedinsomnia and refused to take interestin any of daily activities. After severalsessions with a psychologist he hasnow returned to his normal self andtakes keen interest in studies especiallycomputer classes. He aspires to be acomputer teacher just like his teacher.(SEHR: Annual Report 2006)work for their betterment. At the sametime Ministry of Law, Justice and HumanRights invited organisations working forjails improvement for consultation with aview to see what both parties could doto improve the situation of human rightsin Baluchistan. SEHR already havingprepared a proposal regarding juvenileand women prisoners with the assistanceof Save the Children Sweden put forwardthe proposal for government to consider.The collaboration started with signing ofan MOU between two partners. In2005, the project of Rehabilitation ofChildren in Conflict with Law (RCCL) wasstarted in Mach and Quetta jails bySEHR through financial support of Savethe Children Sweden (SCS) and thegovernment. It carries the broaderobjective of rehabilitation of juvenilesand is an effort to facilitate theirintegration back into society throughvarious interventions within the jail. Theproject aims at providing multiplefacilities to the juveniles that includesformal education, literacy courses,computer literacy, legal aid, religiousteaching, psychotherapeutic counselling,vocational skills training andrecreational activities. Moreover theproject anchors within itself the capacitybuilding of jail staff and of juveniles onCRC, JRS, JJSO and Jail Manual and

sensitization of relevant departments,facilitation in reconciliation efforts andmonitoring the status of human rights inthe province. Vocational skills training intailoring, calligraphy and handicrafts aregiven to help these juveniles earnlivelihoods after gaining their freedom.Religious and legal education is also apart of the curriculum which wouldfurther broaden their horizon especiallywhere their rights are concerned.While SEHR carries out these activitieswith the funding provided by aninternational donor agency, theRegional Directorate of Ministry of Law,Justice and Human Rights-Baluchistanassists SEHR in training of police and jailofficials on human and child rights,Pakistan Prison Rules and JuvenileJustice System Ordinance 2000.TheMinistry regularly monitors theperformance of the trained officials andassists SEHR in collecting data on thejuvenile prisoners. This comprehensivemulti-stakeholder capacity buildinginitiative undertaken to improve thecondition and rehabilitation of juvenilesthrough intensive sensitization hasenabled the poor and victimized peopleto find meaning in their bleak lives.the response and role of governmentwas very positive and not only did thegovernment support SEHR in achievingthe mutual objectives of the project butalso agreed to support the NGO ininitiating other projects with SocialWelfare and Police Departments. Thesubsequent collaborations with othergovernment departments are a proof ofthe success of the first partnership.Another important development whichtook place during the course of thiscollaboration is the joint preparation ofChild Protection Bill by the Ministry andSEHER. The Bill will be presented in theBaluchistan Parliament by the Ministryand the chances of its approval arebright. If the Bill is implemented, it willbe a major policy shift on the part ofgovernment regarding JuvenilePrisoners.The collaboration between SEHR andGovernment is perhaps one of the bestexamples of a twofold relationship. Itclearly shows that not only theprogramme delivery was productive innature but also that reform means weremainstreamed and policy level changesemerged as an outcome of therelationship.During the study it was observed thatthrough out the duration of the projectSociety for Community Supportfor Primary Education in Baluchistan(SCSPEB) ----- building synergiesfor educationThe demand for quality education is wellestablished in Pakistan and especially inBaluchistan where enrolment ratesremain alarmingly low. However in thelast two decades, Government ofBaluchistan has made some attempts atC a s e S t u d i e s28

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N Srevamping the education system in the department and local government. It isprovince especially the structure of only through the active interest andprimary education. There are 22,000 sense of shared responsibility of eachsettlements in Baluchistan with only stakeholder that access to and quality of11,000 primary schools which means education can be ensured.that 50% of the population has limitedaccess to primary education. During the In 2001, SCSPEB received thecourse of implementing education prestigious UN Award from the UNreforms, the government realised that it System in Pakistan for its inspirationalwould not be possible to achieve its contribution for promoting femalereforms objectives without involving education in the remote rural areas ofCSOs as their expertise in socialBaluchistan and for developing themobilisation of communities is well Community Support Process (CSP)established and can be applied for model. Society is the only organization ingovernment's education reforms. It was Pakistan to have been awarded thisdecided that most of the schools will be prestigious honour. Other majorestablished as informal schools at initial interventions include establishment ofstages. Congruity of goals led toCommunity Support Process, Villagecollaboration between provincialDevelopment Committee, Homegovernment and CSOs in the education Schools, Fellowship Program, Socialsector.Mobilization Component, AdolescentHealth Life Skills, Primary EducationThe SCSPEB, has been working inQuality Improvement ProgrammeBaluchistan for the past fourteen years (PEQIP), Parent Teacher Schoolpromoting partnerships betweenManagement Committee (PTSMC), thecommunities and government on a Increased Primary School Participation ofsustainable basis through socialGirls (IPSPG) programme, and Afghanmobilization and capacity building. The Refugees Education Project (AREP). TheSociety was established as an NGO in Organization is an inspiring example of1993 as a result of a successful fruitful and effective collaboration notexperiment in which 20 Community only with the government but WorldSupport Process (CSP) schools were set Bank, UNICEF, TVO, CIDA, UNDP, ADBup in Loralai in 1992. Initially Society and government of Netherlands.worked with the technical and financialassistance of the Directorate of Primary Society has worked with governmentEducation (PED), Trust for Voluntary from the very beginning of its inceptionOrganisations (TVO) and UNICEF and and most of its projects have directby 1996 had established 360 CSP linkages with the Education Departmentschools through communityand Ministry of Education. Over theparticipation.years, Society has remained steadfast inits aims by establishing over 2400The Society's innate philosophy is to formal groups/committees with 50%promote human development byfemale committees, organized andutilizing community mobilizationworking in various social sectors for thestrategies to establish government- development of the area. This generatedcommunity collaboration. Society a positive impact and developed anrealizes that promoting education as a outreach contact with the far-flung areaswhole, especially for girls, requires of Baluchistan where most basic facilitiessupport from all stakeholders: parents, are not available. In villages wherecommunity, schools, educationformal groups are organized, the

SCSPEB had conducted various phase (Mastung, Pishin and Ziarat) ofwise trainings to build the capacity of Baluchistan by establishing 10 suchilliterate people to make them effective schools (within existing governmentand efficient partners in developmental schools) through public privateactivities. These trainings develop a partnership. Each of the middle schoolssense of ownership within the local not only serves the particular village incommunity to maintain the basicwhich it has been established but at thefacilities provided to their village.same time also addresses the needs ofthe primary pass girls in nearly 30 to 50SCSPEB believes in communityvillages. Before the establishment of theparticipation for sustainableschools an intense activity of clusterdevelopment and its processes have identification was done. In this contextproved that sustainable development is 60 clusters were identified in fourpossible provided communities are districts (Pishin, Mastung, Ziarat andinvolved. Society was chosen by Aga Quetta) out of which only 10 clustersKhan Foundation Pakistan to implement were found to have potential and werethe Releasing Confidence and Creativity selected for school establishment.(RCC) Programme in Baluchistan. RCC, Quetta district had been droppeda USAID funded Programme, focuses on because the identified clusters were notsupporting practices and structures in fulfilling the set criteria.communities, schools, NGOs and thegovernment that effectively promote Working in the seven districts Ziarat,Early Childhood Development. The RCC Pishin, Killa Abdullah, Mastung, Chaghi,Programme concentrates onLoralai and Lasbela in Baluchistan,encouraging innovation and developing SCSPEB has brought revolutionarytechniques that can be replicated by changes in the classrooms; variousgovernment and NGO partners. For training courses have been conducted tothese reasons, the provincialtrain teachers in making learning moregovernments have been intimately interesting and innovative. Since theinvolved in the planning and support of implementation of the Programmethe Programme.enrolment has increased considerablydue to the restoration of people's faith inAnother collaborative initiative is the government schools once again.Community Girls Middle SchoolsGovernment supported the CSOs with(CGMS) emerging from the fact that all their resources and expertise and themiddle schools are not adequate in CSOs on their part implemented thenumbers to provide access to theproject which proved to be a very richprimary passed girls and existinglearning experience. Currently thegovernment resources are not enough reputation of Society as one of theto fill this gap. Therefore, the need for leading CSOs in the field of education isan innovative and sustainable model mainly because of its successful workingwas felt which could provide a middle relationship with the government. As aeducation facility to the primary pass result of Society's contribution in the fieldgirls of the rural areas through the joint of education, the Baluchistansupport and supervision of thegovernment is now convinced that CSOsgovernment and community. In April provide the most efficient platform to2003, SCSPEB with the support of launch educational projects at the grassDevelopment in Literacy (DIL) initiated root level.the pilot project of Community GirlsMiddle Schools in three districts30

NWFPNorth West Frontier Province

The North-West Frontier Province (NWFP) is the smallest in size ofthe four provinces of Pakistan and is home to the Pashtuns(Pakhtoons). Neighbouring regions include Afghanistan to the westand north, and the Northern Areas and Kashmir to the northeastand east. The NWFP has an estimated population of roughly 21million that does not include more than 3 million Afghan refugeesand their descendants in the province.The major language spokenin the NWFP is Pashto, Hindko and Seraiki. The majority of thepopulation speaks pashto while Hindko is the predominantlanguage in the erstwhile Hazara division and seraiki is spoken inDera Ismail Khan. The Provincial Assembly of North-West FrontierProvince is unicameral and consists of 124 seats of which 2% arereserved for non-Muslims and 17% for women only. There are 24districts in NWFP. The trend towards higher education is rapidlyincreasing in the province and the NWFP is home to Pakistan'sforemost engineering university (Ghulam Ishaq Khan Institute),which is located in Topi, a town in Swabi district. The University ofPeshawar is also a notable institution of higher learning. TheFrontier Post is perhaps the province's best-known newspaper andaddresses many of the various issues facing the local population.Pashto folk music is popular in NWFP and has a rich tradition goingback hundreds of years. The main instruments are the Rubab,mangey and harmonium.

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N SEnvironmental Protection Society (EPS)---- building a better tomorrowSocial and economic deprivationbesieged Gogdara Village in Swatvalley. The community had seriousconcerns over the dilapidatedinfrastructure, poverty and genderdisparity prevalent in the village.Community Managed Infrastructure(CMI) initiative of EPS & MRDP broughtfar reaching effects in the village. Streetside drains and street pavements costingRs. 1,655,135 were constructed with thehelp of a 10% share from thecommunity.Founded by idealistic young universitygraduates in 1991, EPS is an attempt atraising awareness about plannedurbanization and environmentalconservation. EPS operates in Pakistan'smountainous areas, which have seentremendous degradation over the pasthalf century. Lack of proper planningand good governance, increasingpopulation and migration to the regionhave also added to the degradation ofthe physical, social and culturalenvironment of the region. Since itsinception, EPS has been working closelywith local communities. Field experiencehas highlighted that local communitiescontribute significantly towards thephysical development of theirsurroundings, if properly mobilized andif their developmental initiatives aretechnically supported. Activelypromoting social development, EPSfacilitates the forming and capacitybuilding of Community BasedOrganizations (CBOs).EPS believes that sustainabledevelopment can only be achieved if allthe stakeholders- government, civilsociety sector and community take aproactive and a collaborative approachInvesting in our rural roadways andbridges is more than just investing inconcrete and steel; it is also aninvestment in our future “Kit Bond”“We feel that EPS was veryconscientious about its work and wasfully involved in planning, designingand implementation, monitoring andrepair and maintenance of the project.EPS has also made us realise the valueof self reliance. We now look forwardto more of such Community ManagedInfrastructure initiatives”…communitymembers-Village Gogdaratowards development. This philosophy isreflected in all its collaborative withFederal Ministry of Environment GoP,SNPO, United Nations DevelopmentProgramme, IUED-Geneva University,DFID-British Council, Primary EducationProject Government of NWFP, Water Aid,and Community Infrastructure Project.Malakand Rural Development Project(MRDP) initiated in 1999 by the NWFPGovernment and co-financed by theAsian Development Bank encompassedmulti-sectoral areas of development andstrove for active participation of localcommunities. Primary objectives ofMRDP were to increase productivity ofthe low income groups and builtcapacity of rural women in districts ofBuner, Swat, Shangla and MalakandAgency. MRDP required the assistance oflocal NGOs in area developmentinitiatives for reduction of rural povertythrough human resource development,improved social services delivery anddevelopment of infrastructure. EPS withits previous history of working with CBOsin the area was the ideal partner for this

collaboration.EPS was provided funding by MRDP forthe establishment of the SocialOrganization Units (SOUs) in Swat. Thepurpose of these SOUs was to activelyinvolve the community in thedevelopment process thereby fosteringrealisation about the value of self-help.The community identified the areas thatneeded attention and EPS assisted byproviding them with operationalsupport. EPS established two SOUs, onein Lower Swat and the other in UpperSwat as its field office to accelerate theproject activities and provide easyaccessibility and ease to the localcommunities. EPS prepares work plansfor the SOU as it has the responsibilityof maintaining the financial records andreporting on monthly and quarterly basisas required by the Project ManagementUnit (PMU) of MRDP. Besides this, EPSconducts training for capacity buildingof the communities, assists in resourcemobilization of marginalized groups andlastly EPS facilitates otherimplementation partners in networkingwith the communities.The essence of synergy comes out verysuccinctly in this government-CSOcollaboration, for both of them it is awin-win situation. The government lacksthe administrative capabilities to work infar flung areas, which is remedied by alocal NGO's understanding of theculture and region, widespreadnetworking and its extensive outreach.As for the local NGO it gets financialassistance from the government toenable communities of the area toprogress from the rudimentarydevelopment stages.This particular type of collaborationthough very successful in achieving itsobjectives, has its fair share ofcontroversy. The organization has somestrong reservations about the workingmethodology of the Project ManagementUnit (PMU). They believe that the basicobjective of establishing a separate PMUwas to facilitate the CSO so it can workindependently of all bureaucratichurdles. However PMU turned out to beanother bureaucracy with that theofficials concerned thinking ofthemselves as superiors; this causedhindrances in the management of theproject. EPS is completely at ease withother government departments and paystribute to them. They believe if CSO is towork only with the departments, it wouldbe a lot more feasible than the currentsystem of working under PMU. Despiteon ground successes, this collaborationindicates to attitudinal problems on partof the government functionaries.Pakistan Village DevelopmentProgramme (PVDP)--- empowering the massesPVDP is one of the dynamic civil societyorganisations in the NWFP region. Sinceits inception in 1999, the organisationhas undertaken projects that otherNGOs often considered unmentionablein a closed society like Pakistan. Itsobjectives have been to encourage,build and strengthen the technical andmanagement capacity of developmentorganisations (CBOs, NGOs andC a s e S t u d i e s36

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N SGovernment Line Departments), it aimsto support as well as develop replicablemodels of and strategies for sustainabledevelopment based on communityparticipation and local resourcemobilization. PVDP has also targeted itsefforts towards supporting initiatives forsustainable community based gendersensitive development with particularfocus on Reproductive/Primary HealthCare, Non-Formal Education, DrinkingWater Supply and EnvironmentalSanitation and has attempted to createlinkages between different stakeholdersincluding development organisations(private and public) for sustainabledevelopmentOver the years some of PVDP's majorinterventions have been Civil SocietyHuman and Institutional DevelopmentProgramme (HID- CHIP), Swat KohistanEducation Programme (SKEP), HIV/AIDSAwareness, Care & Support Programme,Enhancement of Adolescent Health LifeSkills Programme (EAHLS), Life SkillBased Education Programme (LSBE) andBuner Girls Education Programme.PVDP has carried out these interventionswith support from international partnerssuch as Civil Society HID Programme(CHIP), Canadian InternationalDevelopment Agency (CIDA), MuslimCare, Catholic Relief Services(CRS/Pakistan) and World PopulationFoundation (WPF). However, thesignificant characteristic of all theseprogrammes has been the continuousinvolvement of related governmentdepartments/ministries in all stages ofprogramme design and development.Life Skill Based Education Programme(LSBE) was launched in 2003 by WPF-Pin all four provinces of Pakistan throughits partner NGOs. Of these theorganisation selected for carrying outthis programme in NWFP was PVDP.Since WPF-P's funded LSBE needed tobe implemented through the medium ofInvesting in our rural roadways andbridges is more than just investing inconcrete and steel; it is also aninvestment in our future “Kit Bond”“We feel that EPS was veryconscientious about its work and wasfully involved in planning, designingand implementation, monitoring andrepair and maintenance of the project.EPS has also made us realise the valueof self reliance. We now look forwardto more of such Community ManagedInfrastructure initiatives”…communitymembers-Village Gogdaraschools, PVDP decided to establishcollaboration of an administrative naturewith the Local Government, at the districtlevel as well as provincial government,from its very inception. Thereby, ensuringgovernment's involvement as well asassistance at all levels of Programmeplanning and implementation. The initialreluctance on the part of governmentwas mitigated by conducting a survey of10 Government schools anddemonstrating the gravity and extent ofproblems faced by adolescents of thiscountry. Consequently, permission fromthe government for the implementationof the Programme was obtained bysigning of an MoU.Besides enlisting involvement ofGovernment in the initial phases, PVDPensured close and regular participationof government at all levels. Since theorganization was to use the premises ofgovernment schools for programmeimplementation, selection of 25 schools(12 boys, 12 girls and 1 madrassa) wasdone with government's involvement.The teachers required in each schoolwere selected from within the teachingfaculty with the full involvement of theconcerned school Principal. Even for thedevelopment of the Life Skills Manualthat was to be implemented in theschools involvement of the concerned

government officials was sought and the between the government and PVDP hasmanual was finalized in light of their resulted in the professional training offeed back. Moreover once compiled the over 160 teachers and personalmanual was formally approved by the grooming of over 6000 students in 25Department of Schools and Literacy. Government and 45 private sectorCollaborating closely with government, schools of Peshawar. Sensitization ofinternational partner organizations and parents and formation of a number oflocal communities through itssupport groups for ensuring successfulparticipatory integrated approach, PVDP continuation of this Programme is anhas contributed significantly to the added advantage. The case of PVDPdevelopment work in the NWFP region. proves that the collaboration betweenLSBE is a unique collaboration between government and CSOs is shaping upa donor, government and civil society nicely in NWFP and with governmentthat has achieved many milestones. realising that working together, bothparties can bring change in a moreIt is indeed an evidence not only of effective manner. PVDP is quite hopefulPVDP's quality of work but also of its that they are very close to bringing somefruitful collaboration with thepolicy level change which will make theGovernment that in spite of NWFP collaboration more smooth andGovernment's ban on NPOs working in efficacious. The stance of governmentgovernment schools in November 2004, regarding role of PVDP and its work onPVDP was allowed to continue itssensitive issues like these has alteredactivities in the schools. Moreover, in since the progress of the project was2005 National AIDS Control made available to them and currentlyProgramme (NACP) evaluated this government fully supports PVDP.programme and impressed with itsapparent success provided additionalfunding for extension of this programmeto the private sector schools of theprovince with especial emphasis oncreating HIV/AIDS related awareness inthe youth.Today, this productive collaborationC a s e S t u d i e s38

Punjab

Punjab is Pakistan's second largest province at 205,344 km²(79,284 square miles) and is located at the northwestern edge ofthe geologic Indian plate in South Asia. The provincial level-capitaland main city of the Punjab is Lahore. Nearly 60% of Pakistan'spopulation lives in the Pakistani Punjab. Most areas in Punjabexperience fairly cool winters, often accompanied by rain. By mid-February the temperature begins to rise; springtime weathercontinues until mid-April, when the summer heat sets in. Thepopulation of the province is estimated to be 86,084,000 in 2005and is home to over half the population of Pakistan. The majorlanguage spoken in the Punjab is Punjabi. The Provincial Assemblyof the Punjab is unicameral and consists of 371 seats of which 2%are reserved for non-Muslims and 17% for women only. There are35 districts in Punjab, Pakistan. The literacy rate has increasedgreatly since independence. In 2003, over 53% of the population ofthe province was estimated to be literate by the Labour ForceSurvey. The province is home to many well known historical sitesincluding the Shalimar Gardens, the Badshahi Mosque, and theruins of the ancient city of Harrapa. The Anarkali Market andJahangir's Tomb are prominent in the city of Lahore as is the LahoreMuseum, while the ancient city of Taxila in the northwest was once amajor centre of Buddhism.

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N SFamily Planning Associationof Pakistan (FPAP)---- facilitating a progressive tomorrowAccording to the first census in 1951, and above all a corps of committedPakistan's population was 34 million but volunteers who at all levels providethe social and cultural taboos made support and fully participate in FPAP'seven the broaching of the subjectprogrammes. FPAP follows a holisticformidable. Unreceptive to familyapproach, which is innovative, flexibleplanning, official circles too wereand primarily aims at working with andsceptical of the embryo Association's through the people right from theaims. To them it was only a club for few grassroots level to the individuals at theeccentric members. A Volunteer spolicy making levels. Major interventionreminisces, even the Health Department, areas of FPAP include reproductivea top notch institution in Karachi, was health and family planning services,against family planning. People, too, community based reproductive healthwere not cooperative. Promoters of extension program, reproductive healthfamily planning were not only hurled extension, facts for life program andwith abuses but were also pelted with Islam and Family planning. To controlstones. Only a few dared working in the the bourgeoning growth of population,Family Planning Association of Pakistan. FPAP has been successful in effectingIts success today is a result of tireless relationships with a broad range ofefforts and belief.international organizations such asUNESCO, UNICEF, CIDA, UNFPA, DFIDThe FPAP symbolizes the voluntary (UK), David & Lucille Packardmovement for population planning in Foundation, Kredit Fur WiederaufbauPakistan. Its founding members were a (KfW),Oxfam and Save the Children. Itgroup of dynamic and educated women also works as a partner with governmentwho faced considerable opposition to of Azad Jammu Kashmir, Pakistan Armedfamily planning. Seeking to attainForces and City District Governments ofreduction in fertility throughLahore, Chakwal and Kohat. Today FPAPimprovements in access to and quality is the largest non-governmentof reproductive health services, FPAP as organization in the social sector andan NGO, initiated its efforts to contain alongside the government is the keypopulation growth. In order toprovider of family planning services instrengthen the movement it became the Pakistan.10th member of the InternationalPlanned Parenthood Federation (IPPF) in In view of the dismal state of1953, a year after the World reproductive health and family planningOrganization's foundation but continued facilities existing in Azad Jammu &running on donations and charity with Kashmir, the Department of Healthendeavour and persistence for the (DoH) and FPAP joined hands in 1976welfare of the people.for the provision of family planningservices to the AJK population throughThe Association has extensive field the existing health infrastructure. Thisexperience, management capacity, collaboration was further strengthenedprofessional and technical competence with the assistance of the World Bank

under the “Northern Health Project RH&FP services extends over a periodAJK”. Under this project aexceeding quarter of a century. This iscomprehensive joint venture wasproof enough of success and mutuallaunched for provision of familytrust. FPAP contributes positively toplanning services in all districts and achieving the national goals set byTehsil headquarter hospitals, rural health Government of Pakistan for improvingcentres and Mother & Child Health the quality of life of its citizens with activeCentres of AJK. Under the MoU signed and effective community participation.between AJK Department of Health This dynamic collaboration has led to(DoH) and FPAP, 82 % of thethe offering of RH and Family Planningexpenditure was to be provided by Services at 538 locations includingWorld Bank through the AJKthrough 279 service outlets i.e. BHUs,Government and the remaining 18 % by MCH & RHCs, 61 Private Practitioner'sFPAP.clinics and 151 Community BasedDistribution points. Besides, three privateAfter completion of the project, not hospitals and one Mobile Contraceptivewanting to lose this important initiative Unit taking services to the clients'and recognizing its impact on macro residence, other advocacy programmeseconomic development plans and on an like girl-child and women empowermentindividual's quality of life, anotherclosely linked to the service delivery havedevelopment project titledbenefited some 182 women and"Strengthening the Reproductivechildren. Four Community UnitsHealth/Family Planning Services in AJK" established one each in Mirpur, Kotli,was prepared by the Department of Rawalakot & Muzaffarabad/AJKHealth, AJK. Acknowledging the time undertake advocacy activities at thetested AJK Department of Health (DoH) community level to generate RH&FPand FPAP collaboration which was clients and support for the project.central to the success of the initialproject, the public/private sectorAccording to FPAP sources, this is thecollaborative approach initiated under first example of collaboration where theNational Health Program (NHP) was proposal of a CSO was included in theretained. The proposed project aims at PC-I of government. This selfcontinuation and strengthening ofexplanatory example shows thereproductive health and family planning significance of this particularservices at all health outlets. The AJK collaboration as it has not only achievedCabinet Development Committeeits targets through transparentapproved the project on March 24, programme delivery but also brought an2003. The Project with a total estimated important policy level change in thecost of Rs. 79.798 million, of which working of government, which was65% will be provided by the AJK unprecedented before. CSOs shouldgovernment and the remaining 35% by take a leaf out of FPAP's book to developFamily Planning Association of Pakistan their own strategies when it comes towill be implemented over a period of 48 work in close collaboration with themonths.Government.The history of this collaboration betweenFPAP and the AJK Government forC a s e S t u d i e s42

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N SGhazi Barotha Taraqiati Idara (GBTI)--- paving a path to progressThe availability of electrical power at an in 1995. In addition WAPDA alsoaffordable price has long beencommitted to provide Rs 176 million toidentified as one of the main hurdles to facilitate the implementation ofthe industrial and economic growth of Integrated Regional Development PlanPakistan. WAPDA has continually sought (IRDP) for the social and economicto maximize the country's capacity for development of the area. Against thehydropower-generation and reduce the disruption to the local community theever-increasing burden of imported fuel. construction work employed aboutHowever the implementation history of 13,500 local people. Over the course ofall Mega Hydro Power and Watertime the capital influx into the localReservoir Projects in Pakistan oreconomy had a significant impact on theelsewhere reveals that those responsible economic growth of the area.for the execution of these projects facemyriad of issues during theGBTI was given the mandate to dealimplementation phase. On one hand with social and economic dimensionsthey encounter the technical challenges that arose as a result of displacement ofand on the other they face a range of GBHP affected communities of the threesocial and economic issues emanating districts. The scope of GBTI's servicesfrom the displacement of humaninclude, compensation for lost assets ofsettlements. While the agenciesthe affectees through land acquisitionresponsible for the execution of these department; helping the skilled andprojects are well equipped to deal with unskilled manpower of the affectedthe technical issues they lack the skill communities avail employmentand the knowledge required to handle opportunities created by the project;the social and economic dimensions. assistance of the involved lineThis realization on part of the World departments including WAPDA in timelyBank and WAPDA helped create a and smooth processing and payment ofprovision for establishing a project compensation claims and finally toNGO called Ghazi Barotha Taraqiati launch an Integrated RegionalIdara in the Ghazi Barotha Hydropower Development Plan to minimise the(GBHP) project area.poverty of affected and other poorcommunities living in the area.The specified project area was scatteredover three districts in two different Since its inception till the end of 2002,provinces Swabi and Haripur in NWFP GBTI has remained largely engaged inand Attock in Punjab. It included 19 monetary compensation to affectees andmain councils having 100 villages with also helping them to get employment intotal population of 364,696. Since GBHP. As a first step, GBTI set up anNational Rural Support Programme 'Affectees Facilitation Cell' (AFC) which(NRSP) already had its presence in most acted as a social mediator to assistof the villages of District Attock, the task various stakeholders of GBHP,of setting up GBTI was assigned to it. particularly WAPDA and displacedFor the purpose, an endowment fund of communities. Furthermore, to deal withRs. 100 million was provided by WAPDA land compensation GBTI facilitated the

organisation of a Land ValuationCommittee (LVC) for each affectedvillage, comprising a representative ofWAPDA, two representatives of theaffected village, a representative ofGBTI and the Assistant Commissionerwho headed the committee meeting. Inaddition the Land Acquisition Collector(LAC) who had the final decision makingauthority on rewarding thecompensation also participates in themeeting as an observer.Through the stated process GBTIensured the payment of compensationto around 30,000 affectees belongingto 55 villages. GBTI also facilitated therecruitment of over 8000 skilled, semiskilled and unskilled unemployedpeople of the area. After havingcompleted the tasks to a large extent bythe end of 2002, GBTI diverted its focuson IRDP. Meanwhile GBTI's establishedAFC continues to deal with the left overland compensation and other issueswhich continue to surface on acontinual basis.To design an Integrated RegionalDevelopment Plan for poverty reductionof the displaced community a study wasconducted by WAPDA to ascertain thosecommunity needs which they werewilling to address themselves providedthey were given social and technicalguidance as well as financial assistance.The study revealed that communitiesneeded skills enhancement to takeadvantage of growing demand ofvarious services in the market, access tobasic health and education facilities,capital development to set up microbusinesses, infrastructure developmentand access to services and information.The study also impressed upon the needto provide equitable job opportunities tolocal women.To undertake the communities'development in a sustainable andeffective manner, GBTI adopted the triedand tested social mobilizationmethodology of Rural SupportProgrammes (RSPs), which is holistic innature and tries to build around thoseneeds that the community members arewilling to address themselves. IRDPencompasses the provision of socialguidance to communities throughorganizing them into viable communityorganisations; capital formation throughencouraging communities to save andproviding them access to credit facility;infrastructure development; skillsenhancement; provision of health careand education and access to modernagriculture technology. Even though thetoken IRDP funds released so far byWAPDA have been utilized in full, GBTIstill continues to implement thedevelopment work through its ownresources. Plans for continuation of IRDPonce again through this government-CSO collaboration are also in thepipeline.GBTI's successful collaboration with thegovernment in the past and likelycontinuation in the future owes itself tothe joint ownership of the project by theparties concerned. Moreover the attempton the part of GBTI to keepcommunication lines open through theholding of regular coordination meetingswith WAPDA officials and ensuring theirclose involvement in the undertakenactivities by regular submission ofmonthly, quarterly and annual progressreports has gone a long way in ensuringa smooth ride. The ex-officiorepresentation of Member Water WAPDAin GBTI's 16-member Board of Directorshas also endorsed the involvement ofgovernment in all stages of GBTI'sproject planning, design,implementation and monitoring. GBTI'sadoption of a multi-disciplinaryapproach for their developmentinitiatives, in which their team ofdevelopment practitioners has worked inC a s e S t u d i e s44

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N Sclose interaction with the communitymembers and especially theGovernment, has enabled theorganisation to deal with thecomplexities involved in the socialmobilization process in a moretransparent and effective manner.Idara-e-Taleem-o-Agahi (ITA)--- spreading lightEducation for All (EFA) the second of theeight Millennium Development Goals(MDGs) requires children everywhere inthe world to at least complete primaryschooling by 2015. Education statisticsin the Punjab province of almost 84million people are deplorable eventhough Punjab has slightly bettereducation indicators than otherprovinces; it still trails behind incomparison to low-income areas in theregion. The rate of participation in theeducation sector is very low with 47percent male and 43 percent femaleprimary net enrolment rates. In terms ofadult literacy rates, Punjab is alsoamong the lowest in the region, withonly 36 percent of women and 57percent of men considered literate.girls. Thousands of girl students arereceiving stipends, free text books arereaching the students in a timely mannerand local community and CSOsinvolvement is showing encouragingresults.Idara-e-Taleem-o-Aagahi (ITA) is a trustbased organization that endeavours topromote education as a comprehensiveprocess for human and socialtransformation. It aims to create aneducation system which provides qualityeducation without discrimination onbasis of gender, class, religion, colourand ethnicity and to address the issue ofbottlenecks in education through timelyresource mobilization and influencing ofpublic policy. ITA's core programsinclude the school improvementprogram, school enrichment program,School Improvement Network Pakistan(SINP), Child Labour Initiatives andAlliance Formation for Scaled Up &Inclusive Action (AFED).To improve these appalling figuresPunjab Government in 2003 embarkedon a wide-ranging reform agenda toimprove fiscal management, promotedevolution and improve service deliverystarting with education. Low familyincome, high costs of school materials, ITA with the support of it partners ispoor quality of teaching and inadequate striving for an education system that isinfrastructure were determined as the free, accessible, fair and provides qualitymain constraints to providing greater teaching to the students. US Departmentaccess to education. However, targeted of Labour, CIDA, CIAN, IEARN, INTEL,interventions through the reformILO; ESRA, USAID, UNESCO, Ministry ofprogram are beginning to show results. Social Welfare and Special EducationPrimary school enrolment in theand Punjab Education Foundation haveprovince registered an increase ofcollaborated with ITA one way or the900,000 children under the first phase other to remove the malaise existing inof the Education Reforms particularly the the current education system. ITA is

working with the government on anumber of initiatives like the schooladoption program, training of teachersof marginalized private schools andenhancing competencies of governmentschool teachers.Punjab Education Sector ReformProgram (PERSP), a major initiative onbehalf of the Punjab Government hasthrough the Directorate of StaffDevelopment (DSD) launched aContinuous Professional Development(CPD) framework for public schoolteachers and education personnel. DSDin collaboration with ITA has set up acluster based concept of District TeacherEducators (DTEs) and for this purposethey developed a core team of DistrictTeacher Educators (DTEs). ITA waschosen by DSD because of its expertiseand part history to train some 120DTEs. In a similar collaboration withPunjab Education Foundation, ITA isworking on improving educationstandards in private schools inmarginalized and less affluent areas. ITAprovides services for capacity building ofteachers from underprivileged privateareas through cluster based trainingworkshops. These training interventionsare exclusively for low income privateschools in urban, semi-urban and ruralareas of the Punjab province.Their school adoption programme is yetanother example of mutual benefitsaccrued through synergies affected bylinkages with the public private sector.Through this programme the existinginfrastructure of government schools isimproved with the collaboration ofcorporations and ITA. While developingthe intervention plans and estimating thecosts involved, the professional expertiseof the corporations, the CSOs, and thegovernment are utilized.the prolific level of development that canbe realized through constructiveengagement. The government incollaboration with an experienced and agoal driven CSO achieves its goal ofimparting quality education through welltrained teachers. Whereas, the ITA in thiscase gets exposure through working withthe government which facilitates theCSO in establishing linkages withforeign donors. It involves a mutualunderstanding between partners at everylevel of collaboration which basicallyforms the basis of a successfulpartnership. This is what exactlyhappened in the case of ITA where allgovernment departments, be iteducation department or the directoratefor staff development, all governmentofficials were available to ITA with theirresources and expertise. In the schooldevelopment programme particularly,the education department was veryhappy with the performance of ITA as theCSO has made ground breakingchanges in government schools whichnot only benefited the community atlarge but also enabled the governmentto take notice of such improvements andbring these to other schools as well.The improvements in governmentschools have convinced the governmentto expand its horizon and involve asmany CSOs as possible to come andadopt as many schools as they can sothat the chain of good work does notdiscontinue. It is unfortunate that nopolicy level change has taken place sofar at the government level to makethese kinds of collaborations mandatory.However if this team work continues, it ishoped that one day this kind of policylevel shift will indeed take place.This collaboration between thegovernment and ITA speaks volumes of46

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N SPunjab Rural Support Programme (PRSP)--- empowering communities andstrengthening self helpThe genesis of PRSP can be traced back schools including teachers' salary thuslike other RSPs in the country to the making it a sustainable venture. Thesuccess of AKRSP in early eighties. PRSP success of this collaborative venture ledwas established through a Punjabto a subsequent another partnershipGovernment initiative as the fourth RSP between PRSP and provincial Educationin the country in 1998 with a provincial Department whereby another 300 nongovernment endowment. It wasformal schools were established in theregistered as a nonprofit organisation province.under Companies Ordinance 1984.The distinguishing feature of RSPs is the Another collaborative endeavour of bothinstitutionalising the concept of social materialised when Government throughmobilisation and self help which has its Khushhal Pakistan Programmenow become the backbone of almost allocated Rs. 80 million for infrastructureevery development works even in public projects. All projects were to besector. The areas of PRSP intervention implemented through participatoryare social mobilisation, human resource approach where communities weredevelopment, natural resourceasked to share the 20 % of the totalmanagement, physical infrastructure cost. This project again proved to bebuilding, capital formation through highly successful as the dilapidatedsavings and micro credits, social sector infrastructure in the province particularlydelivery in health and education and in rural areas badly neededlinkages with government and donors. improvements. The success of theseprojects brought more collaborativePRSP's collaboration with Government projects to PRSP such as Pakistanhas been a natural outcome since its Poverty Alleviation Fund (PPAF) signedvery existence emanated out ofan MOU with PRSP and funded for itsgovernment support. Since then it has micro credit programme and physicalbeen working as any other CSO for the infrastructure programme on a veryachievement of poverty alleviation in the large basis. The first phase of agreementrural areas of Punjab throughran for three years in which PPAF notcommunity mobilisation and micro only provided seed money forcredit. Later education department institutional support but also gave fundsallocated Rs. 16 million for theto run the micro credit project andestablishment of 80 non formal schools community physical infrastructurein the rural areas. PRSP allocated Rs. 2 project. The project was further extendedmillion to each of its 8 regions for the into 2nd and 3rd phases because of itsestablishment of schools. With in a short success and each time the amount ofspan of time the organisation was able funding was larger than the previousto establish the targeted 80 schools. Rs. one. Currently PRSP is one of PPAF's2 lac for each school were invested in most important and successful partnersaving deposit schemes and monthly achieving new heights with each passingprofit was used for running expanses of year.

The commonality of development goalsand supplementary nature ofcollaboration has now led thegovernment to entrust PRSP theresponsibility to run Basic Health Units(BHUs) initially in rural areas of RahimYar Khan District but its operations haveextended to five more districts of Punjab.The project was implemented aftercareful planning in partnership withhealth department and it has proved tobe a successful one manifested by muchimproved conditions of these BHUs inrural areas. Likewise, PRSP alsocollaborates with government for theirNational Programme for improvementof Water Courses to the extent of Punjabwhere PRSP jointly runs the programmewith irrigation department.An analysis of these joint interventionsreveals that PRSP's core strength insocial mobilisation and ensuringcommunity support has been vital in thesuccess. Other contributory factors tosuccess are the commonality ofdevelopment goals, umbilicalrelationship of PRSP with governmentand clear cut modes and rules ofpartnership through signing of MoUs.All projects that PRSP implemented withGovernment were successful as far asthe achievement of targets wasconcerned and the extension of almostall the programmes is a proof to that.PRSP has formed village educationcommittees to ensure the smoothrunning of its schools whereas in otherprojects it has formed the projectcommittees and COs to ensure theproper implementation and monitoringof infrastructure projects. PRSP also hasits own Monitoring and Evaluation wingthat constantly monitor the progress andreport to both its own head office and tothe government.criticism as well. The biggest criticism isthat neither the government nor theorganisation on its own volition has sofar opted for its external evaluation andactual impact assessment. Another fiercecriticism is regarding the micro creditprogramme where PPAF provides creditamount for 6% interest rate whereasPRSP further disburses the amount tocommunities for 20% interest rate thusmaking the poor, poorer the critics say.The health programme of PRSP is alsounder strong criticism because of thelack of social mobilisation activitiesregarding the programme. It wasbelieved that BHUs will work moreefficiently if communities are to beinvolved in the process whichunfortunately in this case did nothappen. PRSP staff is running the showand communities' involvement isanything but visible. The role ofGovernment instead of being proactivehas just been that of heavily relying onRSPs without adequate monitoring andimpact assessment provisions thoughmarriage of convenience has led to thesuccess of most collaborative projectsand satisfactory targets obtained.Despite successes on record, PRSP likeother RSPs have their fair share of48

Sindh

Sindh is one of the four provinces of Pakistan and historically ishome to the Sindhis. Sindh is located on the western corner ofSouth Asia, bordering the Iranian plateau in the west.Geographically it is the third largest province of Pakistan, stretchingabout 579 km from north to south and 442 km (extreme) or 281km (average) from east to west, with an area of 140,915 km².Asubtropical region, Sindh is hot in the summer and cold in winter.Temperatures frequently rise above 46 °C (115 °F) between Mayand August, and the minimum average temperature of 2 °C (36 °F)occurs during December and January. The annual rainfall averagesabout seven inches, falling mainly during July and August. The1998 Census of Pakistan indicated a population 30.4 million, thecurrent population can be estimated to be in the range of 36 to 38million using a compound growth in the range of 2% to 2.8% sincethen. The Provincial Assembly of Sindh is unicameral and consists of168 seats of which 5% are reserved for non-Muslims and 17% forwomen. There are 23 districts in Sindh, Pakistan. Education in theprovince is widespread and the province has a high literacy ratecompared to other parts of Pakistan, mainly due to the importanceof Karachi.

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N SHealth and NutritionDevelopment Society (HANDS)--- helping handsA small scale initiative of one man hasover the years become the largest NPOto be working in rural Sindh. Thisphenomenal success can be attributed toDr. Abdul Ghaffar Billoo who along withhis friends has been working in ruralSindh to provide basic health facilities tothe people who could have neitheraccess nor afford these facilities.HANDS, is a non-profit registeredorganization working since 1979 with amission to improve primary andsecondary health facilities, quality ofeducation and to alleviate povertythrough capacity building. HANDS worksin public and private sectors and isbenefiting more than 2 million people of5000 villages in districts Hyderabad,Sanghar, Badin, Thatta, Shikarpur,Sukker, Dadu and others. HANDS with acommunity participatory approachinitially worked in health and educationbut now has extended it's interventions tocommunity development, water andsanitation, credit and savings, gender,advocacy and networking and humanresource development and has morethan 1,895 Community Organizations(male and female).HANDS has collaborated with bothinternational agencies and governmentto bring about a social transformation inrural Sindh by empowering the localcommunity. Over the years HANDS hascollaborated with World PopulationFoundation, UNICEF, INFAQFoundation, The Aga Khan Foundation,The Aga Khan University, USAID, Trustfor Voluntary Organizations (TVO) andJohn Hopkins University USA. At thenational level with Sindh EducationFoundation, Ministry of WomenDevelopment, City District GovernmentKarachi, Government of Sindh,National Commission for HumanDevelopment and Education SectorReform Assistance Program (ESRA).HANDS' different programmes runningin collaboration with government areReproductive Health Programme in 13districts of Sindh, Tawana Pakistan whichis funded by the Ministry of Women &Development Government of Pakistan,Pakistan Bait-ul-Mal and The Aga KhanUniversity Karachi, ReleasingConfidence and Creativity (EarlyChildhood Development) sponsored byThe Aga Khan Foundation incollaboration with USAID and isoperational in district Hyderabad, TheFellowship School Programme (DistrictHyderabad) in collaboration with theSindh Education Foundation (SEF),scholarships to students supported byINFAQ Foundation.Applauding their developmentinitiatives, World Population Foundation(WPF) in collaboration with DistrictEducation Department chose HANDS asthe implementing partner for their LifeSkills Based Education Programme(LSBE) in Sindh. The project aims toimprove the health and life skills of theschool going youth (2- 17 years) indistrict Matiari Sindh. After successfulcollaboration, WPF started the secondphase of the LSBE project funded byNational Aids Control Program in2006.

To analyze the impact of theprogrammes, a review meeting wasorganized in which people directly orindirectly involved in the project, wereinvited for their feedback. Districtgovernment officials, religious scholars,parents, Head Master/Mistresses,educators, adolescents and mediarepresentatives all candidly appraisedthe pros and cons of the project whilstimpressing upon the need for strongliaisons between the government, publicand the private sector for futureinterventions.When HANDS started working in ruralareas of Sindh, their only objective wasto reach out to the poor and providethem with basic medical treatment andconsultations. It was only when they gotfirst hand information about governmentfacilities regarding health and educationthat they decided to join hands with thegovernment to improve the situation.Before taking any further step in thatparticular direction, they revisited theirmission and vision statements andincorporated their decision to workclosely with the government so that itcan be reflected in both letter and spiritin their mission. HANDS is among thosefew CSOs who have made it part oftheir mission to collaborate with thegovernment in order to not only bringimprovements in the quality of life ofpoor people but also to assist thegovernment in bringing about positivechanges at both policy and institutionallevel. HANDS' interventions incollaboration with government areproof of both partners success inachieving common goals.The most significant change can beobserved in the health sector where theyhave adopted two Tehsil Hospitals inRural Malir and Matiari. These hospitalsare being run by government doctorsbut with the supervision andconsultation of HANDS through whichthey not only donated some basicequipment but also helped them inestablishing nursing schools where mostof the resources were generated byHANDS. These collaborative initiativeswere made possible only whengovernment realized that HANDS's onlyobjective is to help out the poor in everyway possible. Once the trust wasdeveloped then it was a very smoothrunning and now both parties are verycomfortable with each other.Indus Resource Centre (IRC)--- giving a better tomorrowIRC, Kulsoom's saviour was founded onthe learning and experience of NGOResource Centre, a Project of Aga KhanFoundation as its rural model inKhairpur Sindh. NGORC worked for themanagerial capacity building of 35Community Based Organizations(CBOs) through training, networkingwith government and informationdissemination without providing anyfinancial support. The project endedafter four years but a few committedemployees felt that the full potential ofcommunity was not being utilised to themaximum and planned to continue theiractivities. Ms Sadiqa Salahuddin, formerDirector of NGORC played an importantrole in bringing some like-mindedpeople to a new platform where theycould work with more freedom. TheC a s e S t u d i e s52

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N Splatform was named 'Indus ResourceCentre'. Building upon NGORC'sactivities, the Centre started itsoperations from Khairpur district in2000 and within 3 months, operationsextended to Dadu district. As per theirmandate, collaborative programmeswith selected CBOs were developed andefforts were made to enhance theirindividual and institutional capacity. Thecross cutting themes includedmainstreaming gender, human rights,education, cultural heritage andenvironment. With the passage of time anew dimension was added to theirprogramme, which effectively changedtheir course of action. This wasdesigning and implementation ofinnovative development models. Themission of IRC is to mainstream themarginalized communities and join thestruggle for a liberal society throughhuman and institutional development(HID); and refining innovative,contextual and cost-effective communitybased development models.'IRC is collaborating with a range ofstakeholders to facilitate a processwhereby the communities will get equalopportunities for growth andparticipation in local and nationalaffairs while meeting the keydevelopment targets at the grassrootslevel. Various projects have beeninitiated in close collaboration withgovernment agencies. The majorbeneficiaries of the interventions arecommunities, women, youth,government, civil society organization.IRC's program “Quality ImprovementSupport” to government schools in thevillages by working closely with districteducation departments. IRC inputsinclude teachers training, reactivation ofSchool Management Committees,infrastructural improvement support,establishment of Learning ResourceCentres and the provision of extracurricularactivities. Indus ResourceSince Kulsoom Channa was a little girlshe had dreamt of becoming ateacher but her father, a poor illiterateman, would not permit her. At a tenderage she was diagnosed withtuberculosis and the doctors instructedthat the only cure was the intake ofregular medication. As a naive littlevillage girl, Kulsoom did theunthinkable, she informed her fatherthat she would only take themedication if he allowed her to go toschool. Faced with a determineddaughter and a life and deathsituation, the father agreed andenrolled her into Sojhro Junior Schoolwhen she was eight years old.Kulsoom, while completing middleschool, despite initial opposition, sheremained undaunted and won respectof teachers and passed exams withflying colours. She developed interestin subjects like 'Girls Education','Village Women' and 'GenderDiscrimination'. Due to her goodEnglish, teachers and students havenicknamed her 'President Bush' in theschool. Kulsoom also generatesincome from embroidery and sewing,which helps her in contributing tohousehold expenses.Centre is playing a central role infacilitating the provincial government'stask in provision of quality and costeffective education to the down-troddenof the society by very effectively using thebenefits of synergistic partnerships.IRC's basic strength is socialmobilization, an element wheregovernment is not very strong as it lacksthe professional capabilities ofmobilizing people and coalescing theminto self-help groups. IRC brings thecapacity for social mobilization withthem which is essential while workingwith the communities at grassroots level.The teacher training component of IRC

is the best example of pooling strengthsof both parties. IRC on its partdeveloped the training manual,prepared the training calendar andinvited the government teachers toparticipate in the training. Educationdepartment has made sure that not onlyall the teachers attend but thedepartment also monitors theirperformance when teachers go back totheir schools, implement the newteaching techniques and return to thetraining programme with the feedback.EDO Education along with his deputiesvisits all the schools to ensure the properimplementation of classroom techniques.This model looks exemplary where bothparties are contributing to improvementin teaching methods with the overallobjective of revamping the educationsystem. Although the collaboration issuccessful at the operational level andIRC is contributing local level changesbut no impact on policy could be foundas a result of their successfulcollaboration. IRC on it's part has timeand again made variousrecommendations on different aspectsof education governance andpedagogical techniques but due to thecomplicated bureaucratic proceduresand some reluctance from Government,no concrete development has takenplace in this regard and the project hasbeen limited to the provision of teacherstraining and quality education to thestudents in the selected schoolsstrengthening of teachers competenciesand other successful interventions byIRC have not been considered forscaling up or incorporation into theinstitutionalised government systems.The government's inability or lack ofunderstanding and will to implement'change' and to scale up 'successfulpilots' is a pattern that occurs in mostcases and is evident in this case too.Succesful collaboration remains limitedto a project approach and applicationthrough the system is often missingISRA Islamic Foundation (IIF)--- enlightening livesThe statistics on visual impairment or principal causes are: Cataract - 66%,blindness are staggering. Poverty and Corneal opacity - 12%, Refractive errorblindness are a formidable combination, - 11%, Glaucoma - 3%, Others - 8%devastating many people in thedeveloping world incapacitating them ISRA Islamic Foundation (IIF), foundedwith dual disability. Loss of sight often by famous Ophthalmologist Dr Ghulamremains a neglected handicap in our Qadir and his friends, has been workingpart of the world. The World Health in Pakistan for the last 16 years andOrganization (WHO) considers Pakistan although the hub of its activities isas a priority country for blindnessHyderabad but the organization is alsoprevention and treatment. It is estimated working in other parts of Sindh andthat blindness is prevalent inBaluchistan. The main objective of ISRAapproximately 1 % of a population of is to contribute in the field of educationover 160 million. This means that there and health. Currently the organizationare more than one and a half million has established one medical collegepeople in Pakistan who are blind. The along with a university for BusinessC a s e S t u d i e s54

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N SEducation and Information Technology. achievements include the construction ofOther than that the organization has the state of the art OPD Block with 12established quite a few hospitals for clinics. After the success of the hospitalpoor, needy and disadvantaged.in Memon Goth, ISRA Foundation hasestablished two more Eye Hospitals withAl Ibrahim Eye Hospital Karachi is the the same name in Kunri Districtbrainchild of Dr Saleh Memon, an Tharparkar Sindh and Kharaneminent ophthalmology professor with Baluchistan where eye patients are30 years of work experience with Jinnah treated free of cost. The institutionalHospital and Medical College. After arrangements were similar to theretirement, his aspiration was toprevious hospitals with the governmentestablish an eye hospital that would providing the land and the building forcater to the needs of the poor and the the hospitals.disadvantaged. He was approached byDr. Ghulam Qadir Kazi who had a ISRA and the government enjoy a verysimilar dream of starting a new hospital mature long term relationship which isfor the prevention of blindness in the based on core assistance in the form ofprovince of Sindh. Initially established provision of land and building to ISRAon a small leased government hospital for hospitals. This is a classic example oflocated in a Community Centre, this a collaboration in which the governmenthospital on its present premises near has secured wider outreach to theMalir started with 33 beds for eyeordinary citizens, ensuring better healthdiseases. To support the hospital, capital care facilities and the CSO with growingexpenses were donated by thecapacity and resources is playing a vitalgovernment, whereas, to meet the role in addressing social issues.recurring cost, donations from ISRA Although the arrangement is consideredfoundation were utilized.to be successful, government facility isbeing utilized and the CSO on its part isThe hospital today is among the finest managing service provision with its owneye hospitals in Karachi with the latest resources but there are some missingfacilities, modern equipment andelements. Government does not monitorqualified staff. The distinguishing feature the progress at the hospital and neitherof the hospital is that it is run on pure does it check the condition of thephilanthropic basis and patients are building, maintaining absolutely zerotreated totally free of cost. Most of the contact since the building was handedKarachi's rich individuals and donor over to ISRA. The CSO on it's part didorganizations including Infaqattempt to involve government inFoundation are regular donors of this running the affairs of the hospital andHospital. The hospital has an outpatient also tried to contact Pakistan Bait ul Maldepartment, state of the art equipment for continuous funding but withdrew alland four suites for Operation theatres it's efforts due to the lengthywith recovery area, surgeon lounge and bureaucratic procedures of government.sterilization area. Al-Ibrahim EyeHospital has so far treated over 85,000 There is no denying the fact that Alpatients, performed over 6000Ibrahim Eye Hospital is providing free orsurgeries, including 4,200 intraocular cheaper treatment to the eye patientsimplants and 260 vasectomies for from across Pakistan and the quality ofbleeding eye conditions, has successfully treatment and operations is in line withconducted 16 National and 05best standards. The governmentInternational Eye Camps and latest contribution cannot be denied as the

availability of main infrastructure hasplayed a vital role in establishing thehospitals in both Sindh and Baluchistan.Marie Stopes Society (MSS)--- collaborating for changeThe Marie Stopes Society (Pakistan), anon-profit organization was establishedas part of the MSI Global Partnership in1991 with funding and technical supportfrom Marie Stopes International (MSI),aiming to provide reproductive healthservices in Pakistan in closecollaboration with the Ministry ofPopulation Welfare and Ministry ofHealth. The joint interventions to addressthe health needs of the poor, range fromreproductive health clinics, familyplanning services, and the MCHs(Mother Child Health Centre) in the.During field survey, it was noticed thatafter MSS upgraded the governmenthealth facilities, a committee comprisingthe EDO Health, Taaluqa Nazim, UnionCouncil members, RHC MedicalSuperintendent, NGO representativesand an MSI Representative wereassigned to supervise the functioning ofthe units. The Nazim of Thari Mirwahexpressed reservations about theregularity and effectiveness with whichthis committee will be able to supervisethe MCH and look after the equipmentbrought in by MSS. The Nazim insistedthat MSS should directly supervise theMCH Centre and inform the committeeif any trouble-shooting was needed. Thissuggestion was not in line with the rolethat MSS had envisaged for itself andneither does it leave much scope forcommunity ownership. MSS hadintended to upgrade the MCH centreand hand it over to the committee.These shifting goalposts are a majorencumbrance in their objective ofinvolving the community in this battle forDistrict Khairpur is sparsely populatedwith an approximate population of twomillion people the majority residing inrural areas. Agriculture is the mainsource of livelihood and the overallliteracy level of the population isextremely low and even lowerespecially amongst women. Amidstthese conditions of abject poverty,health care is not given much attentionespecially related to the Mother ChildHealth. The health statistics present awoeful state; Doctors per 10,000population on the average are 2.31,the nurses 0.51 for every 10,000people and there are only 2.54hospital beds per 10,000 ofpopulationprovision of basic services.MSI because of its recognisedperformance and positive effects on thecommunity was nominated to be part ofthe District Health Management Team(DHMT) by the EDO when it was formedin 2000 and has been regularlyattending its meetings. The objective ofthe DHMT is to strengthen the capacityof health planning and managementand oversight at the district level. TheDHMT should not be over-estimated asa 'channel for advocacy or meaningfulcollaboration since its a joint oversightmechanism'. The MSS experience so farshows that government does not viewNGOs as collaborators in planning butas a resource that can be drawn uponfor promotion of activities. MSI was forC a s e S t u d i e s56

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N Sexample, actively involved in theDHMT's sample survey of health needsbut the impact on government'splanning has been negligible. DHMTmeetings were held on a quarterly basisand according to them, even when theDHMT meetings were held, decisionstaken were not implemented.Although the collaboration examinedwas not very smooth in the beginningand faced many constraints during theplanning and implementation phase,however on the basis of successfulprogramme delivery on MSS's part, ithas now engaged in several other jointprogrammes with different governmentdepartments. Other collaborations atthe district level include working moreclosely with the Lady Health Worker(LHW) Programme. LHWs arecollaborating with MSS in referrals tooutreach camps. MSS has also takenthe initiative of inviting LHWs for RHtraining. MSI has operational links withthe DPWO's (District Population WelfareOfficer) office. During the PCP researchteam visit, the DPWO offered theservices of doctors who could help atMSI outreach camps. He wasparticularly keen that TL be included aspart of the services being given inKhairpur so MSS could organize campsin rural areas and follow up. He pointedout that as government had only maletechnicians, women could not come togovernment camps. MSI continues tocoordinate with the DPWO as it hasbeen doing in the past and is utilizinggovernment doctors in its camps.The existing erratic relationship with thegovernment needs to be reviewedextensively for these constraints not onlylimit and hinder the CSO's work but canalso reflect poorly on government andit's willingness and capacity to drawvalue from these opportunities. Thisexperience shows that no matter howsuccessful the ground performance is, ifthe relationship is not institutionalisedthrough robust processes andaccountability and assessment are notbuilt, long term results are unlikely.

C a s e S t u d i e s58

Northern Areas

The Northern Areas or Gilgit-Baltistan is the northernmost region ofPakistani-administered Kashmir. The area west of the Indus Riverwas known as the Gilgit Agency until October 1947. At the lastcensus (1998), the population of the Northern Areas was 870,347.Approximately 14% of the population was urban. A total area ofNorthern Areas is 72,496 km². There are 6 districts and 7 townsare in Northern Areas. Urdu is the lingua franca of the region,understood by most inhabitants. The Shina language (with severaldialects) is the language of 40% of the population, spoken mainlyin Gilgit, throughout Diamer, and some parts of Ghizer and otherlanguages includeBalti, Wakhi, Burushaski, Khowar, PashtoTheNorthern Areas are divided into six districts in three regions: the twoBaltistan districts of Skardu and Ghangche, two Gilgit districts ofGilgit and Ghizer and two Diamer districts districts of Astore andDiamer, . The main political centres are the towns of Gilgit, Skarduand Chilas. The Northern Areas border the Wakhan corridor ofAfghanistan to the northwest, the Xinjiang territory of China to thenortheast, the Indian state of Jammu and Kashmir to the southeast,the region of Pakistani-administered Azad Kashmir to the southeastand the North-West Frontier Province to the west. The climate of theNorthern Areas varies from region to region. Five of the Eightthousand(above 8,000m) peaks of the world are in the NorthernAreas of Pakistan.

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N SAga khan RuralSupport Programme (AKRSP)--- leading towards changeAKRSP contributes significantly to thesocial uplift of the entire country and it'srole in the development of the NorthernAreas of Pakistan is quite phenomenal.In education, rural development,capacity building of women and men orprovision of healthcare facilities, theimpact of genuine development effort isvisible everywhere. The way AKRSP hasinstilled into the community the values ofself-sufficiency and self-reliance, is abrilliant achievement in itself. Theimportance that the local communitieshave started to give to education,particularly of quality, surpasses many ofthe rural communities in Punjab or otherprovinces.Aga Khan Rural Support Programme(AKRSP) is a project of Aga KhanFoundation (AKF) working since 1982 inthe Northern Areas of Pakistan toeradicate poverty and to improve thesocio-economic standards of thecommunity. Over two decades of workwith diverse stakeholders includingcommunities, local and centralgovernment in Pakistan, internationaldonors, professional agencies, academicand research institutions have givenAKRSP a unique perspective. AKRSP onthe request of the NWFP governmentestablished an autonomous organizationin 1989 the Sarhad Rural SupportProgram (SRSP) to replicate their RuralSupport Programme. The success ofAKRSP and inception of SRSP sooninspired the creation of similar RSPsacross the four provinces. In 2004, therewere nine RSPs working in more than 70of the 106 districts of the country andtoday they are working with more than43,000 community originationsAccording to the 2001 householdsurvey conducted by AKRSP in NA, thefemale literacy rate is 30 % ascompared to the male literacy rate of66 % .Contribution of women to theoff-farm per capita income, which is Rs8718, is estimated to be below 5% butin the on-farm per capita income,which is Rs 6074 their contribution isabout 90%. For centuries, womenhave remained confined to theirtraditional roles and are severelydisadvantaged in terms of access todevelopment opportunities.representing over 1 million households.AKRSP's pioneering work in theNorthern Areas (NA) includes thecreation of village and women's(VOs/WOs) organizations, growth ofmicro-finance sector, enhancinggovernment's support to communityrural infrastructure projects, naturalresource management, enterprisepromotion and women's development.AKRSP also has experience of runningdifferent projects through public privatepartnership, which include the livestockimprovement project funded by PrimeMinister's Secretariat, Agri-businessproject funded by Agri-business SupportFund, establishment of gems cuttingand polishing institute in Northern Areassponsored by Competitiveness SupportFund and Self Employment projectfunded by Planning & DevelopmentDepartment of Northern Areas.President of Pakistan launched apackage for NA with the primaryobjective of reducing poverty and

empowering disadvantaged segment of of the area and the government finds itthe population particularly women. It an equally challenging task despitewas felt that the women of the NA have having large resources and authority.limited role in business and enterprise AKRSP is one the most successful anddevelopment whereas their role in farm well-recognized CSOs that has beenrelated activities was more extensive, mobilizing communities towards localtherefore to bring women into theinfrastructure development with themainstream development process their assistance of the government.income generation skills needed to beenhanced and built. Through thisCollaborating in the area of “womenproject, the government planned to give development” helped both thefinancial support and training to some government and AKRSP in achieving2000 deserving women. The Planning & mutual benefits and in having a lastingDevelopment Department (PDD) ofimpact on the lives of poor women. ThisNorthern Areas gave Rs 70 millioncollaboration has been instrumental inpackage for the “development ofcapacity building and sensitization ofwomen” to two local CSOs for thenot just 2000 women but so manyexecution. One of them was AKRSP. families as well. Through self-growth,Rs.35 million project spread overwomen will now be less dependent onduration of one year aimed to promote their families and would contributeenterprise culture in Northern Areas by significantly to the income generationproviding business sensitization, business and livelihood of the family.management training, business plandevelopment training and marketing Financial resources and expertise of thesupport training to the local women government combined with theentrepreneurs. Apart from the training, indigenous knowledge and rapport ofAKRSP also offered master trainers, AKRSP with the local community bringproduct development facilities andto this a credible sensevehicles for mobility and outreach to Of ownership and long-termresource persons throughout thesustainability. Even after the terminationNorthern Areas through its well-of the project in 2007, both partiesestablished network of Womenhope that trainers and the facilities willOrganizations. A steering committee was continue to assist women in theirestablished to supervise the execution of business ventures, subsequentlythe project. The committee developed a improving livelihood of the people. Jointmonitoring and evaluation mechanism monitoring and evaluation by AKRSPto ensure the timely release of the funds and PDD moves the traditional serviceand strict adherence of all the policies delivery engagement to a more dynamicregarding the project.and a rewarding relationship. In today'schallenging environment, synergisticIn the last two decades, AKRSP hasrelationship is only way to find dynamiccontributed extensively to thesolutions to the complex developmentdevelopment of NA however, theseissues.development needs are not onlychanging but also increasing with time.AKRSP alone cannot cater to the needsC a s e S t u d i e s62

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N SKarakorum Area DevelopmentOrganisation (KADO)--- empowering communitiesThe Northern Areas constitute fiveand polishing centre, which will traindistricts spread over an area of 72,496 some 100 women and men in the art ofkm with a population of 0.880 million. jewellery making. KADO also plans toSocial indicators in these areas are develop Business Incubation Centres,deplorable with the overall literacy rate which will stem into competitive andof only 33%. For male population it is profitable business ventures.40% whereas amongst women it is only25%. The situation is even worse in far- Presidential Programme for NA includedflung districts like Ghanche (14%) and a package for Women Development andDiamer. There are only 2,026Empowerment. Planning & Developmenteducational institutes, which include 14 Department (PDD) of NA designed acolleges, 4 IT centres and only 1“Skill Development” project foruniversity. Opportunities for women are empowering women with IT skills.far limited as compared to men,Computer illiteracy is widespreadespecially at professional and the higher amongst women in the Northern Areas,education level.the objective of this programme is toimpart IT skill training to women as aKADO is a Hunza based organization step towards involving them in theworking in the Northern Areas (NA) of development of the society. The projectPakistan. It was established in 1990s as was proposed to be outsourced to aa Community Based Organization to local NGO due to the Governmentpromote Karakorum handicrafts .Over Departments human resourcethe years, it has undertaken otherconstraints. KADO with its previousprojects based on the needs of the experience and expertise in IT sector wascommunity like Hunza Environment the ideal candidate in assisting theCommittee, Centre for Rehabilitation of government in the establishment ofPhysically Disabled, I.T. based projects Women Vocational Training (IT Skills) inlike Internet Provision, Wireless Areas six districts of Northern Areas.Network in Nagar valley and E villageprojects in the Hunza valley. With the Through this project, 34 selectedincreasing number of activities, the need government & private schools andfor an umbrella organization became vocational training centres werevital whose purpose would be toequipped with computers. In addition,professionally manage and operate the 3500 women/girls were providedprojects. Established in 2006, KADO computer training. KADO being the leadnow also focuses on poverty alleviation implementing agency legally has theand empowerment of women through its option of subcontracting the work to aKarakorum Heritage Development third party in cases where it deemsProgramme (KHDP), which helps women necessary. Planning of the project i.e.from marginalized areas in sustaining distribution of centres in the districts andtheir families. KADO in collaboration site selection is jointly done bywith AKRSP has started a gem cutting Government and KADO representatives.

In almost all the identified places SchoolManagement Committees (SMCs) havebeen established by KADO, in someareas the Community BasedOrganizations (CBOs) played a pivotalrole in implementing the project. TheseCBOs and SMCs deal with day-to-daymanagement related issues. Monitoringof the project rests with KADO,government representative and SMC ofconcerned schools where IT centre wasestablished. Joint as well as separatevisits by KADO representative andresearch officer from PDD ensure thefrictionless running of these centres.SMC charges a minor fee of Rs 50 fromthe school students and Rs 100 permonth from the outside learners toensure the sustainability of the projectafter funding from the government endsin June 2007. School teachers are alsotrained as master trainers. This was toensure continuity of the training evenafter completion of the project withoutincurring any additional cost.This is a unique case study in which thegovernment and a CSO collaborate inan area other than the traditional areaslike health, school education,infrastructure etc. This IT initiative onbehalf of the government and KADOhas provided computer literacy toaround 3500 women and girls. Capacitybuilding and empowerment of thewomen will bring many positive changesin the social fabric of the communities. Itis a classic example of a symbioticrelationship, in which the government'scontribution goes beyond merefinancing. The government along withKADO is actively involved in the trainingof schoolteachers, module developmentand in monitoring of the funds received.Another feature that makes it asuccessful and a constructivecollaboration is the sustainability of theproject even after the exit of the twomajor stakeholders. Recognition of thecommunity as a major stakeholder andtheir involvement has given even moreviability to the endeavour.Marafie Foundation (MF)--- building blocksarmed forces.Marafie Foundation is a renownedKuwait based family philanthropyfoundation. Despite the beauty of thearea they were aghast at the low levelsof development. The low socio-economic indicators overshadow thenatural splendour of the Baltistan. Thepopulation surviving on threadbareresources was in urgent need of facilitiessuch as education and healthcare.Pakistan chapter of the foundation wasestablished for welfare of the residents ofBaltistan. Despite the presence of fertileNo change in a society is possiblewithout education. The people ofBaltistan were trapped in the viciouscycle of illiteracy and poverty. MarafieFoundation is helping them break freefrom these shackles by improving theexisting educational set-up. An in-depthanalysis of the state of educationshowed that there were no facilities forelementary education. At the middleschool level, the low standard ofeducation was encumbering theirchances of admission in professionalcolleges and of attaining executive leveljobs in the corporate sector and inC a s e S t u d i e s64

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N Slands people were found living inwere constructed in different phasesadverse conditions. The Marafies have starting from 1996. Grant for two roomsdonated considerable funds for health has been recently sanctioned andcare, education and various other proposal for another two rooms is in theprojects for the social uplift of thepipeline. A two-storey block comprisingBaltistan Area. Development in these of three classrooms and one hall wassectors, they believe can bring a vital also constructed in the Governmentchange in the overall social landscape Girls High School which impartsof the area.education to some 954 females. Apartfrom work in the education sector,Marafie Foundation has focused its Marafie Foundation continues to extendattention mainly on health andfunding for provision of equipment andeducation sectors. It also investsconstruction of government dispensariesgenerously in other community projects and so far 33 dispensaries have beenand concentrates on the welfare of handed over to the district healthchildren and empowerment of women. department.Extensive consultations with thegovernment and other local NGOs are Marafie Foundation provides funding forheld to ensure that there is noschools, local community gives the landduplication of efforts. They strive to and the government undertakes thecomplement and supplement the efforts construction of the additional rooms inof various agencies so that common schools etc with the support ofgoal of development remains central to community members. This collaboratingtheir programmes.troika is only the beginning in addressinga pressing social problem. Smooth andThe initial task was to acquire and build frictionless coordination amongst theinfrastructure for the schools, for which stakeholders; government, thecommunity involvement was deemed community and Marafie, is essential innecessary. The community provides improving quality of life of the locals byeither free land or labour for school offering them better health andconstruction; the idea here was to give education opportunities.them a sense of ownership andinvolvement in the project. OnThis collaboration at best can be termedcompletion of the buildings, these are as a “marriage of convenience”, evenhanded over to the governmentthough the locals have benefited fromeducation department, registered and this engagement yet its long-termwell-established NGOs or thesustainability is seriously questionable.community for operation andSome of the dispensaries handed over tomanagement. Marafie Foundation the district health department, oncontinues to support these schools monitoring were found closed. Reactingthrough grants to meet any specific strongly, Marafie foundation took up theneed indicated to it by the management issue with the government and wasof the schools.successful in the reactivation of thedispensaries. This incident substantiatesPublic School Skardu established in the fact that without active support and1992. Marafie Foundation arranged the monitoring from the government and thefunds for the extension of facilities on foundation, the projects will not flourish.request of the school board. As per the The foundation continues to providegrowing need to accommodate the financial support to the government yetincreasing enrolment of students, rooms without a proper monitoring and feed

ack mechanism; the partnership wouldnot yield the desired outcomes.Local Support Organization (LSO)Danyore Gilgit--- harnessing opportunitiesUnion Council Danyore, situated 8kilometres from main Gilgit city and hasa total population of 21,000 spread ineight main villages. Villageorganizations and WomenOrganizations were established byAKRSP to work on self-help basis forreduction in poverty. Network of VOsand WOs in the union council Danyoreneeded an umbrella organization with aprofessional approach to bridge the gapfor social development and thus a localsupport organization was established in2005. A local support organization is aflexible intermediary organizationbetween AKRSP and other prominentdevelopment support systems andgrassroots level development institutionsincluding VO/WOs and other villagebased institutions. Twenty six WOs, 13VOs and 11 CBOs are members ofDanyore local support organization.The relationship of LSOs working in theNorthern Areas of Pakistan is highlydependent on government departmentsas identification of any other fundingsource is very difficult for such smallorganizations. Usually VOs, WOs\CBOsidentified the urgent development needsof the community which were neverrealized due to the paucity of funds andthe inability to find donors for funding.The Local support organization (LSO) isresponsible not only for themanagement but also for theidentification of funding sources for thenetwork. Danyore LSO hired threeprofessionals i.e. a social mobilizer,The Government of Pakistan willprovide every type of support to suchdevelopment organizations. The NGOis working in the right direction toprovide help for the poor of the areaat the grassroots level, particularly thewomen folk of the society. (Abdul LatifKhan, Chief Secretary Northern Areas)monitoring and evaluation officer andan accountant whose salary comes fromAKRSP.LSO contacted different departments ofthe government for funds to address theidentified needs of the community. TheGovernment's Department of Agriculturewanted to extend its services to improvethe socio-economic standards of thepeople living in the area. LSO'sapproach turned out to be a bigopportunity for the government who notonly wanted greater access to the localpopulation but the services of acommitted organization for betterutilization of available resources. Thisled to the establishment of collaborationbetween government and LSO Danyore.In addition to the Department ofAgriculture, LSO developed linkageswith other line departments likeLivestock, Health, Education andEnvironment but the most important onewas with Department of Agriculture.This collaboration raised theperformance standards for both thegovernment and LSO Danyore and hasC a s e S t u d i e s66

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N Syielded tremendous benefits for thecommunity. Working in closecollaboration with AgriculturalDepartment, the LSO has changed thetraditional work methods of this Agricommunity. Ecological conditions werequite favourable for double cropping,growing of off season vegetablesthrough green houses and honey beekeeping but lack of proper processingfacilities accounted for loss ofconsiderable amount of livelihood.However after government andDanyore's intervention things changeddrastically. Some 600 females weretrained in mineral block preparation-afood supplement for mulch animals atthree times less the prevailing marketrate, 350 village women were trained inprocessing the fruit and using thesurplus in other forms edible forms,poor farmers were provided seeds ofvegetables and fruit crops and were alsotrained in growing off-season vegetableswhich would ensure revenue streamsthroughout the year, communitymembers were given training by theAgriculture Department in artificialinsemination, poultry rearing, rearingand provision of improved breeds ofanimals to increase per unit yield oftheir crops.This collaboration might not look verysignificant considering the larger pictureof government CSO collaboration atthe national scale. However the fact thata small level organisation that trulyrepresents the poor community of ruralNorthern Areas succeeded in makingcontact with the government officialsand a very successful one which provesmany points. For example if thisapproach can be implementedthroughout Pakistan, the fate of ruralareas can be changed in a very shorttime because people will contribute onself-help basis. Another conclusionwhich can be drawn from thiscollaboration is that the process andservice delivery was absolutelytransparent as the people who weremanaging the project belong to thesame community and are thusanswerable to everybody. Thispartnership also shed light on theworking methodology of AKRSP as it wastheir initiative to establish LSOs indifferent areas. RSPs are also working inother areas of Pakistan and if they adoptthis approach, the rural development inPakistan can take a whole new shape ina short span of time.Professional DevelopmentCentre North (PDCN)---A stepping stoneThe Aga Khan Education Servicesschool, primary, secondary, and higher(AKES) is one of four agencies of the secondary education services to moreAga Khan Development Networkthan 54,000 students around the world.(AKDN) supporting educationalProgrammes to improve educationaldevelopment activities education. AKES quality have been built into the AKEScurrently operates more than 300system since the early-1980s. Fieldschoolsand advanced educational based teacher training was launched inprogrammes that provide quality pre- Pakistan's Northern Areas in 1983.

School improvement experiments beganat the same time in Sindh province inPakistan, where AKES introduced childcentredteaching methods. AKES iscommitted to achieving excellence bycontinuous improvement of itsprogrammes services and processes.Offering superior education to studentsis perhaps the most important factor increating a successful future forgenerations that will have to cope with arapidly changing environment. AKESfocuses upon employing cost-effectiveand efficient management practices,investing in staff and teacher training,and striving for quality outputs.The Institute for EducationalDevelopment of the Aga Khan Universitywas created to provide a permanentinstitutional base that could sustaininitiatives in education. AKU-IED hasalso been working in collaboration withthe Government of Pakistan and otherdeveloping countries to help improvethe quality of education. AKU-IEDfaculty has made a significantcontribution to the development ofpublic sector educational system inPakistan, which has been widelyacknowledged at federal, provincial anddistrict levelsThe Professional Development CentreNorth (PDCN) was established as a jointcollaborative venture between Aga KhanEducational Service Pakistan and theAga Khan University-Institute forEducational Development. PDCNstarted work in 1999 in Northern Areasin collaboration with all educationstakeholders i.e. the government, AKESand private sector in their effort toimprove the quality of education.Presently it is working with the generousfunding provided by the EuropeanCommission and Aga Khan Foundation.The mission of PDCN is to develop andadopt activities & strategies that will leadto improvement in the quality ofeducation in the Northern areas. PDCNaims to work in collaboration withgovernment and local organizations,build local capacity, conduct research totest ideas and influence policy, anddevelop assessment & evaluationprocedures in order to improve theexisting practice.The core function of the PDCN isprofessional development of in-serviceteachers and Whole SchoolImprovement Programme (WSIP). Keysupporting functions includemanagement trainings for school heads,middle and senior educationalmanagers, curriculum developmentresearch and women support group(WSG). These activities are playing avital role in the development processeither directly or indirectly. The moststriking feature of this trainingprogramme is the state of the artinfrastructure and learning equipment,for most of the government schoolteachers, acquiring skills in such anencouraging learning environment isunthinkable.Besides the core Programme, PDCN hasdesigned various courses forprofessional development of officials,teachers and community of the NorthernAreas. It includes eight types of courses,Certificate of Leadership andManagement, Leadership andManagement workshop for governmentofficials and NGOs of Northern Areas.Modules of these trainings are approvedby the AKU-IED after a thorough scrutiny.Government officials are involved indeveloping the contents of thesemodules and trainings are conducted incollaboration with officials ofgovernment departments.For the development of faculty, potentialteachers from government and privatesectors are selected and provided anopportunity to get a Masters degree inC a s e S t u d i e s68

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N SEducation from AKU-IED. To maintain Government High School Kashrotethe quality of trainings, it was decided situated in the heart of Gilgit City is onethat all the faculty members should success story among many. This 34acquire master degrees from AKU room school spread over an area of 34Karachi. 2877 persons have graduated kanals is imparting quality education tofrom PDCN over the last 8 years in some 950 girls from prep to grade tenth.different courses with a ratio of 56 All the twenty two teachers werepercent of females.provided on job training for a year byPDCN. The school administration hasThe increasing inability of governments also been provided a mobile libraryto fund even the primary cycle offacility by PDCN. Principal of the schoolschooling from tax revenue is producing who had received certificate ofan ad hoc set of 'cost-sharing'Leadership and Management fromarrangements. The Foundation isPDCN was conferred upon theattempting to turn this unsatisfactory Presidential Award for Best Performancesituation to advantage by experimenting for her commitment and dedication.with mechanisms, such ascollaborations, mini-endowments, which The Government, faculty, parents, andallow parents and communities a wider children all play a vital role in therole in managing and co-financing their development and operation of AKESchildren's education within specific programmes. This synergistic philosophycultural, social and economic contexts. is supported by AKES's educationalapproach of enhancing academicUNICEF launched a Programme Child instruction with a wide spectrum of extra-Friendly School, in collaboration with curricular activities. Collaborating withthe government for improvement of 40 several partners, the Aga Khanschools. These government schools are Foundation network of organizationsbeing improved by the collaboration of brings forth a positive change in thePDCN. UNICEFs satisfaction with the existing educational setup. Theexisting setup has increased the funding collaboration between Educationfor the schools as well as the number of Department and PDCN has proved to beschools for improvement up to 55. a successful one where both parties areDeputy Director Education and his staff mutually contributing towards ultimatehave been provided training by PDCN goal of improving the education systemand training modules, planning and of the country.monitoring visits are all prepared jointly.Furthermore Mother School Committeeshave been formed along with the SchoolManagement Committee (SMCs) toimprove the schools. Federal

C a s e S t u d i e s70

Azad Jamu & Kashmir

Azad Jammu and Kashmir is part of the Pakistani administeredsection of the state of Jammu and Kashmir, along with the NorthernAreas; its official name is Azad Jammu and Kashmir. It covers anarea of 13,300 km² (5,135 mi²), with its capital at Muzaffarabad,and has an estimated population of almost 4 million people. AzadKashmir is nominally autonomous, with its own elected President,Prime Minister, Legislature, and High Court. The state is divided intotwo administrative divisions which in turn are composed of eightdistricts. Azad Kashmir is cold, mountainous in the North whilst ithas a hot and subtropical climate in the southern Mirpur regions.

Area Development Organisation (ADO)--- broadening horizonsThese noble intentions of Mr. Sagheer,the CEO of ADO led to the genesis of acluster based organization which strivesfor the social and economic prosperityof the Muzaffarabad District. Establishedin 1998, by mutual collaboration ofInternational Fund for AgricultureDevelopment (IFAD) and UNDP, ADOengages people at the grass roots levelfor social and economic development.Although this organization initiallyworked only in Kaimanja Union Councilbut now its outreach has been extendedto the whole of the Muzaffarabaddistrict. ADOs sectoral area of activityincludes primary education, socialorganization, disaster relief and physicalinfrastructure development. Majordonors include National EducationFoundation (NEF) and CIDA. Keyinterventions include a micro-creditproject, link road project, vocationaltraining project, shelter home projectand primary education program.ADO has been instrumental in creationof many CBOs in the Muzaffarabad thepurpose of which is to involve the localcommunity in all spheres ofdevelopment. Education is one area thatneeds attention on an emergent basisfor there are villages in Muzaffarabaddistrict where absolutely no means ofeducation are available. ADO withassistance of NEF has launched thecommunity model schools project.Essentially this scheme was establishedwith the aim of reviving and revitalizingailing government primary schoolsthrough coordination and mobilizationof parents and community. So far, 12schools have been established indifferent union councils of Muzaffarabadwhere both girls and boys are providedquality education by teachers trained inOPF College on behalf of NEF.Both ADO and NEF jointly identify needsbased on community requirements andwillingness to adopt the project. In thistri-partite collaboration the community isresponsible for planning the location ofschool, fee structure and nomination,remuneration and monitoring of theteachers. ADO is responsible for theestablishment of the CommunityEducation Committee (CEC) whichmonitors the operational and thefinancial aspects of the project. NEF isresponsible for the timely release offunds for the school, training andmonitoring of the teachers and provisionof books/uniforms for the students. Toensure the long-term sustainability of theschools it was decided that thecommunity would be encouraged tocontribute to the project in the form ofeither savings or through education fees.ADO established a community school in2001 in Palhotar Community UnionCouncil Langar Pura, which was handedover to NEF in June 2002.This schoolfacilitated more than 150 students fromthree nearby villages Palhotar, Laya andNagar. As per the agreement, thecommunity donated land. Playing anactive role in the management of theschool the CEC meets up at least oncein a month to discuss the matters relatedto the school like attendance of students,drop-out rate, finances, oral/verbal testof students and discipline relatedmatters. Monitoring of the activities isdone collectively by ADO representativeand NEF coordinator. ADO and NEFtogether are performing a pivotal role inprovision of basic education for allthrough multiple delivery systems withspecial focus on disadvantaged

communities and girls by direct supportto schools in the form of grants andloans.This is a mutually rewardingcollaboration that brings together thekey stakeholders i.e. Federal Directorateof Education, parents, teachers, childrenand ADO for the eradication ofilliteracy. The collaboration can betermed equitable since both partnersbring something of value to thecollaboration. Government essentiallythrough funding and expertise whileADO implements and monitors theproject. Upfront it comes out as a typical“contractor- client relationship” in whichthe government has outsourced aproject to a CSO and beyond theproject there is no interaction betweenthe two players. However in this case,though the government funds, its role isfar more complex than that of a mereregulator. NEF besides regulating plays avital role along with ADO in involvingthe community to ensure sustainabilityand viability of the project.C a s e S t u d i e s74

Findings of the Study

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N SIn Pakistan's development scenario, one to replicate the model in other parts ofof the most often highlighted chasms is the country. Today the network of RSPsthe one that exists between government consist of ten organisations, whichand the civil society sector. The country's include five major RSPs and five otherhistory presents at best a mixedsimilar nonprofit organisations and havelandscape of a constructive engagement mobilised almost one million peopleof the two. However, over the last two who are members and approximatelydecades the civil society sector in72,000 Community organisations (COs)Pakistan has emerged as a significant formed for both men and women. RSPsforce in promoting social and human aim to reduce poverty and improve thedevelopment. The government has also quality of of life of rural communities bycome to the realisation that only by harnessing their potential to helppartnering with civil society can the themselves. The approach involvescountry's gigantic social concerns be mobilising communities and supportingeffectively addressed and itsthem to improve infrastructure, access todevelopment objectives adequately met. credit, raise farm productivity, andAcknowledgement of the same can be develop enterprise and their livelihood.found in various policy papers of the Some of the prime examples of RSPsGovernment of Pakistan such as the have been included in the case studiesPoverty Reduction Strategy Paper (PRSP), section highlighting the collaborationVision 2015 and Education System aspect.Reforms Program (ESR) etc. Examples ofsuccessful public-private partnerships AKDN-PCP joint effort aims at exploringand collaborations in socialthe nature and scale of thisdevelopment initiatives in otherparadigmatic shift and to 'research andcountries have also played a part in document examples of good andencouraging government-CSOmutually rewarding government-CSOcollaboration in Pakistan andcollaboration in development in Pakistan'manifesting it as a positive and tangible with a few find ways and means to fosterreality. Today, this shifting paradigm of stronger and more effectivecross-sector collaboration in Pakistan collaborations. During the course of thisowes itself to the combined effort of research which spanned over a briefboth these internal as well as external period of four months and involved thefactors.documentation, analysis and showcasing18 case studies, the followingAnother impetus to the norm ofobservations were made:Government-CSO collaboration wasprovided by the concept of Rural 1. Initial survey of governmentSupport Programmes (RSPs). This unique CSO collaboration began with aidea of RSPs, set up as hybrids with non bigger canvas keeping in view thegovernment legal status and yet verydiversity of CSOs for the purpose ofclose government involvement;identifying cross sectoremanated out of one of the mostcollaborations. The exercise couldstructured approaches to povertynot yield encouraging results as anreduction by the Aga Khan Ruraloverall response rate toSupport Programme (AKRSP)questionnaire was 5% from theimplemented in the northern areas ofgovernment and 25% from thePakistan since early eighties. TheCSOs. It could only be inferred thatresounding success of AKRSP modelthat either due to the absence ofprompted the Government of Pakistansignificant collaboration between

the two sectors, there simply wastrade unions etc though found to benot anything to report or anyengaging (some timesprevious or existing collaborationconfrontational) with each other forwere perceived by the concernedmutual co-existence but the natureparties to be insignificant in nature, of relationship vary from merescale and outcomes so as to merit engagement to co-option but notany mention.mature collaboration as such. Goodgovernment -CSO collaborations2. From the data obtained, limited were found to be mostly in serviceexamples of constructive interfacedelivery type interventions of typicalbetween the two sectors could bedevelopment NGOs in areas suchidentified. In a large percentage of as health, education, water,cases, the nature and dynamics of sanitation, physical infrastructurecross-sector collaboration appeared and the like. The conventionalto be following conventional uni-project based service delivery modedimensional lines. With most of the is probably due to the fact that, itreported collaborations manifesting has a relatively well defined process,similar patterns, mode ofresults in the most immediate andfunctioning and terms of reference, concrete outputs and the CSOsonly a few stood out as significantly involved in the process are, by theirconstructive and vibrantvery nature of operations, not acollaborations. The existing state of source of any serious threat to theaffairs may primarily be due to the government and its existing policiesreason that in an environmentand are rather complementary.where the civil society sectorgenerally considers the governmentas unresponsive, allegedly corruptGraph 4: Relationship betweenGovernment and Civil Societyand coercive and the governmentInfrastructure andFinance andfinanceregards the CSOs as disreputabletechnical22%50%and unreliable, any change in theexisting paradigm is likely to taketime. The very few credibleInfrastructure andexamples of equitabletechnicalcollaborations identified during the28%course of this study is evidence notonly of the fixed perceptions eachsector has about the other but also 4. For the last many years the civilof the somewhat pre-determinedsociety sector in Pakistan is playing aframework in which cross sectorvibrant role in advocacy for basiccollaborations occur.human rights, consumer protection,civil rights and the like. However,3. It is a known fact that the CSO from the data obtained nocontext in Pakistan encompasses a significant evidence of effectivewide realm and provides a host of collaboration of civic rightsservices to society in a variety oforganisations with the governmentareas. However, it was noted thatcould be found. Apparently, thisthe government and broader civilabsence of significant collaborationsociety such as professionalmay be attributed to both sectors.associations, media, citizensgroups, right based labour unions,C a s e S t u d i e s78

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N SOn the part of government,decision to accept the role ofCSOs that venture beyond servicethe government as that of adelivery and into advocacy andpatron becomes for the CSO,human rights tend to be perceivedthe only available choice.as being on a confrontationalcourse with the government.The quality of the consequentGovernment opinion thereforemonolithic engagementfavours welfare associations orbetween the CSO andservice providers over civil rightsgovernment is neither enablingwhich are often labelled as anti-nor asset building. In thisstate or following foreign agendasunbalanced relationship, theor fifth columnist. Whereas CSOsorganisation's involvement inacting as citizen representatives andthe planning and design of theadvocates of civil issues, do notintervention and assessmentwish to compromise theirafter its completion remainsindependence by collaborating withalmost non-existent. The statedthe government. Moreover,objectives, area of focus,organisations of this sort tend to getprocedural framework andsupport more from donor agencies.desired outcomes areThis in turn enables them to workdetermined by the governmentfreely as lobbyist for rights basedwith little or no input orcauses.participation from the CSO. Theorganisation is selected5. An analysis of the documented best primarily as a vehicle for serviceexamples as case studies hasdelivery through formalrevealed the existence of differenttendering procedures.types of cross-sector collaborationseach having its own definingOn the other hand, thecharacteristics and mode ofcustomary perception on theoperations. Details of these arepart of the government that theprovided as under:CSOs primarily aim to profitfrom government funds and5.1 Contractor-Client Relationship thus must be tightly controlledRooted in tradition thisto thwart irresponsibility,relationship is essentiallyprevents the government fromdefined as the governmentadopting any other role thanawarding grants to a CSO forthat of a regulator.the execution of an assignedtask or project activities. InThis nature of collaborationPakistan, a pervasive threat topreviously found to be quitethe sustainability of civil societywidespread, now appears to beorganisations is the lack of aon the decline. This change inconstant and steady inflow ofstatus quo owes itself to thefunds. Therefore, a CSO atchange in attitudes, perceptionstimes in its search for fundsand expectations of the twomay end up compromising itssectors. In the present study theorganisational goals andexistence of this collaborativeobjectives for ensuring financialmodel in only 17% of theviability. In these situations thedocumented case studies also

provides corroborativedevelopment initiatives comeevidence of changing strategieswith conditionality for inclusionand a desire to re-defineof CSOs in programmetraditional roles.activities. It is perhaps as aresult of this emerging5.2 Donor Driven paradigm that institutions suchRelationship:as the Pakistan PovertyEach year the governmentAlleviation Fund (PPPAF),allocates a certain percentageNational Commission forof revenue in the annualHuman Development (NCHD)budget for development relatedand Devolution Trust foractivities. These allocations areCommunity Empowermentsupplemented by the funding(DTCE) and Khushali Bank allprovided by international donorhave a strong nonagenciesand bilateralgovernmental stakeholderassistance, aimed at facilitatingcomponent in theirthe government in the executionprogrammes.of its development initiatives.However, in recent yearsAs for CSOs, this donor driveinternational donors andacts as an impetus forfunding agencies have adoptedcollaboration with thepolicies that ask forgovernment in two distinct ways.collaborations with civil societyLarge CSOs aspire to becomeorganisations. This is in lineimplementers for programmeswith their role of promoting theled by development supportcivil society sector as anagencies and bilateral or multiimplementingpartner inlateral donors, for these projectscommunity based developmentallow CSOs to charge costs,projects and is based on theiroverheads, salaries asacknowledgement of this sectorsubcontractors. Whereas, CSOsas an effective partner in socialthat are relatively new players indevelopment.the game are aware thatsuccessful collaboration with theOver the last decadegovernment can act as a veryorganisations such as the Worldgood reference, therebyBank, UNDP, DFID and USAIDenabling them to seek directappear committed tofunding from national andinstitutionalising linkagesinternational donors sometimebetween the government andin the future. For them acivil society organisations. Forsuccessful collaboration with thethis reason their Countrygovernment paves the way for aAssistance Strategy (CAS)fruitful partnership with andocuments particularly refer tointernational donorthe inclusion of and interfaceorganisation.with the civil society sector forall development relatedIn the given study, this type ofinitiatives. Today, funds given tocross-sector collaboration wasthe government by these andfound to be prevalent in 17% ofother similar agencies forthe documented case studies.C a s e S t u d i e s80

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N Sfirmly entrenched local roots,5.3 Marriage of Convenience indigenous knowledge, both inTriggered by common goals,depth as well as wide spreadthis essentially symbioticaccess to communities, socialrelationship is based on anmobilization skills, ability toacknowledgement on the partaddress age old problems inof both the CSOs and theinnovative ways, informationgovernment of each others rolebase about recentin national development; andevelopments, latest trends andappreciation of each othersnew research in the concernedstrengths and a mutual respectarea of focus, regular andfor each others indispensability.rigorous monitoringThe defining feature of thismechanisms andcooperative collaboration is adocumentation and recordpooling of institutionalkeeping abilities.knowledge, resources(financial, technical andIn this collaboration both partieshuman) and expertise by theare fully cognizant of thetwo parties.benefits that such acollaboration accrues to eachTypically, in such cross-sectorother. The government realizescollaboration the interest of thethat collaboration with CSOsgovernment in collaboratingwill lead to the utilization of itswith the CSOs lies in the factresources both financial as wellthat involvement of the localas technical in a far better andcommunity plays a defining rolemore cost effective manner.in ensuring successful executionWhereas, a CSO is aware ofas well as sustainability of anthe vital role that collaborationintervention. Whereas, for thewith the government can play inCSOs collaborating with theits struggle for legitimacy, socialgovernment guarantees easierrecognition and wide scaleaccess to government relatedacceptability of its activities. Insupport services whichthe present study in 65% of thefacilitates them in the successfuldocumented case studies, thisimplementation of locallycooperative collaborationneeded social services.appeared to be guiding themode of operations.In such a scenario thegovernment measures its 6. A review of the prevailing rate of theengagement with the CSO indifferent types of cross sectorterms of grant in aid, amenitycollaborations mentioned aboveplots, land on lease, andindicates a distinctive change in thecontribution to endowmenttraditional roles that have definedfund, logistical support,cross-sector collaborations inpermission to work in a certain Pakistan's social developmentarea (for instance, prisons,scenario.schools, hospitals) or greatertechnical support. Whereas, a Initial inroads made in this largelyCSO brings to the table itsun-chartered territory were

characterised by either unbalanced heights of cross-sector engagement,collaborations with one partyonly 1% of the cases in the presentplaying a dominating role over the study provided evidence of aother or with extrinsic rather thanrelationship where the two partiesintrinsic, need based factors playing were jointly involved in policya major role in initiatingformulation. However, here this lowcollaborations. However, what isprevalence rate should not becoming forward now is aattributed primarily to an initialburgeoning willingness for jointreluctance on the part ofventures. This is largely based ongovernment to open doors to thethe realisation that for the mutualcivil sector. Rather, it should also bebenefit of the concerned partners as kept in mind that the process ofwell as for ensuring that people are policy input lies at the higher end ofbetter provided for, finding common social development processes.grounds and compatible ways ofTherefore, only those civil societyworking are an absolute essential. organisations can effectivelyAt present the dynamics of thiscontribute in this process which haveemergent trend appear to bereached the level of professionalgoverned by an aspiration ofmaturity, which enables them to givesustainable social development insound intellectual input in thethe country with a focus on mutually process.rewarding consequences,avoidance of potential areas ofThis occurrence of strategicconflict and desire for enhancedgovernment-CSO collaborationcredibility in the eyes of the other.although at present quite limitedshould be viewed in the context of7. Although, policy formulation is an expressed willingness on the partessentially the prerogative of theof the government to involve CSOsgovernment; input in its formulation in policy dialogue and theis the right of all concernedincreasing ability of the CSOs forstakeholders. Civil societyusing their variant practicalorganisations with their localexperiences for viable input andindigenous knowledge can play afeasible suggestions in policycritical role in getting the voice ofdevelopment.the people heard in the higherforums of policy formulation. 8. During the course of this study, itWhereas, at the same timebecame apparent thatinvolvement of the civic sector in the GovernmentCSO collaborationsprocess, provides the governmentexist on a spectrum with one endassurance that its policy framework marked with a uni-dimensionalreflects the aspirations of the people approach focused on time boundand responds to their needs, which hard core delivery projects and thewill in turn ensure a greater degree other characterised by collaborationof compliance at the time of itsin policy and planning occurring inimplementation.an atmosphere of equity,transparency and mutual harmony. ItIn spite of the obvious significance was also noted that a CSO canof such a collaboration and the fact have varying types of collaborationthat it appears to be scaling the very with the government at differentC a s e S t u d i e s82

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N Spoints during its life cycle.success of collaboration were thesame across the board.In as much as a successfulcollaboration is determined in terms The challenges reported to be facedof, 'getting the work done' theby CSOs during their interface withdifferent modes of engagementthe government essentially consistedreviewed in the course of this study of:will have to be consideredsuccessful for they have all a) Continued involvement of thesucceeded in achieving thegovernment in all stages of anspecified objectives, meeting theundertaken intervention istargets and completing theessential for makingconcerned project interventions oncollaboration successful.time. However, a distinct shift inHowever, in any joint venturetrends towards a symbiotic co-the government officialsexistence is evidence enough that adesignated with the task oftruly successful collaboration ismaintaining close and constantconsidered to be one that iscontact with the concernedcharacterised by, sharing ofCSO is generally so overloadedknowledge and relevantwith other work that thisinformation, pooling of resources,collaboration with the CSO failsintroduction of mechanisms forto get either due importance orinstitutionalising closer coordinationthe required level of priority.between the two, inclusion in policydialogue and exploration ofThe communication gapspossible avenues for jointbetween the two sectors arecollaboration for continued andfurther widened when in linesustainable social development andwith government traditions thecitizen empowerment.designated government officialinteracting with a CSO is9. An analysis of the documented case transferred. In such cases,studies reveal that collaborativethe delay in appointment for theendeavours exist between differentvacant post and the timetypes of CSOs on one hand andneeded to orient the new persondifferent levels ofwith the dynamics ofgovernmentdistrict, provincial andcollaboration greatly hinders thefederal, on the other. Thissmoothness of the process. Ininteraction between a certain type this respect, theof CSO and a certain level ofreplacement of a progovernmentis determineddevelopment governmentprincipally by the nature,official by one who is scepticalgeographic focus and objectives ofof the role of CSOs in sociala certain intervention. During thedevelopment creates anothercourse of the study it was observedhurdle.that, in spite of the inherentdifferences in the type, nature and b) Policy framing is the job as wellscope of these cross-sectoras the privilege of government.engagements the issues voiced asHowever, any sudden changeshaving a detrimental effect on thein policy framework especially in

events when the concernedcollaboration which apparentlyCivil Society sector is neitherbegins on a high note of closeinvolved nor informed aboutinteraction soon fizzles away.the same can seriouslyThe result is a situation wherejeopardize any ongoing cross-the interactions between the twosector collaborations. More so,sectors are few and far betweensince in accordance with newwith the government gleaningdevelopments the CSOs haveits share of information aboutto re-plan their activities andthe project from the materialre-design their strategy thatprovided by the CSOs on anrequires time as well asinfrequent basis.resources. Besides this, since ina cross- sector engagement it is b) CSOs play an important role inthe CSOs that engage with thecreating awareness in thecommunity, any changes incommunity about differentpolicy may also alter theissues. However, in most casescommitments made by thethese organisations overCSOs with the communityemphasize the issue.members. This besides creatingConsequently, the issue ends upunpleasantness may also proveattracting far more attentiondetrimental to the long termthan it actually deserves. This atcredibility of a CSO.times results in arousing thecommunities on ac) In collaborations marked with confrontational course with thethe government acting as thegovernment.financer, delay in the release ofinstalment of funds is aThis exploratory study while confirmingrecurrent problem. The lengthy, the need for strong and effectivecumbersome, time consuming, collaborative arrangements betweencomplicated bureaucratic government and civil societyprocedures make it quiteorganisations, also highlight issues anddifficult for the CSOs to access challenges involved. It is hoped that onthe available financial resource one hand showcasing these inspiringin time. This creates great examples of collaborations willfinancial burden for the CSOs encourage others to follow suit and onsince they have to ensure timely the other it will generate discourse andexecution of the undertaken debate amongst stakeholders on how tointervention.foster the collaborative spirit and furtherimprove the existing collaborationsThe government on the other hand stronger and more effective.was found to have the followingreservations:a) There is an absence ofcontinued effort on the part ofCSOs to keep the concernedgovernment officials involvedduring different stages of aproject's implementation. TheC a s e S t u d i e s84

Annextures

Research Matrix for AKDN 's Civil Society ProgrammeActivity Sub Activity Target Groups Research Tools Output Assumptions and RisksIdentifying theLetter to EDO (CD) all List of Govt. CSO Low response of Governmentcollaborations between Government Pakistancollaboration OfficialsGovt. and CSOthroughout PakistanTo identify good andmutually rewardingcollaboration fordevelopment ofPakistanDocumentation ofthe entireinformationsIdentification ofIndicators that definestrong and effectivecollaborationDevelop QuestionairesSelection of sampleData CollectionRecording observationsCivil SocietyOrganizationsGovernmentCivil SocietyOrganizationsGovernmentCivil SocietyOrganizationsstratifiedrandomsamplingGovernmentCSOsNPOs applied forcertification to PCPNPO networksEarthquakeReconstruction andRehabilitation Authority(ERRA)Analysis ofInternational modelsFlag a few questionson various websiteslike PCP, Gateway,Net NGOsMeeting with NPOs ornetwork of NPOshaving partnersexercising Govt. CSOcollaborationMeetings anddiscussion based onthe list of indicatorsReview of Questionairefrom any developmentprofessionalSample selectedQuestionaire throughInterviewsQuestionaire throughFGDsList of indicators foreffective Governmentand CSOcollaborationQuestionaire forGovernment OfficialsQuestionaire for CivilSociety OrganizationsMaterial for casestudiesMaterial for casestudiesDraft of case studiesFinal write up Editorial work Finalized case studiesLow response from CSOsLow respose from theGovernmentIncompatibility withinternational modelsUnwillingness of NGOs to usetheir websitesUnrepresentative of all theprovincesBad weather, Difficult accessto remote areas of AJK andNorthern AreasUnavailability of concernedpersonsC a s e S t u d i e s86

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N SPakistan Centre for PhilanthropyJanuary 26, 2007AKDN-CSP-4.1Proforma for Govt.-CSO Collaborations1. Name of respondent: ______________________, Date filled: ________________Designation: _____________________,Department: _____________________Organisation: ______________________________2. Title/ name of the collaboration activity: _____________________________________________3. Name of the collaborating Partners (with name)_____________________________________________________________________________________________________________________________________________________________________________________________________________________4. Need for collaboration_____________________________________________________________________________________________________________________________________________________________________________________________________________________5. Objectives of the collaboration_____________________________________________________________________________________________________________________________________________________________________________________________________________________6. Collaboration initiated by: (please tick) Govt. / CSO/ Beneficiary Community7. Terms of Partnership/ collaboration signed: (please tick) Yes/ No (if yes, please attach a copy)8. Duration of the activity (months): Planned _________ Actual __________Time frame: From _____________ To _______________9. Financial resources involved (Rs.) Planned/ committed Actual/ recievedGovt. _______ _______CSO _______ _______Beneficiaries _______ _______TOTAL _______ _______10. Geographical Coverage: (please tick) village/ UC/ tehsil/ district/ province/ country11. List down all locations (District wise)1) __________________ 2) __________________ 3) __________________4) __________________ 4) ___________________ 6) ___________________

12. No. of direct beneficiaries: Males ______ Females ______ Total ________13. No. of beneficiary households ________14. Type of partnership: (please tick) equal partners/ contributing partners/ contractor/ sub-contractor15. Involvement of CSOs and beneficiaries in: CSO BeneficiariesPlanning______________Implementation ______________Post completion/ Maintenance______________Monitoring______________Evaluation______________16. Reporting mechanism:Progress: (please tick) monthly/ bi-monthly/ quarterly/ six monthly/ annuallyFinancial: (please tick) monthly/ bi-monthly/ quarterly/ six monthly/ annually(please attach reporting formats if any)17. Targets:Planned: ___________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________Achieved: ___________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________18. Any litigation involved: (please tick) Yes/No (if yes, give details)19. Relevant project officer in Govt: (Name and designation) ________________________20. Relevant project officer in CSO: (Name and designation) ________________________(Signature of respondent)C a s e S t u d i e s88

C O L L A B O R AT I O N B E T W E E N G O V E R N M E N T A N D C I V I L S O C I E T Y O R G A N I S AT I O N SAnnex IIIShort-listed organisations for field survey and interviews1. Participatory Integrated Development Society (PIDS)2. Society for Empowering Human Resources (SEHR)3. Society for Community Support for Primary Education in Baluchistan (SCSPEB)4. HANDS5. Indus Resource Centre (IRC)6. ISRA Islamic Foundation (IIF)7. Marie Stopes Society Pakistan (MSS)8. Environment Protection Society (EPS)9. Pakistan Village Development Programme (PVDP)10. Family Planning Association of Pakistan (FPAP)11. Ghazi Barotha Taraqiati Idara (ITA)12. Idara Taleem o Aagahi (ITA)13. Punjab Rural Support Programme (PRSP)14. Aga Khan Rural Support Programme (AKRSP)15. Karakorum Area Development Organisation (KADO)16. Marafie Foundation (MF)17. Local Support Organization (LSO) Danyore Gilgit18. Professional Development Centre North (PDCN)19. Area Development Organisation (ADO)20. Mountain and Glacier Protection Organisation (MGPO)21. Cooperation for Advancement Rehabilitation and Education (CARE)22. Sudhaar23. Sindh Rural Support Organisation (SRSO)24. National Rural Support Organisation (NRSP)25. Balochistan Rural Support Organisation (BRSP)

C a s e S t u d i e s90

About the CentreIt is this vision of a galaxy of eminent citizens of the country, now onthe Board of the Centre, which helped established this onlyinfrastructure organisation dedicated to the cause of philanthropypromotion. Pakistan Centre for Philanthropy (PCP) emanated out ofan original research on philanthropy and is an outcome ofrecommendations of 'International Indigenous PhilanthropyConference of 2000'; attended by His Highness the Aga Khan andPresident Musharaff, who supported the idea of fostering an enablingenvironment for civil society and creation of PCP to promotestructured and strategic approach to enhancing philanthropy forsocial development.PCP is an independent nonprofit support organisation with a missionto promote the volume and effectiveness of philanthropy for socialdevelopment in Pakistan. The Centre is licensed under section 42 ofthe Companies ordinance 1984.Instead of getting into the direct service delivery mode or makingdonations, PCP being a support and facilitative organization, seeksto facilitate altruistic efforts of others i.e national and internationaldonors (individual, corporate & diaspora) by establishing effectivelinkages between the donors and nonprofit organisations (NPOs).This requires bridging the information and credibility gap that existsin the sector and is often a major impediment in the promotion ofphilanthropy. In line with the vision and mission and to achieve theobjectives, PCP has designed innovative programmes (i) standardsetting Nonprofit Organisation Certification (ii) Philanthropy SupportServices: mobilizing corporate philanthropy for education underPublic Private Partnerships (3Ps) and an online web baseddevelopment market place Philanthropy Portal (2P) Give2Pakistan (iii)expanding the philanthropy knowledge through evidence basedResearch and (iv) Communication and Advocacy to enhance societalunderstanding of philanthropy and development.

Pakistan Centrefor Philanthropy1-A, St 14, F-8/3IslamabadTel: (9251) 2855903-4, 2855078-9Fax: (9251) 2855069Email: mail@pcp.org.pkWebsite: www.pcp.org.pk