Power Behind the Scenes

By Tuba Khan

Informal networks represent an extremely important yet widely ignored aspect of governance, especially within developing nations whose formal administrative apparatus is either weak or disputed. Informal institutions refer to uncodified norms and traditions that influence decision-making processes in ways beyond the reach of legal processes. As far as the informal networks are concerned, they can include networks of patronage, kinship and alliances based on personal connections. In countries with hybrid governance structures such as Pakistan where formalized democratic mechanisms co-exist with informal structures, a clear distinction between formal institutions from informal institutions must be made for effective governance.

In Pakistan, informal networks do not exist in parallel with institutionalized structures of governance; they actually become the central point around which power operates. Despite having formal governmental structures intact, the informal networks become quite important and influential. There exists a high level of interaction between political, military, bureaucratic and commercial elites.

The origins of the informal networks in Pakistan’s governance system are rooted in the colonial era when the governance system of the British was based mainly on the principles of indirect governance. Alongside formal institutionalized structures of governance, the colonial rulers gave powers to local intermediaries in the form of local landlords, tribal chieftains and other local power-brokers. This led to the development of patronage systems and kinship power, which were based on caste and biradari relations.

Since its inception in 1947, Pakistan has experienced a very weak governance system. In the absence of stable and fully consolidated democratic institutions, the informal networks took on greater importance in political activities. These informal networks were strengthened by the repeated involvement of the powerful actors in political matters. The periods of outright military takeover or indirect control through civilian regimes cemented a structure where important decisions were frequently taken without recourse to institutionalized processes. The military, along with bureaucrats and politicians, established networks that could affect the policy agenda, political succession and even national interests. Resultantly, this trend continued to blur the lines between formal and informal authority.

Islamization strategies of the 1970s and 1980s further broadened the informal networks by involving religious figures in the politics of Pakistan. Religious leaders can trigger religious sentiments and thus influence public opinion according to the needs of influential networks. So, in many cases, the government depended on the clergy and their organizations to mobilize mass support, which gave rise to interchanges of mutual benefits between religious and political authorities. Since the 1990s, liberalization in the economy and growth of the media industry have introduced new players into informal networks.

Informal networks have several mechanisms within Pakistan through which they exercise their authority. Patronage stands out as one such mechanism where rewards and resources, such as employment opportunities within the public sector, campaign financing and even electoral loyalty are offered in exchange for support. On the other hand, back-channel negotiations conducted outside formal channels, such as Parliament and cabinet meetings, are vital in influencing the decision-making process of the state. Furthermore, elites are capable of hijacking policy-making processes and diverting resources in ways beneficial to themselves. Additionally, the media often mobilize people and give political power some form of moral legitimacy through propaganda.

There are many implications of the existence of informal networks on the efficiency of the governance process. One of the major impacts is the undermining of formal institutional structures and electoral practices. Checks and balances, as well as the legislative process itself are often ignored or used solely for show purposes, while the real process of decision-making is handled through the use of private contacts and backdoor diplomacy. Another important implication is that the culture of corruption and inefficiency continues to persist. Patronage-driven systems tend to give preference to loyalty as opposed to competence, which leads to the appointment of people and the distribution of resources in a manner that is unrelated to development and the needs of the people at large. Policies tend to be revised according to changes in the interests of those in positions of authority, ultimately hindering the way to stability.

To counter the effects of informal networks in Pakistan, the gradual development of formal institutions needs to take place instead of abruptly altering the current political environment. The starting point for designing a reform package is to redefine the role of the state. It is critical to ensure institutional independence, transparency of decision-making processes, meritocracy, citizen participation, press freedom and the accountability for the excessive influence of religious and economic elites to decrease dependence on informal institutions.

Prevalence of informal political institutions in Pakistan causes several problems for the country’s political system. Formal institutions are often sidelined or rendered symbolic, leading to policy inconsistency and the undermining of democratic accountability. Nevertheless, the existence of informal groups is entrenched in the system and cannot be completely eliminated, their impact can be progressively restricted. This serves as an indication that reforms should be incremental and continuous