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Title: Daniyal Aziz


1
RECURRENT BUDGETS AND INSTITUTIONAL CHANGE
by Daniyal Aziz GINI, Islamabad-Pakistan
2
PRESENTATION SEQUENCE
  • SURVEY OF THEORIES ON MONEY MOTIVATION
  • ELEMENTS OF THE NEW INSTITUTIONAL ECONOMICS
  • THE TRANSPLANT EFFECT
  • ORIGINS OF SALARY DETERMINATION
  • HISTORICAL EVOLUTION OF SALARY STRUCTURE OF
    PUBLIC EMPLOYEES IN SUBCONTINENT / PAKISTAN
  • GRAPHS
  • REAL VALUE OF SALARIES 1972-2006
  • COMPARISON OF SALARIES FROM 1914 to 2006 OF
    VARIOUS REMUNERATION PACKAGES

3
PRESENTATION SEQUENCE
  • INTRODUCTION OF SPECIAL GRADES, MULTIPLE
    ALLOWANCES, PERQUISITES AND PAY PACKAGES
  • WORLD BANK OBSERVATIONS ON SALARY AND CORRUPTION
  • A NEW APPROACH
  • THOUGHTS ON COUNTRY ASSISTANCE STRATEGIES

4
SURVEY OF THEORIES ON MONEY MOTIVATION
5
SURVEY OF THEORIES ON MONEY MOTIVATION
  • Traditional wage theory regards maximization of
    profit as the goal of all individuals and measure
    motivation in terms of wages / salaries
  • This is too simple an explanation and salary
    structure of an organization cannot be based on
    this naïve assumption
  • F.W. Taylors motivational theory which became
    known as scientific management found that
    material rewards were closely related to work
    efforts. He and his associates had little doubt
    that once the best working procedure was taught
    to the worker and his pay was tied to his output,
    maximum effort would be available
  • Hawthorns experiments on the first time brought
    forward the importance of non-economic rewards
    and social determinants of output

6
SURVEY OF THEORIES OF MONEY MOTIVATION
  • Max Weber realized the importance of salaries
    but in his construct the chief instrument to
    induce people to work for the organization was
    the concept of authority legitimized by the value
    system of the organization
  • Chester I. Barnard considered material rewards,
    wages / promotion as a basic factor in
    motivating individuals to work for the
    organization
  • Chris Argyris places an emphasis on
    self-actualization as the primary element in
    motivation
  • Amitai Etzioni has formulated typology of
    organization based on the kind of compliance they
    require which are
  • (1) utilitarian, (2) coercive, and (3) normative
  • Remuneration is the major means of control in
    utilitarian organization particularly for the
    blue-collar workers. White- collar workers are
    predominantly controlled by remuneration means,
    but less so than blue-collar workers

7
SURVEY OF THEORIES OF MONEY MOTIVATION
  • Normative controls play an important role
  • Rensis Likert suggests that motivation can be
    fostered by modifying the structure of the
    organization. Instead of hierarchical relations,
    he suggests supportive relationships.
    Hierarchical decision-making is replaced by group
    decision-making
  • Daniel Katz distinguishes between intrinsic
    incentives, such as nature of job and
    internalization of goals, and external rewards,
    such as salary and promotion etc. Emphasis that
    money incentive primarily attract people into
    organizations rather than energizing them toward
    organizational goals once they are in the system.
  • Fred Munson endorses this theory by observing no
    doubt, people work for money, but it does not
    follow that they would work harder for more money

8
SURVEY OF THEORIES OF MONEY MOTIVATION
  • Taking queue from the same theory developed the
    theory of comprehensive Hierarchy of Needs from
    the physiological and safety needs to the
    psychological needs of belonging, esteem
    self-fulfillment
  • Growing tendency among the writers in the area of
    organizational theory to down-grade the
    importance of money as an incentive
  • R. Doberstein observes that the money incentives
    do not fulfil the needs of the whole man which go
    much beyond the elemental needs
  • Harold E. Roth enumerates such other determinants
    of motivation as size of the work group, inherent
    nature of the job and length of time involved
    besides financial attraction
  • Dale S. Beech describes the disillusionment with
    the wage incentive, but suggests there is hardly
    any other alternative which does not have its
    faults

9
SURVEY OF THEORIES OF MONEY MOTIVATION
  • Herzbergs theory of motivation has been an
    important influence on thinking on the subject.
    Distinguishes between two types of factors (1)
    Satisfiers factors directly concerned with the
    job and (2) Hygiene factors concerned only
    with the setting of the context of the job. Among
    former are included recognition, achievement,
    nature of work, while in the later are included
    salary, status, working conditions etc.
  • Whether a particular type of incentive is more
    important or less, is to be decided by the
    organization but an overall incentive system is
    central to the organizational activity. It may,
    however, be pointed out that the present wage
    theory hardly touches the problem of pay
    determination. It may provide some guidelines for
    the pay determination at the entry levels. It
    does not provide any basis for building the
    internal pay structure. Neglects important
    factors as security of tenure, prestige and
    status. In short, pay determination tends to
    remain a process of muddling through

10
ELEMENTS OF THE NEW INSTITUTIONAL ECONOMICS
11
ELEMENTS OF THE NEW INSTITUTIONAL ECONOMICS
  • The New Institutional Economics through path
    dependency theorem establishes the critical
    importance of change over time.
  • Advances in credible commitments and incentives
    (e.g. cash) promote that pricing and
    administration of incentives is critical to
    alternative contract enforcement or behavior
    modification (Oliver Williamson).
  • Also, the institutions regulating transactions
    set the rules of the game as referees, rather
    than players and therefore, occupy a higher
    importance.
  • Critically, that institutions consist of formal
    and informal rules (culture) and that formal
    rules can be easily changed but informal rules
    change slowly, incrementally on the basis of
    incentives (positive or negative) over time
    (North).

12
THE TRANSPLANT EFFECT
BY Daniel Berkowitz, Department of Economics,
University of Pittsburgh, Pittsburgh, PA, USA,
And Davidson Institute, University of
Michigan Katharina Pistor, Kennedy School of
Government, Harvard University, Cambridge,
MA Jean-Francois Richard, Department of
Economics, University of Pittsburgh, Pittsburgh,
PA, USA January 2001
13
THE TRANSPLANT EFFECT
  • In post-colonial societies the institutional
    construct of relations between the formal and
    informal nature of institutions is more complex
    due to what is called The Transplant Effect
    (Berkowitz, Pistor, Richard, 2001) (legal and
    administrative systems that are imported and
    grafted on a native population).
  • In this type of historical context, incentives
    could require premiums (added incentives)
    associated with inducing a pure adoption of the
    formal (foreign) as it is more deviant from the
    informal (local custom/culture).

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ORIGINS OF SALARY DETERMINATION
REFORMS OF CORNWALLIS
27
SOME QUOTES
Reforms of Cornwallis
The Resident, although not regularly
invested with any power, enjoyed the almost
absolute government of the country without
control. His emoluments, besides the thousand
rupee per month allowed him by the Company,
certainly amounted to little less than four lacs
a year, exclusive of the complete monopoly of the
whole commerce of the country..
Duncan, however, had to be content with a fixed
salary of Rs. 5,000 a month and to forego the
irregular emoluments of his predecessor.
28
Some Quotes
Reforms of Cornwallis
The wretched policy of the Company has
invariably driven all their servants to the
alternative of starving or of taking what was not
their own. I shall never think it a wise
measure in in this country to place men in great
and responsible situations, where the prosperity
of our affairs must depend on their exertions as
well as integrity, without giving them the means,
in a number of years, of acquiring honestly and
openly a moderate fortune..
29
Some Quotes
Reforms of Cornwallis
.and salaries alone were paid, but at generous
rates, so that Collectors drew Rs. 2,000-4,000 a
month. The Directors were not inclined to
approve, believing that in the demoralising
atmosphere of India the Companys servants,
however, well paid, would make money dishonestly.
Cornwallis trenchantly observed It is maxim
that no Government can command honest services,
and that pay our servants as we please they will
equally cheat, the sooner we leave this country
the better. I am sure under that supposition I
can be of no use, and my salary is so much thrown
away.
30
Some Quotes
Reforms of Cornwallis
Collectors were drawing Rs.1,200 a month when
Cornwallis took office. He raised this to
Rs.1,500. . gaudy dreams of sudden-acquired
wealth that for twenty-five years had dazzled
the Companys servants, and their replacement by
patient expectations of growing fortunes.
Corruption in various forms lingered on for many
years, but it ceased to be so widespread, blatant
and generally accepted as a necessary evil.
Cornwallis himself believed that his efforts to
persuade the Companys servants to be more
economical in their mode of living, and to look
forward to a moderate competency were not in
vain but, he added, if all chance of saving any
money and returning to England, without acting
dishonestly, is removed, there will be an end to
my reformation.
31
HISTORICAL EVOLUTION OF SALARY STRUCTURE OF
PUBLIC EMPLOYEES IN THE SUBCONTINENT/PAKISTAN
HISTORICAL PERSPECTIVE
32
HISTORICAL EVOLUTION OF SALARY STRUCTURE
Atchison Commission in 1886
  • First large scale probe into service matters.
    Recommended determination of salaries on the
    following principles-
  • Salary of persons engaged on work of equal
    importance and degree of responsibility could be
    paid differently on the basis of source of
    recruitment foreign - local
  • Different scales of pay can be fixed for even
    locally recruited persons in India based on
    varied conditions obtaining in different
    provinces
  • Based on the above principles number of grades of
    pay for each post were established, e.g.,
    District and Sessions Judge, 5 grades DC 4-7
    SP/ASP 3-5 technical and other services 1-3 and
    so on
  • System remained in place till 1920

33
HISTORICAL EVOLUTION OF SALARY STRUCTURE
Islington Commission in 1912-15 (Report delayed
till 1919)
  • Recommended
  • pay so much and so much only to have recruits of
    right stamp and to maintain them in a degree of
    comfort and dignity.
  • Could not fully remove difference of pay on the
    basis of source of recruitment
  • Instead of multiple grades system of pay
    recommended introduction of system of Pay Scales
    having Min-Max, annual fixed increment and
    Efficiency Bars (EB)

34
HISTORICAL EVOLUTION OF SALARY STRUCTURE
1920-23 Post War Period
  • Post war period saw 10 cut in salaries for four
    years consecutively to meet the challenges of
    economic crunch

1924
  • New Pay Scales introduced fixing salary on
    service/function classification
  • Major services formed each one having further
    functional / departmental classification
  • Rate of salaries on the basis of year of
    service
  • Each post had basic pay which increased annually,
    lower Selection/Higher Grades reached after
    around 20 to 25 years of service

35
HISTORICAL EVOLUTION OF SALARY STRUCTURE
1931
  • Economic slump pay scales reduced by 20 in the
    Minimum and almost 30 in Maximum
  • ICS and certain other services allowed to retain
    in the existing scales

1933
  • Retrenchment Committee for the Reduction of Pay
    made recommendations for new Time Scales for
    various services
  • The Senior Scales different on the basis of
    posting. SP ordinary district Rs. 750 while SP
    Multan, Ferozepur, Sialkot etc in scale of Rs.
    1,000-1,200. Commissioner of Lahore and Amritsar
    Rs. 1,500 etc.
  • Class-II services in Edu, Agri, Vet, Med, Eng,
    and Coopr. etc. grouped together for purposes of
    salary

36
HISTORICAL EVOLUTION OF SALARY STRUCTURE
1933
  • Cadre having 100 or more posts had Prize Posts
    equivalent to 5 of the Cadre which carried
    selection grades higher than ordinary grades.
  • Two EBs introduced in each scale one near the
    commencement of service and the other at
    approximately the 18th year of service

2nd World War
  • Major diversion of consumer goods from civilian
    to military uses and Bengal famine had a most
    disturbing effect on the fixed income group
    particularly government servants
  • Government devised ad-hoc scales and provided
    War Allowance to its employees
  • New unified scale for clerical establishment

37
HISTORICAL EVOLUTION OF SALARY STRUCTURE
2nd World War
  • Govts of Punjab and Sind made wholesale upward
    revision of pay scales, but their employees
    condition did not improve which resulted in award
    of Grain Allowance and Dearness Allowance in
    1940, 1942 and 1944 without change in the pay
    structure

1946-47
  • Salaries of public employees continued downward
    slide. Central Pay Commission 1946 under Sir
    Srinivasa established
  • Commission expressed reservation on the
    Islingtons principle of payment of so much as
    was necessary and laid down criterion of payment
    of not less than minimum wage and also taking
    into account qualification, training of the
    individual and responsibilities of the job

38
HISTORICAL EVOLUTION OF SALARY STRUCTURE
1946-47
  • Report of the Commission came prior to partition.
    Government of India accepted the report.
    Government of Pakistan did not accept it on
    account of radically changed ground realities and
    smaller economic base

1947-49
  • In 1948 Pay Commission established under Mr.
    Justice M. Munir determined the following broad
    principles-
  • inherited pay scales of higher posts were
    un-justifiably high
  • the country was left with very small tax base and
    had to keep the non-development expenditure at
    the minimum possible level

39
HISTORICAL EVOLUTION OF SALARY STRUCTURE
  • the living standard of low-paid employees was to
    be raised
  • the State need not offer such salaries as would
    attract the best available material
    the correct place for our men of genius was in
    private enterprise
  • Prices would soon come down

1947-48
  • The Commission divided public employees into 30
    broad categories suggested as many standard
    scales introduced from January, 1949
  • Main feature was reduction in the salaries of all
    categories of employees

40
HISTORICAL EVOLUTION OF SALARY STRUCTURE
1959-62 - Justice A.R. Cornelius
  • Proposed new 7 tier structure for the services
    with 3-5 grades of pay under each group
  • Neither the Service Structure nor the Pay Code
    recommended by the Commission was accepted
  • 1949 Prescribed Scales of Pay nonetheless
    replaced by Revised Prescribed Scales of Pay in
    1962 to offset ever- increasing inflationary
    pressures
  • 1969 Ad-hoc relief sanctioned to all
    non-gazetted employees, _at_ 10, 15 and 20 of pay

41
HISTORICAL EVOLUTION OF SALARY STRUCTURE
1972 - Mr. Mumtaz Hassan
  • Rise in prices continued
  • CPI rose by 30 since last raise in salaries
  • Introduced 22 National Pay Scales covering all
    Federal and Provincial employees as against 622
    pre-reform pay grades which were adjusted as
    under-

42
HISTORICAL EVOLUTION OF SALARY STRUCTURE
1972 Mr. Mumtaz Hassan
  • Creation of new scales, addition and alteration
    in the scales banned, and selection grades,
    special/technical pays abolished.
  • Anomalies
  • Insufficiency and inadequacy became apparent soon
    after the launching of the scheme
  • Year 1972 began with serious inflationary
    pressure, devaluation, floods, monetary
    expansion, use of oil as weapon and consequent
    price spiral aggravated the situation
  • Instead of addressing congenital defects of the
    scheme, government started tampering with the
    scheme
  • Five (5) advance increments sanctioned for
    engineers, doctors and lecturers. Dearness
    allowance sanctioned during 1973, 1974 and 1975
    to supplement the income of public employees

43
HISTORICAL EVOLUTION OF SALARY STRUCTURE
  • Anomalies
  • Sanctioning successive allowances made the first
    7 to 8 scales redundant
  • Lumping of various positions in one of the 22
    scales posed problems in maintenances of
    hierarchies and overlapping of scales brought out
    structural deficiencies
  • Overlapping generated equal pay for different
    posts which is against the principle of wages
    according to responsibilities

44
HISTORICAL EVOLUTION OF SALARY STRUCTURE
Post-1972
  • Seven Pay Commissions / Committees formed and
    salaries revised nine times without any
    structural changes but mainly to offset the
    inflation and check erosion of the real value
  • Despite nominal increase of wages, real value of
    the wages have gone down substantially
  • The wages have been supplemented indirectly
    through introduction of special scales grades,
    perks privileges and allowances etc. for
    certain jobs positions and organization which are
    more of discriminatory and have generated
    disparities and variations in the compensation
    package of various classes of public employees in
    Pakistan.

45
GRAPHS COMPARISON OF SALARY FROM 1914 TO
2006 REAL VALUE OF SALARIES 1972-2006
46
REAL VALUE OF SALARIES 1972-2006
47
REAL VALUE OF SALARIES 1972-2006
48
GRAPHS COMPARISON OF SALARY FROM 1914 TO
2006 COMPARISON OF VARIOUS SALARIES FROM 1914
to 2006 OF
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COMPARISON OF SALARY FROM 1914 TO 2006
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COMPARISON OF SALARY FROM 1914 TO 2006
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COMPARISON OF SALARY FROM 1914 TO 2006
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COMPARISON OF SALARY FROM 1914 TO 2006
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COMPARISON OF SALARY FROM 1914 TO 2006
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COMPARISON OF SALARY FROM 1914 TO 2006
55
COMPARISON OF SALARY FROM 1914 TO 2006
56
COMPARISON OF SALARY FROM 1914 TO 2006
57
GRAPHS REMUNERATION PACKAGES
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INTRODUCTION OF SPECIAL GRADES, MULTIPLE
ALLOWANCES, PERQUISITES AND PAY PACKAGES
60
INTRODUCTION OF SPECIAL GRADES, MULTIPLE
ALLOWANCES, PERQUISITES AND PAY PACKAGES
  • Negated fundamental rationality affected the
    National Pay Scales 1972 as under-
  • Created income disparities between various groups
    of employees.
  • Brought out the insufficiency and adequacy of the
    scheme to meet the requirements of a whole range
    of public administration.
  • Militated against the norms of equality and fair
    play.
  • Brought demoralization among public servants.

61
1. SPECIAL GRADES
i) Management Grades
  • In 1983, Management grades for senior executives
    of corporations, autonomous/semi-autonomous
    bodies of public sector enterprises were
    introduced which were higher than wide difference
    with National Pay Scales.

62
ii) MP Grades
  • Introduced in 1998 for appointment on contract
    basis of professionals from the private sector
    against top management positions in the public
    sector organizations.
  • Subsequently, also allowed to Government Servants
    in 2001, who competed with the private sector
    professionals and severed their lien with the
    parent cadre.
  • At the time of their introduction MP Grades were
    as follows-

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These MP Grades are revised (upgraded) by 63 in
year 2007
BPS-22 BPS-21 BPS-20 20,055-1,440-40,215 18,750
-1,230-35,970 16,915-1,095-32,245
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MP Grades
  • Post in selected Government Departments being
    given MP Grades against the spirit of the scheme
  • Government servants also being appointed against
    these grades without complete severance of their
    lien with parent cadre.
  • Contractual periods being extended as a matter of
    routine.
  • Recruitment outside the purview of FPSC.

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2. ALLOWANCES i) Project Allowance
  • In 2005 Project Allowance to officers working on
    foreign funded social sector projects were
    granted at following rates-
  • BPS 20-21 Rs. 50,000/- per month
  • BPS 19 Rs. 40,000/- per month
  • BPS 17-18 Rs. 30,000/- per month
  • Allowed to Government servants selected through
    open competition and not to civil servants posted
    on transfer.
  • All project posts not advertised.
  • Generated discrimination.
  • Two sets of civil servants doing the same work
    being paid differently.

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ii) Various other Allowances
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3. SPECIAL PERQUISITES /ALLOWANCES
i) President / Prime Ministers Secretariats,
their attached organizations PMIC, NSC, NAB, NRB
etc.
  • 10-15 Presidency Allowance.
  • Full utility charges re-imbursements.
  • Non-deduction of 5 House Rent Charges
  • Responsibilities of each organization of state
    carry same importance.
  • Government servant liable to serve wherever
    posted.
  • (ii) (Supreme Court, High Court Federal Shariat
    Court)
  • Special Judicial Allowance _at_ 20 of basic pay.
  • Office holders of particular professions/categorie
    s not entitled to get extra allowance for
    performing responsibilities of their calling.

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iii) National Assembly / Senate
Secretariat/Parliamentary Affairs Division
  • Sessional Allowance_at_ 50 (Session including
    seven days immediately preceding the commencing
    and seven days immediately following the
    prorogation of the session).
  • Conveyance diet charges _at_ Rs.160/- per day.
  • Two special honoraria.
  • Powers of financial regulation outside normal
    financial regime of the Federal Government.

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iv) Central Board of Revenue
  • Special allowance equivalent to 100 of the basic
    salary allowed to the selected employees of the
    CBR.
  • Shows weakness of the Personnel System in as much
    as certain employees are being rated more
    efficient than the others.
  • Creates inequities motivation and morale
    problem.

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v) Training Institutes
  • A special pay package has been proposed for the
    officers/faculty of the National School of Public
    Policy (NSPP).
  • Instructional Allowance _at_ 20 of basic pay in all
    training institutes.
  • Government servants liable to serve wherever
    posted.

vi) National Highway / Motorway
Police/Islamabad Model Traffic Police
  • Allowance equal to one extra pay on monthly
    basis.
  • House rent ceiling paid in cash.

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vii) FIA (Special Investigation Group SIG)
  • Special allowance to each Government Servant
    equal to his basic pay per month.
  • Special Allowance _at_ 60 of basic pay to Female
    ASIs performing immigration duties at the
    International Airports.

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4. DIFFERENT PAY PACKAGES
i) Tenure Track System for appointment of
faculty members in public universities.
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PUBLIC UNIVERSITIES
ii) NUST
iii) FOREIGN FACULTY HIRING PROGRAMME UNDER HEC
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PRIVILEGED ORGANIZATIONS
5. PUBLIC SECTOR ORGANIZATIONS
i) Security Exchange of Pakistan (SECP)
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ii) Pakistan Telecommunication Company Ltd
(PTCL)
  • 35 increase in pay to be given to employees in
    BPS-1 to BPS-16 (Non-Gazetted).
  • 20 increase in pay of employees who have been
    hired on new terms and conditions.
  • Again, PTCL vide its Inter Office Memo dated
    5-10-2005 approved 15 increase in pay of all
    PTCL regular gazetted employees (BPS-17 above
    including BPS-16 gazetted only) with effect from
    1-7-2005.

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iii) Intellectual Property Organization of
Pakistan (IPO)
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iv) Earthquake Reconstruction Rehabilitation
Authority (ERRA)
  • ERRA Special Allowance
  • The proposal of the ERRA Special Allowance was
    agreed to as detailed below-
  • Deputation Allowance will be admissible _at_ 20 of
    the basic pay of the rank/post subject to a
    maximum of Rs.6,000/- per month.

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6. BANKS
  • Banks in Pakistan, in public or private sector,
    whether commercialized or not, have far higher
    pay scales for their top executives than the
    holders of corresponding management positions
    under the government.
  • Table below displaying the NPS 22, 21, 20 and the
    scales of top three executives of various banks
    give the following picture-

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WORLD BANK OBSERVATIONS ON SALARY AND CORRUPTION
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WORLD BANK OBSERVATIONS ON SALARY AND CORRUPTION
Low pay can contribute to corruption within a
public administration particularly when total
remuneration fails to pay a living wage . . .
Public sector salary structures are the real
problem, rather than average levels of public
sector remuneration Changes in compensation
levels can only work if they are part of a
package to reform public servants
behavior (Strengthening Bank Group Engagement
On Governance and Anti-Corruption, 2006)
83
THOUGHTS ON COUNTRY ASSISTANCE STRATEGIES
84
A NEW APPROACH
85
A NEW APPROACH
  • The transaction cost sector that consists of
  • 1. The Judiciary
  • 2. The Police
  • 3. The Revenue Administration (all inclusive)
  • 4. Public Financial Management
  • 5. Accounts and Audit
  • 6. General Administration
  • Should be established as a Sector within the
    World Bank
  • The program should emphasize a balance between
    development and recurrent expenditure during
    negotiations on outcomes/targets with the
    respective institution.
  • The negotiations should outline in broad terms
    expectations of the recurrent budget increases
    that result from the negotiations and this should
    be followed by agreed monitoring benchmarks

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SOME THOUGHTS ON COUNTRY ASSISTANCE STRATEGIES
  • Governance and anti corruption Framework upgraded
    to global level like PRGF or MDGs provide
    additional support to those countries opting to
    be included in such a program
  • The CAS for a particular country would include
    the elements of a general framework for a new
    package for the transaction cost sector
    bureaucracy including structural changes to
    reflect added emphasis on higher functions and
    recurrent budgets
  • The framework should have inbuilt incentives to
    rationalize spurious employment as well as limit
    pension overhang.

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