Adp Policy
Adp Policy
Adp Policy
PROGRAMME
POLICY
(2019-23)
1st AMENDMENT
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Table of Contents
Page
Section 1 Introduction 1
Section 13 Procedures 13
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THE KHYBER PAKHTUNKHWA ANNUAL DEVELOPMENT PROGRAMME (ADP)
2020-21 POLICY
Section 1. Introduction.
1.1 The Annual Development Programme (ADP) is the instrument through
which the Government of Khyber Pakhtunkhwa plans, executes and monitors a
significant proportion of development spending in the province. It is placed for
approval in the provincial assembly as part of the annual provincial budget, and
has the legal backing and approval of the provincial assembly as per Constitution
of Islamic Republic of Pakistan, 1973, once the budget is passed. The document
in hand i.e. the Khyber Pakhtunkhwa Annual Development Programme (ADP)
Policy 2020-21 describes the rules and regulations which will guide how the ADP
is planned, executed and monitored.
1.2 The ADP has to be a reflection of the short term vision and priorities of
the Government of Khyber Pakhtunkhwa. Therefore, in its formulation, it should
help achieve the goals and objectives of the provincial government.
1.3 The ADP must be made considering a number of factors, including but not
limited to: overall and sectoral policy choices; the overall financial outlay
available; the need to maximize economic growth and development for the
province; the need to maximize public impact; the goal of improving service
delivery and infrastructure; the goal of eradicating poverty, the need to address
the development lag of specific areas; the population and resource contribution
of specific areas; a consideration of past investments made and future
investments planned; investments made through other budgetary instruments,
such as the current budget or the PSDP; measures to address duplications; and
the need to invest in each part of the province, while ensuring value for money
(VFM). Naturally, in considering such a large number of factors, a key element
of making the ADP is the need to make policy and investment choices and trade-
offs.
1.5 While the Provincial ADP assists in the development of the province, it
cannot be seen as an investment instrument in isolation, in particular, to gauge
1.6 These facts clearly demonstrate that a simple distribution of funds across
districts and constituencies would actually result in a sub-optimal planning
instrument that may actually be construed as a suboptimal use of public money.
The aim of the Provincial ADP is to decide investments across the province, in
an integrated and holistic manner, attempting to maximize economic impact. It
should attempt to incorporate equitability wherever appropriate; and more
importantly, it should attempt to be a fair instrument overall. An ADP should be
judged as fair if it can show that as part of the provincial budget, it helps advance
the development of each part of the province. In doing so, it should consider the
specific economic characteristics and development needs of different areas; as
well as other investments in those areas; through the PSDP; the current budget;
the district ADP; Foreign Development Assistance; private sector funding; and
any other sources, while also remaining cognizant of size of the development
kitty vs competing demands. The District ADP, an important as well as integral
part of the overall ADP, is the component that is ring-fenced for each district,
through the Provincial Finance Commission (PFC) award. It is an important
instrument of fairness, since it is the portion of the ADP that is actually dedicated
to each district.
2.2 The ADP, so formulated, has to aim to maximize the scale and speed of
impact, and get as much development done as possible, as quickly as possible;
while reflecting the policies and goals of the government. This means that
money should be spent where it has the most direct impact on people or the
economy. It also means that any administrative spend that has no public impact
should be reviewed and minimized. Other traditional planning principles should
also be challenged. For example, due for completion schemes should be
prioritized, however only to the extent that they actually result in public or
economic impact.
2.3 The ADP is funded by tax payers’ money. It is therefore a public fund to
be spent on the people of Pakhtunkhwa and on developing the provincial
economy. The Government of the day has the responsibility to frame and
administer the ADP in the best interests of the people of the province.
2.6 The ADP will be designed on a sectoral basis. Each sector should develop
a sectoral plan that guides ADP project selection. Projects should contribute to
achieving the outcomes the sector intends to achieve and these outcomes
should in turn be driven by a clear definition of sectoral needs solutions, policies
and strategies to fulfil them. The financial constraints at hand must also be
considered in developing these plans. P&D Department shall help the line
departments to define sectoral goals with the consultation of all stakeholders
and make a comprehensive framework to achieve those goals.
2.7 The ADP must also ensure Regional Development across the province.
This will be done through a regional planning exercise, to identify the key
development needs in each region to make a phased plan for those investments,
in the context of sectoral policy and to fit them in the ADP framework.
2.8 Investments in the ADP must also be seen in conjunction with other
investments in the sector. These include the current budget, Foreign
Development Assistance, the Federal Public Sector Development Programme
(PSDP), other private sector investments, district budgets, and funding through
any other programme. Investments made in previous years must also be
considered. This will ensure that an integrated view of all investments made is
taken into consideration when deciding the ADP and will help to avoid
overlapping investments and encourage synergies.
2.9 The Provincial ADP must be designed in a fair and transparent manner
that maximizes economic value for the province, ensures development,
economic growth, improvement in service delivery and eradication of poverty,
amongst other goals. The equitable distribution of resources, wherever
2.10 However, this should not imply that the ADP should be equally,
proportionately or formulaically distributed across sectors, regions, districts,
tehsils or constituencies. Instead, a fair and transparent ADP should be able to
demonstrate that, seen in conjunction with other parts of the provincial budget,
the ADP helps advance the development across Khyber Pakhtunkhwa. The fair
geographic spread of ADP funds across the province will be addressed through
two ways; first, through the District ADP; and second, through the regional
planning exercise. Regional investments should be need based, and consider the
specific economic characteristics and development needs of different areas;
including factors such as the Human Development Index (HDI), fiscal
performance and revenue potential; as well as other investments made in each
area.
2.11 In designing the ADP, provincial government must also consider a multi-
year view. The need to make policy choices means that the ADP in a single year
cannot be completely reflective of the Government’s intent to invest equitably
across the province. In- line with the Government’s policies and plans, a
medium-term ADP over the 2019-2023 cycle must be used to ensure that fair
investments are made in each part of the province.
2.12 Investments in the ADP must reduce unnecessary cost but not
compromise on impact. Hence investments must be judged not just on cost but
the impact and the value-for- money they bring, in particular in the context of
scarce financial resources available. Every sector must restrict itself to its legal
mandate e.g. Irrigation department must concentrate on building small dams,
canals and lining of canal rather than proposing roads and protection walls.
2.13 To maximize impact, the ADP formulation must move towards and mid-
term development framework. For example, sectoral investments must be
considered across multiple years and across the current and development
budgets available to the sectors; sectoral allocations will not be preset and
sectors will be able to compete for marginal allocations; and budget processes
across finance and the development budgets will be better integrated and
coordinated. Each sector must prepare its own priority lists and share it with
P&D Department.
2.15 The ADP throw forward is one of the most important metrics to track.
Departments need to preferably keep their throw-forwards within reasonable
time limits. Departments with a throw forward of greater than five years shall
need to justify why they should be allowed to maintain a large portfolio they
cannot fund or prioritize. In the 2020-21 budget, the P&D department has
conducted an extensive exercise to prioritize and rationalize investments and
maintaining this discipline will be a continuous process.
3.2 The ADP should also be aligned with the Sustainable Development Goals
(SDGs) that the Government of Pakhtunkhwa and the Government of Pakistan
have subscribed to, and help ensure that the targets underneath them can be
attained.
3.4 Considering the points above, it is expected that departments will make
every effort to ensure that ADP is not a compendium of PC-Is only but is actually
reflective of the priorities and goals set out in these guiding documents, while
prioritizing investments that are strategic, sustainable, and have the greatest
impact; within a reasonable financial envelope.
4.2 In addition, the budgeting process must ensure that the current and
development budgets for individual sectors are not viewed separately, but are
viewed as a whole, to be aligned with a sectoral plan for the sector. In addition,
in terms of considering the investments made in the sector, the Federal PSDP,
Foreign Project Assistance, and other private sector investments shall also be
considered while deciding the constitution of a sectoral ADP.
4.3 The calendars for the current and development budget shall be aligned
with each other. Therefore, the Budget Call Circular and the ADP calendar
should run in parallel, with touch points through the budget cycle at which the
overall budget is actually reviewed together. The calendar should begin with a
policy / strategy setting phase for each sector; an exercise that reviews and
refines sectoral policy, and proposed projects and programs supporting this
policy. This policy level input should have the consent of the respective ministers
and secretaries.
4.4 The Budget Call Circular can be used to help support this goal; it contains
sufficient provisions to complement the goals of the “Output Based
Budgeting/Budgeting for Service Delivery” exercise; by clearly spelling the
vision, goal, outcomes and outputs of each department, with SMART output
level indicators. All developmental schemes identified for inclusion in the ADP
as per the prescribed format circulated should be mapped / incorporated in the
forms and formats circulated by Finance Department via Budget Call Circular.
5.4 While keeping this in mind, spend in areas that actual improve the service
delivery of existing investments shall be prioritized. Spend on productive service
delivery staff (e.g. teachers, doctors, and rescue staff) is critical and will be
prioritized, in comparison to expenditure on support and administrative staff,
and administrative expenses. Similarly, specific non-salary expenses such as the
spend on the operations and maintenance of roads, schools, hospitals on the
current side of the budget should also be recognized as productive spend that
actually impacts the performance and service delivery of government, and also
be prioritized.
5.5 In particular, spend in the social sector; and sectors that focus on service
delivery will be prioritized. In such sectors, such as education and health, every
effort shall be made to break the cycle of investing in unnecessary additional
brick and mortar expansion. Sectoral budgets in these sectors shall ensure that
the consolidation and service delivery from existing investments is prioritized
while setting the budget.
5.6 Sectoral allocations (and project allocations within such sectors) will also
be driven by departmental throw forwards. In the 2019-20 budget, the P&D
department has conducted an extensive exercise to prioritize and rationalize
investments, and maintaining this discipline will be a continuous process.
6.2 Development spending will occur through the Merged Areas ADP and the
Accelerated Implementation Programme (AIP) and Foreign Assisted
Programmes.
6.3 The Merged Areas ADP/AIP shall also be administered in line with the
standing principles for the ADP for the rest of the province.
6.5 All funding earmarked for the merged areas will be ring-fenced, and will
not be spent anywhere else in the province including any bridge financing
arrangements.
6.6 Merged Areas ADP and AIP shall be integrated into provincial ADP during
the FY 2020-21.
7.3 The District ADP, however, remain an integral part of the Provincial ADP
and will inter- alia be used as one of the tools for territorial fiscal equalization,
8.2 Both the PSDP, and the Foreign Development Assistance portfolio will be
continuously tracked and managed through the year, to maximize spend versus
budget, and the impact attained.
8.3 In both the PSDP and the Foreign Development Assistance portfolios, the
discretion regarding choice and location of development schemes and
programs, however, largely rest with the investing agency. Provincial
government may, however, strive to align the priorities of the investors to the
principles enumerated herein.
8.4 For monitoring purpose the PSDP portfolio must be reflected in the
DPMS.
11.3 The philosophy of the overall release policy should be to ensure that
administrative departments have both the relevant powers and responsibility
to take decisions, and that controls are in place to ensure that they can also be
held accountable for those decisions. For example, departments should easily
have the right to be able to re-appropriate funds for valid reasons, with relevant
checks and balances at the Finance/P&D departments and in the Chief Minister’s
office. Current processes should be reviewed to align with this philosophy.
11.5 P&D Department shall extend the planning and monitoring set up to all
district of Khyber Pakhtunkhwa as soon as possible.
11.6 The departments who ignored the monitoring reports must be given
warnings.
12.4 Such schemes will be open to any proposals that are made within the
scope of the scheme; these proposals will be evaluated against the specific
criteria developed for the Special Development Programme. Committees at the
department, P&D or government level may be constituted if required to screen
these proposals in line with developed criteria for the Special Development
Programme; with technical approval at relevant forums such as the DDC or
DDWP or PDWP. No projects will be approved in any Special Development
Programme without the relevant guidelines being in place and approved by the
competent forum.
12.5 The ADP may also contain one or more blocks strictly for emergency or
contingencies strictly in line with sectoral plans and government needs.
13.2 The development release shall be done with the approval of the
Additional Chief Secretary (ACS) planning and development. Due for
Completion schemes must be given full release in the first release as much as
possible.
13.3 All releases shall be in accordance with the release policy proposed by
Finance Department and approved by the Cabinet.
13.4 Release instructions will only be issued by P&D Department, and Finance
Department will ensure the entry of all releases within three days after the
receipt of advice from P&D.
14.2 The Planning & Development Department in pursuance of this ADP Policy
may issue, after approval of Minister P&D, one or more set of appropriate
guidelines for implementation of this policy. Any subsequent amendments to
these guidelines, within overall framework of this ADP Policy may be issued by
P&D department in line with relevant procedures.