EHTESAB (ACCOUNTABILITY)

Absolute power has corrupted our rulers absolutely. They have had their way since the demise of the Quaid-i-Azam. Corruption is a universal weakness and is hardly confined to Pakistan. But, whereas in other countries it is abhorred and severely proscribed and punished, we have allowed corruption to thrive and spread with total impunity. Today, it has pervaded the whole structure of our society, not excluding politicians, bureaucrats and even some sections of the army.[1] Rampant corruption has now reached its peak and has engulfed every segment of the society. Successive governments always made vocal claims and hollow promises to weed it out. But it all sounds false, as all these people were themselves involved in all types of corrupt practices. Pakistan's credit-rating has been lowered by several foreign agencies, and it has been labeled as the third most corrupt country in the world by Transparency International. However, our rulers believe that corruption is a necessary evil in the developing countries that provides incentive for developments.[2]

Corruption has been a perennial charge against all outgoing regimes and  its eradication has been on the top of the agenda of all successive  regimes. Unfortunately, the ground realities have only worsened in our  country despite tall claims and promulgation of a heap of laws to arrest and contain corruption. It's not been the inadequacy of the laws but  the failure to implement them, as well as the erroneous approach to  contain corruption, which has thwarted every such attempt in the past  52 years.

The first statute, commonly known as PRODA, was enforced by the first  prime minister, Liaquat Ali Khan, in 1949. Later, General Ayub Khan, as  chief martial law administrator, promulgated PODO in March 1959 which  was then substituted by EBDO in August 1959. Under the government of  prime minister Zulfikar Ali Bhutto, the Holders of Representative Offices  Act and the Parliament and Provincial Assemblies (Disqualification for  Membership) Act were passed in 1976. But no case was registered  under these two acts which were later repealed by General Ziaul Haq  who instead issued two presidential orders, commonly known as PPO No16 and PPO No17 (1977).

In September/October 1996 the then opposition under the leadership of  Mian Nawaz Sharif and the then government of prime minister Benazir Bhutto tabled in Parliament their respective bills on accountability.  These bills lapsed with the dissolution of the National Assembly. The  caretaker government of Malik Meraj Khalid had promulgated the Ehtesab Ordinance (1996)  which was replaced by a new act of parliament called the Ehtesab Act (1997). Even this Ehtesab Act was subsequently amended repeatedly  by Nawaz Sharif through ordinances.  The general elections in 1997 were held  on the basis of the laws whereby defaulters of loans and utility bills  were disqualified and every candidate was required to submit  declaration of his assets not only at the time of election but also every  year after becoming members of parliament. The Nawaz Sharif regime had deliberately allowed this law to lapse as it was made through an ordinance.

Since the tenure of the first prime minister of Pakistan, Liaquat Ali Khan, across-the-board accountability has remained the unanimous demand of  all sections of the public and, after the dismissal of the Sharif government on October 12, 1999, it was once again a burning issue.  Ironically, despite unanimity on this issue, the mode, manner, period and  extent of the accountability to be undertaken has never been resolved  decisively. In Pakistan, the word ‘accountability’ has only one meaning: to malign and persecute political opponents.

Ehtesab (Accountability) Law

The National Assembly, on May 29, 1997, amended the Ehtesab Ordinance to introduce major changes in the accountability process. The most significant amendment was the shifting of the starting date for accountability from the original 31st December, 1985 (when General Zia lifted the martial law) to 6th August, 1990 (when the first government of Benazir Bhutto was dismissed). The amendment also transferred the power of investigating charges of corruption from the Chief Ehtesab Commissioner to the Ehtesab Cell set up by Prime Minister Nawaz Sharif.

Although the amendment excluded the first Benazir government from the purview of accountability but the exemption for the 1985-90 period is significant since it was during this period that Mr. Nawaz Sharif, in his capacity as the Chief Minister of the Punjab, was strengthening and consolidating his industrial and political base. At the time of passage of the Ehtesab Law, there were reports that there were 167 cases of major loan default which include 107 cases involving top leaders of the PML(N) who got the benefit of huge write-offs and rescheduling during 1985-1990.

The transfer of the power of appointment of the Chief Ehtesab Commissioner from the president to the federal government reduced the office of the CEC to a mere post office. The real power was transferred to the accountability cell in the Prime Minister's secretariat. The head of the Cell, Senator Saifur Rehman Khan, was accountable only to the PM. The amendment also extended ex post facto legal sanction to the PM's accountability cell, which was under attack in a number of writ petitions in the Lahore High Court.

The original ordinance had empowered the CEC to initiate a case on a reference received from the appropriate government, on receipt of a complaint or on his own accord. Under the new amended law, if the CEC deems a reference necessary, he must refer it to the accountability cell for investigation. With all the accountability functions and powers concentrated in a cell functioning in his secretariat, the prime minister was able to keep a strict check not only on the opposition and the bureaucracy but on his own party-men also.

Ehtesab officials get SHO's power

The federal government, on Feb. 4 1998, amended the Ehtesab Act, replacing the name, "Ehtesab Cell", with "Ehtesab Bureau", and provided powers of an SHO to the chief of Ehtesab Bureau or any other official designated by him for the purpose of investigation. The amendments were introduced into the Ehtesab Act through a presidential ordinance, the first by President Rafiq Tarar.

The chief of Ehtesab Bureau or any officer designated by him  enjoyed all the powers of an officer-in-charge of a police station. The chairman or designated officer were empowered to require the assistance of any agency or police officer. The amended law provided indemnity to officials of the Ehtesab Bureau on acts deemed to have been done on "good faith".

By amending Section 3 of the Ehtesab Act, the government had again brought in the original definition of "corruption and corrupt practice". In the original Ehtesab Ordinance, corruption by a government official was defined as "favours or disfavours to any person." Through a subsequent amendment in the original Ehtesab Ordinance of 1996, the words "any other person" was replaced with the words "his spouse or dependents." The government  again restored the original meaning that any favour by a government official to other person other than his/her spouse or dependents would also fall in the definition of corruption, and he would be held responsible for that.

A reference made to the Ehtesab Bureau was to be treated as a report under section 154 of the Penal Code. After the reference of any case to the Ehtesab Bureau by the Ehtesab Commissioner, it would be an exclusive responsibility of the bureau to examine all the material, evidence and proof. No other agency had a power to look into the matter. For the purpose of inquiry into any matter referred to the Ehtesab Bureau, the chairman and the bureau had the powers of an officer in charge of a police station, including the power to ask any citizen to appear before it. Every government agency, police official or any other government official was bound to assist the Ehtesab Bureau in investigation.

After the amendment, the Ehtesab Bureau was also empowered to ask the Chief Ehtesab Commissioner to make a request to any court for the withdrawal of any case pending in a court. If the application was granted by the court, the case will be transferred to the Ehtesab Bureau. The Chief Ehtesab Commissioner had the powers at any stage of proceedings against an accused under the Ehtesab Act, to order the arrest of the accused..

The Bureau became an independent investigating agency with teeth of its own and therefore not dependent, as it formerly was, upon the powers of the FIA. This may be a sequel to the turf war between Senator Saifur Rehman's ehtesab machine and Ch. Shujaat Hussain's interior ministry, both of whom were vying for control over the FIA. The first and most striking change of course was to strip the original law of its neutrality and place the powers of investigation and prosecution firmly in the Prime Minister's Secretariat.

How FIA kidnapped notables to please Saif-ur-Rahman

Chairman of the Ehtesab Bureau, Senator Saif-ur-Rahman, used his power to harass political opponents and kidnapping leading businessmen. He operated mostly through a select group of FIA   officials while Nawaz Sharif had  first-hand information about Saif's involvement in the kidnapping of some of the very reputed citizens as he ignored strong complaints against this  nasty operation even from his cabinet colleagues. [3]

For instance when the FIA sleuths kidnapped Farooq Hasan, owner of  Hasan Associates, a renowned builder and developer of Karachi in 1998  and locked him at a Saif-run safe house in Islamabad,  federal minister Halim Siddiqi had rushed to Nawaz Sharif to inform him about  Saif's involvement in the kidnapping of a well-known Karachi businessman. Halim Siddiqi's pleas both to Sharif and Saif went unheeded as Hasan had  to stay for about a week in Saif's dungeon and was only released when he signed a confessional statement that had been prepared by Saif's  lieutenant at the Ehtesab Cell. Saif prepared confessional statement for Farooq Hasan relating to dealings of AES power plant with the Benazir  government. Throughout his confinement Hasan was physically abused, mentally  tortured and was not allowed to sleep. Hasan was also kept and interrogated at Saif's personal residence in Islamabad.

Jamil Ansari, the Chief Executive of a famous trading and business group  in Karachi, was also kidnapped in 1998 by the FIA while he was about to  board a Karachi-bound flight from Islamabad. For the next four days  Ansari's family in Karachi had no knowledge of his whereabouts. The case was soon brought to the knowledge of Nawaz Sharif, who conveniently ignored protest from an associate who thought that such  daylight kidnappings of the business luminaries without any charges would bring the PML government into disrepute. For  more than a week, Ansari, a businessman, was questioned for his  friendship with a ranking naval official. This week-long illegal detention under Saif's orders of the chief  executive of a reputed firm had sent a shock wave in Karachi's mercantile community, but the Nawaz Sharif administration was not  bothered.

The FIA was also involved in the kidnapping of Shahzad Sherry, a  well-known international banker, from Karachi. Like other victims, Sherry  was also swiftly shifted to Islamabad, where he was locked at a  government-run safe house. For several days Sherry was kept in illegal confinement and questioned  by the former Ehtesab Bureau stalwarts including Senator Saif-ur-Rahman. Sherry was apparently also paying price for his  friendship with certain naval officials. His detention also continued for  several days before being released without bringing any criminal charges  against him.

Karachi-based Jamil Hamdani, another representative of an international  bank, was kidnapped from his house in Defence Society Karachi in Oct. 1999 and was forced to board an Islamabad-bound flight for an urgent meeting with Saif-ur-Rahman and his team. Saif pointedly informed Hamdani about his disliking for  his bank's interest in the privatisation of Habib Bank Limited. Jamil  Hamdani was believed to be working on an international consortium that  was interested in the management of overseas operations of Habib Bank.  No apologies were offered after Hamdani was set free three days later  by the Ehtesab sleuths who also warned him not to talk to the press  about his ordeal.

Saif's frenzy to get private citizens abducted through  the FIA touched its peak last year when he used the federal agency to kidnap Arif Zarwani, a UAE national and a reputed businessman, from his  friend's house in Defence Society Karachi.  Zarwani, who had been arrested in an FIA-cum-police raid, was quickly flown to Islamabad, where he was handed over to Wasim Afzal, a close  associate of Saif-ur-Rahman. The Ehtesab action created a stir in the UAE as Nawaz Sharif was personally told that Zarwani's kidnapping in  Karachi had endangered his official visit next day to the UAE. Zarwani, who was apparently picked up for his ties with Asif Zardari, was  freed from the Ehtesab clutches, two days later, only after he was  forced to listen to a telephonic sermon from Saif who was then touring  Europe. No reasons were given for Arif Zarwani's arrest nor any criminal charges  were brought against him. Despite an official protest from the UAE  Nawaz Sharif did not question Saif or the FIA for the kidnapping of a foreign national.

In another case Ghulam Mustafa Memon, a well-known petroleum dealer  and a former friend of Asif Ali Zardari, was kidnapped in an FIA action  from his house in Defence Society, Karachi in 1998. During the  operation the FIA sleuths ransacked his house. Memon, like other  victims, was quickly flown to Islamabad where he was kept at a safe  house for about a week. Mustafa Memon said that during the detention, he went through severe  physical torture and mental harassment at the hands of senior Ehtesab  officials. At last a week later Mustafa was quietly  released from Islamabad and no criminal charges were brought against  him.

Among others who made the hostage list of Saif-ur-Rahman was  Naeemuddin Khan, a senior United Bank Limited (UBL) executive responsible for recovering Rs 1.2 billion loans from Saif-ur-Rahman's  Redco Textile Mills. While using the FIA in the kidnapping of Naeemuddin Khan from his room  at Karachi's Pearl Continental Hotel, Senator Saif is understood to have  told the FIA that Naeemuddin was involved in money laundering. Without verifying the facts an FIA team barged into Naeemuddin's room in August  this year and in the next few hours he was facing a Saif-ur-Rahman interrogation squad at an unspecified location in Islamabad. Naeemuddin's ordeal ended after Nawaz Sharif listened to a strong  complaint in this regard from National Assembly Speaker Illahi Bukhsh  Soomro and ordered the bank executive's release. Sharif, however,  refused to order any probe into the kidnapping of a bank executive who  was being punished for his attempt to recover Rs 1.2 billion of loan from  Saif-ur-Rahman.

Leading newspaper columnist  Hussain Haqqani had been kidnapped by the FIA sleuths along with his  brother, an active service Army Colonel, during an evening stroll on  direct orders from Saif-ur-Rahman in early 1999. It was at least three days after Haqqani's  kidnapping that Saif-ur-Rahman ordered the FIA bosses to "produce" a  case against him. Official sources confirmed Haqqani's account that he  was beaten and kept awake during the first week of his arrest.  Haqqani was of the few Saif victims whose captivity brought criminal  charges, vehemently denied by Haqqani who said that the cases against  him was the figment of Saif's imagination.

The annual 1997 Human Rights Report of US State Department said the Accountability Commission, established by the caretaker government and headed by a retired judge, had been overshadowed by an "accountability cell," headed by a close associate of the prime minister. This cell had been accused of conducting politically-motivated investigations of politicians, senior civil servants, and business figures, designed to extract evidence and, in some cases, televised confessions of alleged wrongdoers. The report gave the examples of televised confessions extracted from Salman Farooqi, secretary of commerce under Benazir Bhutto; Ahmed Sadiq, Benazir Bhutto's principal secretary; and Zafar Iqbal, chairman of the Capital Development Authority. It said most politicians and bureaucrats, who had been charged with corruption or other crimes, were out on bail.