Government Servants Conduct Rules 1964: What Employees Can and Cannot Do

The Government Servants (Conduct) Rules, 1964 set the code of conduct for federal government servants in Pakistan, and they decide what a government employee can and cannot do.

In Urdu: ضابطہ اخلاق 1964 / کیا جائز ہے اور کیا نہیں۔

They were made on 5 June 1964, under Articles 178(2)(a) and 179(1) of the Constitution, and they came into force at once. This guide explains the Rules in plain language: business, gifts, politics, social media, property, and what happens when a servant breaks them.

Conduct Rules 1964 at a glance#

The table below gives the basic facts. Every rule number comes from the Rules themselves, as published in the Establishment Division’s Estacode.

What are the Government Servants Conduct Rules 1964 in Pakistan?#

The Government Servants Conduct Rules 1964 in Pakistan are the rules that tell a federal government servant how to behave, in office and outside it. They cover gifts, business, money, politics, the press, social media, and dealings with other people.

They apply to every person serving in a civil capacity in connection with the affairs of the Centre. They also apply to members of an All-Pakistan Service while they serve under a Provincial Government or on deputation with another Government, agency, institution or authority.

The Rules are federal. A provincial employee is governed by his own province’s conduct rules, but the federal Rules are the model most provincial rules follow, and they apply directly to All-Pakistan Service officers serving in a province.

The Rules are published in the Establishment Division’s Estacode. The Establishment Division also issues instructions under the Rules, including the 2020, 2021 and 2024 instructions on social media, which apply the Rules to Facebook, X, WhatsApp and other platforms.

Can a government employee run a business?#

No, a government employee cannot run a business without the previous sanction of the Government.

Rule 16 of the Conduct Rules says no Government servant shall, except with the previous sanction of the Government, engage in any trade or undertake any employment or work, other than his official duties.

That covers a shop, a company, a consultancy, a tuition centre, a YouTube channel run for money, and any other paid work.

All of it needs previous sanction, and the sanction is given only if the work does not conflict with the servant’s position and obligations.

Two kinds of work do not need sanction.

A government servant may, without sanction, undertake honorary work of a religious, social or charitable nature, or occasional work of a literary or artistic character, if his official duties do not suffer and the work does not conflict with his position as a Government servant.

Rule 16 also bars a government servant from associating himself with any private trust, foundation or similar institution which is not sponsored by the Government. Sports activities and membership of recreation clubs are excepted.

A government servant who has any doubt about whether a particular work is proper should refer the matter to the Government for orders, rather than deciding himself.

The same permission principle applies to changing jobs. A serving employee who wants to apply for another government job needs a No Objection Certificate (NOC) from his department before he applies.

Can a government servant join politics or social media debates?#

No, a government servant cannot join politics, and he cannot join political debates on social media.

Rule 24 of the Conduct Rules bars him from taking part in, subscribing in aid of, or assisting in any way, any political movement in Pakistan or relating to the affairs of Pakistan.

Rule 24 also bars him from canvassing, interfering, or using his influence in connection with any election to a legislative body, in Pakistan or elsewhere. The same applies to elections to local authorities.

One thing is allowed. A government servant who is qualified to vote may exercise his right to vote, but if he does, he must give no indication of the manner in which he proposes to vote or has voted.

The ban extends to his family. A government servant must not permit any person dependent on him for maintenance, or under his care or control, to take part in or assist any movement that is subversive of the Government as by law established in Pakistan.

He must also not allow a dependent member of his family to indulge in any political activity, including forming a political association and being its member.

Announcing himself as a candidate counts as taking part. A government servant who issues an address to electors, or publicly announces himself as a candidate or prospective candidate for election to a legislative body, is deemed to take part in that election.

Social media is covered by the Establishment Division’s instructions under the Rules. Circular No. 1/20/1976-D-3, dated 23 July 2020, says no government servant can participate in any media platform, electronic, print or social media, except with the express permission of the Government.

The same instructions bar a government servant from expressing views against the policy or ideology of Pakistan.

They also bar views that may harm the security of Pakistan or friendly relations with foreign states, offend public order, decency or morality, or amount to contempt of court, defamation or incitement to an offence.

An Office Memorandum dated 25 August 2021, and another dated 2 September 2024, repeat the same instructions for social media.

Three rules do the work on social media. Rule 18 bars sharing official information or documents with an unauthorised person. Rule 22 bars any statement of fact or opinion capable of embarrassing the Government.

Rules 25, 25-A and 25-B bar views against the ideology and integrity of Pakistan, and taking part in any public demonstration against a Government decision.

Gifts, property and money#

The Rules control what a government servant may accept, buy, sell, borrow and invest. The principle is simple: nothing that creates an obligation, and nothing hidden.

Gifts from foreign dignitaries have their own procedure. A government servant should try to avoid accepting a gift from the head or representative of a foreign State.

If he cannot refuse without giving offence, he accepts it and reports it to the Establishment Division for orders as to its disposal.

Gifts from diplomats, consular and other foreign Government representatives stationed in Pakistan are prohibited outright. If one cannot be refused for very exceptional reasons, it is deposited in the Toshakhana.

The Cabinet Division assesses the value of a gift and fixes the limits up to which it may be retained by the recipient.

A medical officer is the one exception the Rules name. Subject to his departmental rules, a medical officer may accept a gift of moderate value offered in good faith by a person or body of persons in recognition of his professional services.

A government servant must also avoid habitual indebtedness. If he is adjudged or declared insolvent, he must report it at once to the head of his office or department.

If he is involved as an accused in a criminal case, he must report the involvement or conviction at once.

Talking to the press and the public#

The Rules control what a government servant may say in public, in print, on radio and television, and now on social media. The servant speaks for himself only with permission, and never against the Government.

• Official information (Rule 18): no communicating any official document or information to a Government servant unauthorised to receive it, or to a non-official person, or to the Press, except under a general or special order of the Government.
• Newspapers (Rule 20): no owning, conducting or participating in the editing or management of any newspaper or periodical, except with previous sanction.
• Broadcasts and articles (Rule 21): no radio broadcast, article or letter to a newspaper or periodical, except with previous sanction. A contribution of a purely literary, artistic or scientific character needs no sanction.
• Embarrassing the Government (Rule 22): no statement of fact or opinion capable of embarrassing the Government, in any published document, communication to the Press, public utterance, radio broadcast or television programme. Technical staff may publish technical research papers if they do not express views on political issues or Government policy and contain no classified information.
• Evidence (Rule 23): no evidence before a public committee except with previous sanction, and no criticising Government policy in evidence. Evidence before statutory committees and judicial inquiries is excepted.
• Approaching politicians (Rule 19): no approaching any Member of the National Assembly or a Provincial Assembly, or any other non-official person, to intervene on his behalf in any matter.
• Vindication (Rule 27): no recourse to a Court or to the Press for the vindication of his public acts or character from defamatory attacks, without previous sanction.

Rule 22-A gives one protection. Where a government servant submits the draft of a literary, artistic or scientific article or book for previous sanction, he must be told within 3 months whether sanction is granted.

If no communication comes within that period, he may presume the sanction asked for has been granted.

What else the Conduct Rules forbid#

The Rules also forbid a set of behaviours that are not about money or politics, but about using office for personal advantage.

• Companies (Rule 15): no taking part in the promotion, registration or management of any bank or company, except with previous sanction. A cooperative society is excepted.
• Public demonstrations (Rule 7): no encouraging meetings to be held in his honour, or addresses of which the main purpose is to praise him.
• Sectarianism (Rule 25): no propagating sectarian creeds, or taking part in sectarian controversies or partiality, that may affect his integrity or embarrass the administration.
• Ideology of Pakistan (Rule 25-A): no expressing views detrimental to the ideology or integrity of Pakistan.
• Demonstrations against Government decisions (Rule 25-B): no taking part in or assisting any public demonstration directed against a Government decision, and no permitting a dependent member of his family to do so.
• Nepotism and favouritism (Rule 26): no provincialism, parochialism, favouritism, victimization or wilful abuse of office.
• Service associations (Rule 28): a servant may join an association of government servants only if the association is confined to a distinct class, is not connected with any political party, issues no periodical except under Government order, and does not support any election candidate.
• Political influence (Rule 29): no bringing political or other outside influence to bear on the Government for any claim connected with his employment.
• Foreign missions (Rule 30): no approaching a foreign Mission in Pakistan or a foreign aid-giving agency to secure invitations to visit a foreign country or offers of training abroad.

What happens if a government servant breaks the Conduct Rules?#

Breaking the Conduct Rules is misconduct. The Rules themselves contain no penalties; the penalty comes from the disciplinary rules.

For a federal government servant, disciplinary action is taken under the Civil Servants (Efficiency and Discipline) Rules, 2020.

The Establishment Division’s Office Memorandum of 2 September 2024 says so expressly for breaches of the social media instructions: violation is misconduct and invites disciplinary action under those Rules.

For a Punjab government employee, disciplinary action is taken under the PEEDA Act, 2006. The penalties under PEEDA run from censure and withholding of promotion to compulsory retirement, removal and dismissal from service.

A probationer is in a weaker position. A government servant on probation who breaks the Conduct Rules can have his services terminated during probation, without the full inquiry that a confirmed servant is entitled to.

Mistakes to avoid under the Conduct Rules#

• Using India’s rule numbers: India’s CCS (Conduct) Rules, 1964 have different rule numbers from Pakistan’s Rules. In Pakistan, private trade is Rule 16, gifts are Rule 5 and politics is Rule 24. Quoting the Indian numbers is a common error.
• Running a side business without sanction: Rule 16 needs previous sanction for any trade, employment or work other than official duties. A paid YouTube channel, a consultancy or a shop all count.
• Posting political views on social media: the 2020, 2021 and 2024 instructions apply Rules 18, 21, 22, 25, 25-A and 25-B to social media. A political post is a breach, and the breach is misconduct.
• Accepting a gift and keeping quiet: every gift must be reported to the Toshakhana, whatever its value. The servant who keeps a gift without reporting it has broken Rule 5.
• Buying property without permission: any purchase, sale or disposal of property over Rs 25,000 needs permission under Rule 11, and immovable property must be declared at entry under Rule 12.
• Asking a politician to intervene: Rule 19 bars approaching any Member of the National or a Provincial Assembly to intervene in a service matter, and Rule 29 bars bringing political influence to bear on the Government.
• Sharing official documents: Rule 18 bars communicating any official document or information to an unauthorised person or to the Press. Forwarding an office file on WhatsApp is a breach.

Frequently asked questions#

Can a government employee run a business?

No, a government employee cannot run a business without the previous sanction of the Government.

Rule 16 of the Conduct Rules says no Government servant shall, except with the previous sanction of the Government, engage in any trade or undertake any employment or work, other than his official duties.

Honorary work of a religious, social or charitable nature, and occasional work of a literary or artistic character, may be done without sanction, if official duties do not suffer and the work does not conflict with the servant’s position.

Can a government servant join politics or social media debates?

No, a government servant cannot join politics or political debates on social media. Rule 24 bars him from taking part in, subscribing to, or assisting any political movement, and from canvassing or using his influence in any election.

The Establishment Division’s instructions of 23 July 2020, 25 August 2021 and 2 September 2024 say no government servant can participate in any media platform, including social media, except with the express permission of the Government.

They also bar views against the ideology and integrity of Pakistan or any government policy or decision.

Can a government servant accept a gift?

A government servant cannot accept a gift that places him under any official obligation to the donor, except with the previous sanction of the Government. That is Rule 5 of the Conduct Rules.

Every gift he receives must be reported to the Toshakhana in the Cabinet Division, whatever its value. Gifts from foreign diplomats and foreign Government representatives stationed in Pakistan are prohibited, and if one cannot be refused it is deposited in the Toshakhana.

Do the Conduct Rules apply to provincial employees?

The Government Servants (Conduct) Rules, 1964 are federal rules. They apply to every person serving in a civil capacity in connection with the affairs of the Centre, and to members of an All-Pakistan Service while they serve under a Provincial Government or on deputation.

Provincial employees are governed by their own province’s conduct rules. The federal Rules are the model those provincial rules follow, and the 2020 social media instructions have been adopted in substance by several provinces.