Since Independence, the Most Critical Concern for Internal Security is National Integration. Discuss the Role of Constitutional Provisions enabling Provincial Autonomy and Devolution of Power to Strengthen National Integration in Pakistan?

CSS 2024 Solved Pakistan Affairs Past Papers | Role of Constitutional Provisions to Strengthen National Integration

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Question Breakdown

In this question, first, there is a need to shed light on the history of how centralization of power has been a factor in weakening national integration in Pakistan. Then we are supposed to discuss the provisions of the 1973 constitution along with subsequent amendments that have taken place to promote provincial and local government autonomy, which eventually has its impacts on national integration.

Outline

1-Introduction

2-A brief Account of the centralization of power and its impacts on national integration

3-Constitutional Provisions in 1973 Constitution promoting provincial autonomy, thereby increasing national integration

• ✓7^th National Finance Commission Award
• ✓18^th Amendment
  • Administrative Autonomy
  • Legislative Autonomy
  • Financial Autonomy
• ✓Council of Common Interests (CCI)
• ✓1991 Water Accord

4-Conclusion

Answer to the Question

Introduction

Pakistan’s initial constitutional leap is widely known for its massive centralization of power may it be the interim constitution, One-Unit Scheme, or the 1962 constitution, excluding the 1956 constitution, which gave provinces autonomy but could not live long enough to strengthen it. The centralized environment was not able to create national harmony and integration; as a result, voices for separation and independence emerged from different provinces, with East Pakistan (now Bangladesh) making its way towards independence after waging war in 1971. However, the 1973 constitution brought hopes for national integration as it stood on the principle of decentralization and devolution of power to provinces. Furthermore, the 18^th Amendment proved to be a major thrust in bringing provincial autonomy and playing an important role in strengthening national integration.

A brief Account of the centralization of power and its impact on national integration

The forefathers of Pakistan adopted a federal structure for Pakistan to accommodate the diverse ethnic, linguistic, and religious groups in a newly emerged state. Initially, centralization was thought to be necessary for national integration. For that purpose, the One-Unit Policy was also drafted and implemented. However, instead of uniting and integrating, the policy of centralization significantly damaged national integration by arousing public discontent, ethnic nationalism, and separatist feelings in people of provinces, like Bangladesh. The 1956 constitution was characterized by more provincial autonomy than its succeeding military constitution of 1962, characterized by the lowest quantum of provincial autonomy in the country’s history. Eventually, the inclination for centralization resulted in the separation of the Eastern Wing of Pakistan (now Bangladesh), the emergence of slogans of Sindu Desh, and Paktunistan, along with Balochistan militancy demanding more autonomy for their province. The 1973 constitution, under the leadership of Zulfiqar Ali Bhutto, marked a shift towards the recognition of provincial rights and giving them autonomy. However, in 2010, the famous 18th Constitutional Amendment came, which is considered a landmark constitutional step in the journey towards greater devolution to enhance provincial autonomy. The amendment, changing 34% of the constitution, gave a constitutional voice to provinces by totally transforming the Centre-province powers. In short, it has given provinces greater administrative, legislative, and financial autonomy, which had never been exercised before by the provinces.

Constitutional Provisions in 1973 Constitution and their role in promoting provincial autonomy

Taking into account the need for provincial autonomy, the 1973 constitution was a first step to establishing and implementing provincial autonomy in the true sense. In the financial domain, the 7^th NFC Award is considered a victory for provincial autonomy. Similarly, the passage of the 18^th Amendment further strengthened and reinforced provincial autonomy to address the long-standing provincial grievances that were deteriorating national integration in the country.

7^th NFC Award

NFC award is a mechanism of distribution of financial resources between the provinces and the Centre, created under Article 160 of the 1973 constitution. Till the 7th NFC Award, division among provinces was based on population, but the 7th Award introduced multiple criteria for resource distribution, including population, poverty, revenue generation, and inverse population density, thus addressing some regional disparities. Moreover, the Award allocates provinces a 57.5% share in a divisible pool of federal taxes, giving provinces significant financial autonomy.

1. Role in increasing provincial autonomy

The 7th NFC Award has given provinces more autonomy in managing their budgets, focusing on development projects, and addressing regional disparities. The good thing about this award is it also focuses on other indicators for financial resource distribution, such as inverse population density (a blessing for Balochistan mainly), poverty (good for both KP and Balochistan), and revenue generation, apart from just focusing on population. This has enabled smaller provinces to get a bigger share in the national financial pool, helping them to meet their financial needs. Such developments are encouraging for national integration as now the provinces are responsible for their development initiatives with financial resources to execute them as well. This will bring progress and prosperity in all provinces, which removes the feelings of grief towards the Centre and strengthen the spirit of unity.

18^th Amendment

• Administrative Autonomy

The 18^th Amendment has abolished the list in the Fourth Schedule, a.k.a Concurrent Legislative List, and has transferred 44 subjects (total of 47 subjects) directly to provinces, including health, education, agriculture, environmental protection, and social welfare. Moreover, under Article 172 (3) of the constitution, provinces and the federal government have been given joint ownership over natural resources.

1. Role in increasing provincial autonomy:

It has expanded the ambit of administrative control of the provinces and increased the role of provinces in their regional matter. This led to more participation of the provinces in governing their regions. Provinces, who earlier complained about the dominance of the Centre in their regional affairs, will now be able to exercise power and total control over the institutions devolved to provinces under the 18th Amendment. This will give provinces a feeling of participation in addressing their regional concerns and removing grievances towards the Centre, which will sow the seeds of national harmony and cohesion.

• Legislative Autonomy

Provinces have been given the power to legislate on matters mentioned in the previously known Concurrent List under Article 142 (c) of the constitution. Moreover, provinces have also a role to play in legislation pertaining to subjects mentioned in Federal Legislative List 2. This gives provinces more autonomy in managing their affairs without outside interference.

1. Role in increasing provincial autonomy:

It gives provinces more autonomy in managing their affairs without outside interference. Provinces have now total control to exercise on subjects, like education, health, agriculture, social welfare, local government, Islamic education, Zakat, Auqaf, and Tourism. It allows provinces to make laws that are tailored to their needs and local contexts. Moreover, provinces have also been given a role to play in legislation on subjects enumerated in Federal Legislative List Part 2, such as electricity, railways, mineral resources, national planning and national economic coordination, census, etc.

• Financial Autonomy

Provinces have been given the right to collect taxes on services under Article 142 (c). Under Article 167 (4), the constitution allows the provincial governments to raise loans from domestic and international sources. Similarly, new article 160 3(A) was inserted to make it permanent that the share of the Provinces in each Award of the National Finance Commission shall not be less than the share given to the Provinces in the previous Award.

1. Role in increasing provincial autonomy

All these amendments seek to promote financial autonomy giving provinces control over the sales tax collection, and allowing them to raise loans for development initiatives, which will promote progress and development in the provinces. Moreover, article 160 3(A) has barred any reduction in the share of provinces in the national tax pool, which assures provinces that the share enjoyed by them in the 7^th NFC Award will stay for an indefinite period unless an amendment is made to redraw these figures. Provinces have established institutions to make use of the financial autonomy given to provinces. Sindh has set up its own Sindh Revenue Board to collect General Sales Tax (GST) on services in its region. Punjab has also set up its own Punjab Revenue Authority to collect taxes. It, in short, enables provinces to exercise more power over their financial matters and work for the betterment of their provinces reducing their reliance on the Centre for financial matters.

Conclusion

In a nutshell, though centralization has historically been seen as a significant impediment to building national integration in the people of Pakistan with its epitome in the form of the separation of East Pakistan (now Bangladesh), the later developments in the 1973 constitution and the subsequent 18^th amendment has greatly increased the provincial autonomy, thereby strengthening the national integration and cohesion in the country.

CSS 2024 Solved Pakistan Affairs

2-	Political Stability Remains an Elusive Concept in Pakistan. Explore the Factors Contributing to the Fractured Nature of Pakistan’s Polity and Discuss Potential Reforms to the Constitutional and Political Structure that could Foster Stability?
3-	Keeping in View the Socio-Politico Circumstances of Sub-Continent, Discuss the Role of Sheikh Ahmed Sarhindi (Mujadid Alf Thani) Who Revived Islamic Ideology and Established Muslim Identity in Sub-Continent.
4-	The Democratization Process in Pakistan is Still Weak and Ambiguous. Do you consider Dynastic Politics and Feudalism are the Major Hindrances on the Way of Establishing True Democratic System in Pakistan? Explain.
5-	Global Warming Presents an Existential Threat to States like Pakistan. Examine the Far-Reaching Impacts of Global Warming on Pakistan and Propose a Model of  Economic Development that Aligns to the Environmental Protection.
6-	How should Pakistan manage the equitable distribution of resources among different ethnic regions to address historical grievances and promote developments across the country?
7-	In Modern day democracy there must be a Pragmatic Civil-Military relationship to deal all the internal and external security threats. Analyze with reference to the role of Pakistan’s security and stability in South-Asia?
8-	How should Pakistan manage the equitable distribution of resources among different ethnic regions to address historical grievances and promote developments across the country?

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