Pakistan considers new administrative units under proposed 28th constitutional amendment

ISLAMABAD: The debate over devolving power to the grassroots level in Pakistan is gaining momentum, with discussions on creating new provinces drawing politicians, civil society representatives, lawyers, and governance experts.

A broad consensus appears to be emerging that authority must be transferred to lower levels of government, regardless of the administrative model adopted. Participants also increasingly recognise that the existing governance structure needs substantial restructuring.

However, holding local government elections alone may not resolve the problem. Critics argue that successive governments have failed to grant local bodies meaningful powers, leaving them unable to address public needs effectively.

Local Governments Remain Without Meaningful Powers
Since the Musharraf era, the three major political parties, the Pakistan Muslim League-Nawaz (PML-N), the Pakistan Peoples Party (PPP), and Pakistan Tehreek-e-Insaf (PTI), have been criticised for failing to devolve sufficient authority to local governments.

In Punjab and Islamabad, local government elections were last held in 2015, while subsequent attempts to initiate the delimitation process were repeatedly disrupted by changes in laws and ordinances.

The PTI did not hold local government elections in Punjab or the federal capital during its tenure. Similar concerns have been raised about the current PML-N-led government. In Sindh, Khyber Pakhtunkhwa and Balochistan, where local elections have been held, questions remain over the extent of powers transferred to elected representatives.

Questions Over Democracy Within Political Parties
The debate has also brought internal democracy within major political parties into focus. The PTI faced consequences over its intra-party elections, including losing its election symbol ahead of the 2024 general elections, while critics have questioned the leadership structures of both the PML-N and PPP.

According to critics, the absence of effective local governments and meaningful internal party democracy has weakened political institutions and limited opportunities for new leadership to emerge.

As administrative restructuring gains attention, local government elections have once again entered the political debate. However, some participants argue that even a stronger local government system would have limited impact without broader changes to the country’s governance structure.

Political Parties Differ on Creation of New Provinces
The PPP has openly opposed creating additional administrative units in Sindh while supporting provincial status for South Punjab and Gilgit-Baltistan.

Prime Minister Shehbaz Sharif is seen as more open to new provinces. Still, the PML-N leadership associated with Nawaz Sharif has so far taken a cautious approach, focusing on the PPP’s position.

The article suggests that the PML-N could accelerate efforts to hold local government elections to ease pressure for wider administrative restructuring. It also argues that a public referendum, if held, could make it harder for political parties to resist voter-demanded changes.

Khyber Pakhtunkhwa’s New Administrative Setup as a Test Case
A new administrative arrangement covering 12 conflict-affected districts of Khyber Pakhtunkhwa is being viewed as a potential pilot project for wider reforms.

The setup has reportedly been given an initial six-month period to demonstrate results, with performance criteria, transparency and accountability identified as key requirements. Although the arrangement is led by technocrats, provisions have reportedly been made for local public representation.

Its performance could influence whether similar administrative models are considered for other parts of the country.

Division-Level Units Under Consideration
Another proposal under discussion is creating autonomous administrative units at the divisional level without formally dividing existing provinces.

Supporters of this approach believe empowered units could use existing infrastructure and operate within current provincial boundaries, potentially avoiding some constitutional hurdles associated with creating new provinces.

However, constitutional amendments would still be required. Article 239(4) of the Constitution requires that any constitutional amendment affecting a province’s limits be passed by the relevant provincial assembly with a two-thirds majority.

Proposed 28th Amendment and NFC Reforms
Attention is also turning to a proposed 28th Constitutional Amendment, although the article says no final draft has emerged yet.

Changes to provisions governing the National Finance Commission (NFC) are also being discussed. Advocates of reform argue that the existing NFC framework needs to be reviewed to better address Pakistan’s administrative and financial requirements.

The debate over local governments, new provinces and autonomous administrative units therefore remains part of a wider discussion on how Pakistan can improve governance, strengthen accountability and bring public institutions closer to citizens.