Challenges in Implementation and

Management of
Provincial Autonomy
in the Context of 18th Amendment to
Constitution of Pakistan
 PILDAT

An independent, non-partisan, indigenous

think tank dedicated to strengthening
Democracy & Democratic Institutions
Established: 2002 under Societies Registration
Act
Original funding by Overseas Pakistanis
Offices at Islamabad & Lahore
Total Staff: 40; Research Staff: 27
Mission: Strengthen Democracy & Governance
 PILDAT - Focus

Initial (2003-2009) area of focus:

Briefings & Orientation of Parliamentarians
& Provincial Legislators
2009 onwards: Assessment of Performance
of Legislature, Quality of Democracy, Quality
of Governance, Civil-Military Relations, etc.
 18th Amendment to the Constitution

 Historical consensus with far-reaching impact on

Federation and Provinces
 Greater awareness of this change and resulting
requirements of capacity enhancement and better
governance required by Provinces
 Abolition of Concurrent List but Criminal Laws, Criminal
Procedure and Evidence remain subjects on which both
the Parliament and the Provincial Legislatures can make
laws
 Addition of subjects to Federal List
 Enhancing Scope of CCI
 Enhanced Scope of CCI

Council of Common Interests (CCI)

entrusted with greater responsibilities and
strengthened
To be chaired by the Prime Minister and
comprise 3 Federal Ministers and 4 Chief
Ministers
CCI to meet once a quarter and have
permanent secretariat
 Enhanced Scope of CCI

CCI Policy control substantially increased

by transfer of some subjects from omitted
Concurrent List, and some subjects from
Part-I of the Federal Legislative List to
Part-II of the Federal Legislative List
CCI’s policy control over reservoirs in
addition to natural sources of water
supply. Federation can not build new
hydro electric stations in any Province
except after consultation with that
Province.
 Additional Responsibilities of Provinces

 34 Subjects, after deletion of Concurrent List, and

transfer of some of the subjects/matters from the deleted
Concurrent List to Part-II of the Federal List additional
transferred to the Provinces, including but not
limited to Civil Procedures Drugs and medicines;
Environmental pollution and ecology; Population
planning and social welfare; Welfare of labour;
Curriculum, syllabus, planning, policy, centres of
excellence and standards of education (except in
institutions of higher education and research and
scientific and technical institutions); Islamic education;
Zakat; Production, censorship and exhibition of films;
Tourism
 18th Amendment & NFC Award

 NFC shall not reduce the share of resources

allocated to Provinces by previous Commission
 Federal & Provincial Finance Ministers shall lay
biannual monitoring reports on NFC
implementation in Parliament & Provincial
Assemblies
 Provinces entitled, as of right, to entire
proceeds of the excise duty on oil and natural
gas
 Given power to raise domestic or foreign loans
with approval of NEC
 7th NFC Award 2010

 Significantly altered resources-distribution

formula in favour of provinces
 Re-allocation of (additional) resources that
Provinces needed to meet financial burden of
transferred responsibilities
 57.5% of divisible pool taxes assigned to
provinces from financial year 2011-2012
Additional 1% of net proceeds of divisible pool
taxes assigned to KP due to war on terror
 Share of Federal Government 42.5% from
financial year 2011-2012 onwards
 7th NFC Award 2010

 Changed Provincial Allocation Weightage:

Population: 82.0%
Poverty or backwardness: 10.3%
Revenue collection or generation: 5.0%
Inverse population density: 2.7%

 Distribution
Balochistan: 9.09%
Khyber Pakhtunkhwa: 14.62%
Punjab: 51.74%
Sindh: 24.55%
Total: 100.00%
 7th NFC Extended

 NFC is to be constituted “at intervals not

exceeding five years”
5-year term of 7th NFC expired on June
30, 2015 and since then extended twice –

First Extension: June 2015-May 2016

Second Extension: June 2016-May 2017
 Dormancy of CCI

 CCI constitutionally required to meet

“once every ninety days”
 On average since June 2013, periodicity
of the meetings of the CCI has been
almost once every six months
 Longest lag: After CCI meeting of March
18, 2014, next meeting was held on
February 20, 2016, after a gap of nearly 11
months
 Latest CCI meeting held on March 25,
2016, almost 7 months ago
 National Economic Council

 NEC constitutionally required to meet “at

least twice in a year and the quorum for
a meeting of the Council shall be at least
one-half of its total membership”
 Since June 2013, NEC has met almost
once every ten months, instead of at least
once every 6 months
 NEC has met once every calendar year,
instead of meeting twice; latest meeting
held on May 30, 2016, almost 7 months
ago
Provincial Governance Comparison
2013-2014 to 2014-2015
Comparative Provincial Score
Card (Year 1)
 Comparative Ranking (Year 1)

Province Rank
Punjab 1
Khyber 2
Pakhtunkhwa
Balochistan 3
Sindh 3
 Overall Scores
Second Year (2014-2015)

First Year (2013-2014)

1st = Punjab (42%)
2nd = KP (37%)
3rd = Balochistan (34%)
4th = Sindh (34%)
 Rankings
 KP leads in Rule of Law, Management of
Economy & Service Delivery
 Punjab leads in Administrative Effectiveness &
Social Indicators

First Position:
Balochistan in 5 parameters
KP in 10 parameters
Punjab in 7 parameters
Sindh in 4 parameters
 Comparative Scores

KP & Punjab improve

performance in all 25
parameters
Balochistan & Sindh improve
performance in 20,
deterioration in 4 & no-change
in 1 parameters
 Comparative Scores

Highest Scores
KP – Environmental Sustainability
(82.3%)
Punjab – Poverty Alleviation (80.4%)
Balochistan – Devolution of Power to
Local Governments (77.7%)
Sindh – Public Transport (78.3%)
 Comparative Scores

Lowest Scores
KP - Gender Gap (51%)
Punjab - Gender Gap (52.9%)
Balochistan - Public Transport
(41.3%)
Sindh - Gender Gap (38.6%)
 Provincial Comparative Scores:
Education

34%
Balochistan
67%

39%
KP
61%

47%
Punjab
64%

38%
Sindh
59%

0% 10% 20% 30% 40% 50% 60% 70%

2014-15 2013-14
 Provincial Comparative Scores:
Health

38%
Balochistan
60%

45%
KP
69%

48%
Punjab
65%

44%
Sindh
61%
0% 10% 20% 30% 40% 50% 60% 70% 80%

2014-15 2013-14
 Provincial Comparative Scores: Peace,
Security & Order

53%
Balochistan
59%

34%
KP
56%

34%
Punjab
55%

41%
Sindh
60%

0% 10% 20% 30% 40% 50% 60% 70%

2014-15 2013-14
Provincial Potential
2015-2016
 Balochistan

Indicators with positive

improvements in public
perception
Balochistan
 Balochistan

Indicators that may potentially

improve in the future
 Balochistan

More potential improvements

 Khyber Pakhtunkhwa

Positive improvements in
public perception
 Khyber Pakhtunkhwa

Indicators that may potentially

improve in the future
 Punjab

Improvements in public
perception
 Punjab

More improvements in public

perception
 Punjab

Indicators that may potentially

improve in the future
 Sindh

Slight improvements in public

perception
 Sindh

Indicators that may potentially

improve in the future