Under the 1973 Constitution, the balance of power between the central government and Pakistan’s provinces has been an enduring source of tension, evolving constantly as the country grapples with political and social complexities. Initially conceived as a compromise between centralization and decentralization, this federal framework was designed to allow for provincial autonomy while maintaining national unity. However, history has shown that this balance has often been disrupted by military coups, political unrest, and weak institutional enforcement. The landmark 18th Amendment in 2010 sought to address these concerns, but many issues remain unresolved in practice.
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The inception of Pakistan’s federal structure dates back to the 1956 Constitution, which aimed to decentralize authority while still favoring the central government. The existence of the Concurrent List allowed both the federation and provinces to legislate on the same subjects, often leading to conflicts. Despite being a federal document, the 1956 Constitution failed to protect East Pakistan’s interests, ultimately contributing to the 1971 separation. That loss deeply influenced the framers of the 1973 Constitution to promise a more equitable federal system.
Under the 1973 Constitution, Pakistan adopted a federal model with clearly defined subjects for federal and provincial jurisdiction. The provinces were given autonomy in areas like health, education, and agriculture, while the centre retained powers over defense and foreign affairs. This formal division of authority represented a major departure from earlier constitutions, but in practice, central dominance remained intact. The implementation of true autonomy was hindered by political centralization and fiscal control by the federation.
The struggle for provincial autonomy continued throughout the 1980s and 1990s, particularly under military rule. General Zia-ul-Haq’s regime significantly curtailed provincial powers and bypassed constitutional norms. The military's intervention reversed federal gains by centralizing authority and suspending democratic institutions. This rollback delayed the decentralization that the 1973 Constitution had promised.
The 18th Amendment of 2010 marked a critical step toward restoring federalism in Pakistan. It abolished the Concurrent List and transferred numerous legislative subjects entirely to the provinces. By devolving control over areas such as health, education, and local government, the amendment expanded provincial autonomy to an unprecedented level. It was celebrated as a milestone in constitutional history.
In addition to legislative autonomy, the 18th Amendment aimed to enhance financial independence through reforms in the National Finance Commission (NFC) Award. The amendment altered the distribution formula to ensure a greater share of federal revenues for the provinces. This fiscal restructuring allowed provinces to increase spending on public services and regional development. However, it also introduced new challenges in managing inter-provincial equity.
Another achievement of the 18th Amendment was strengthening the Council of Common Interests (CCI), a constitutional body meant to resolve disputes between the centre and provinces. The CCI brought together provincial and federal leaders to coordinate policy and resolve conflicts. While the CCI was meant to institutionalize dialogue, its effectiveness has been undermined by irregular meetings and limited enforcement power. This has led to continued mistrust among provinces.
Despite the constitutional push for decentralization, many provinces have hesitated to devolve power to local governments. While empowered on paper, local bodies remain weak or non-functional in most regions. The failure to implement local governance structures has limited the reach of decentralization and weakened public service delivery. This bottleneck in governance affects development at the grassroots level.
Smaller provinces have also expressed concerns over the fairness of financial resource allocation. The 2018 merger of FATA with Khyber Pakhtunkhwa intensified debates about how resources should be shared. Balochistan and KPK have argued that they receive inadequate compensation to meet the needs of their expanding populations and geographic challenges. Such fiscal disparities strain inter-provincial harmony.
Disputes over water resources further expose the fragility of centre-province relations. The Indus River system, lifeline of Pakistan’s agriculture, remains a source of conflict, especially between Punjab and Sindh. Provinces often accuse one another of mismanaging or hoarding water, with little federal intervention to mediate fairly. This unresolved issue highlights the need for more effective mechanisms for conflict resolution.
Ethnic and regional grievances also continue to challenge federal stability. Balochistan in particular has voiced long-standing demands for greater control over its resources and political affairs. The lack of meaningful provincial empowerment has fueled separatist movements and frequent violence in marginalized areas. These tensions undermine the unity envisioned by the 1973 Constitution.
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The military’s enduring role in Pakistan’s political landscape has also limited the potential for provincial autonomy. Despite democratic transitions, the armed forces continue to exert influence over national and provincial matters. Military involvement in civilian governance disrupts the balance of power and weakens provincial institutions. This presence complicates efforts to implement the constitutional promise of federalism.
In conclusion, while the 1973 Constitution and the 18th Amendment laid a strong legal foundation for federalism, the relationship between the centre and provinces in Pakistan remains fraught with challenges. Political will, institutional reform, and genuine cooperation are essential to realizing the constitutional vision. Unless all stakeholders commit to sharing power fairly and resolving disputes through dialogue, the promise of federalism will remain only partially fulfilled. A balanced and inclusive approach is critical for national unity and progress.
