Improving on devolution

In 2010, the 18th Amendment became law and was feted as an achievement of Pakistan’s parliament. Through this historic amendment, the PPP government gave a consensus document that led to provincial autonomy and addressed the grievances of smaller provinces. It also marked the end of the federal government’s dominance over subjects that rightfully belonged with the provinces. However, after 13 years, there is still a raging debate on this amendment. A few days back, there were reports that the PML-N’s manifesto committee had received proposals for the complete reversal of the 18th Amendment or to change the distribution mechanism of financial resources among provinces. PML-N leaders have denied these reports while PPP Chairman Bilawal Bhutto has stressed the need for implementing the 18th Amendment in letter and spirit, calling it the solution to Pakistan’s issues. This is not the first time the 18th Amendment is the subject of consternation – on both ends of the debate. There have been concerns over the past few years especially that the amendment is in danger of being rolled back altogether since there has been a sign that the country’s power-wielders would prefer everything centralized the way it used to be pre-2010. That should be avoided robustly by all democratic forces in the country.

There is however also the argument that, since the constitution is an evolving document, any constructive or progressive improvement or

amendment would only add to the lustre of the 18th Amendment. Any attempt to reverse or rollback this amendment is against the idea of provincial autonomy. No province would agree to that – and rightly so. The main idea behind the 18th Amendment was that devolution of power should be extended. Despite the fact that it was passed over a decade ago, we have not seen provinces like Punjab or Sindh devolve power to local governments through local bodies elections. It is important for all provinces to not just implement devolution of power but also empower the local bodies, while also playing their part in revenue collection.

The country is facing a severe debt crisis and a massive fiscal deficit. All four provinces have to chip in to help the centre overcome this issue. While the 18th Amendment and the NFC Award gave a lot of resources and revenue to each province, the provinces have done little to nothing for revenue generation of their own. It should be the responsibility of the provinces to collect tax and raise revenue. This they can do if they start taxing the agriculture sector, the real-estate sector and retailers along with other industries. Provinces must play their part in revenue generation because when they don’t do this and only collect revenue from the NFC Award and empower themselves through the 18th Amendment without taking on any financial responsibility, then some quarters start getting ideas that there is a problem with empowering provinces and power should be centralized again. The NFC Award may have to be adjusted – but only through a consensus – to some extent when the next government comes to ensure that the federal government is not burdened with debt servicing, with a constant fear of being on the brink of default. The 18th Amendment can be improved through a consensus of all political parties and provincial governments on how provinces can raise finances and collect taxes, among other things. Amendment or change in itself cannot become a subject of wrath or resistance – but using such change or amendment to roll back provincial autonomy is something that needs to be resisted by democrats of all stripes.