Devolution’s Bureaucratic Mediation: Centre-Punjab Relations and the 18th Amendment in Pakistan (2010–2018)

Abstract

Pakistan's most significant federalist initiative, the 18th Constitutional Amendment (2010), scrapped the Concurrent Legislative List and transferred wide-ranging legislative, administrative, and fiscal responsibilities to the provinces. But more than ten years on, devolution remains uneven. In this paper, we explore the administrative, political and institutional obstacles to devolution between 2010 and 2018, with a focus on Centre-Punjab relations, the pivot of Pakistan's federation. Through a qualitative documentary analysis of parliamentary proceedings, archival documents, institutional reports and academic work, we argue that bureaucratic mediation operates as a two-pronged process: provincial bureaucracies, especially in Punjab, facilitate some devolved functions, while federal bureaucracies continue to exert control via regulatory coordination, conditional fiscal transfers and legal grey areas. The National Finance Commission (NFC) Award, which increased provincial transfers, has not ended fiscal dependence: the provinces receive 60-70% of their budget from the centre. The removal of the Concurrent Legislative List resulted in unequal sectoral outcomes - provincialization in health and education, but contested labour and interprovincial coordination. We suggest that constitutional devolution in the absence of simultaneous bureaucratic, fiscal autonomy and effective intergovernmental coordination creates a hybrid governance form: constitutionally decentralized and operationally centralised. In the case of Punjab, we find that bureaucratic capacity is not enough; path dependence, bureaucratic opposition and political bargaining over devolution shape the outcomes. Our insights enrich understanding of decentralization theory by identifying bureaucratic mediation as a critical variable and provide policy lessons for other federations in the midst of reforms.

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