A Hypothetical Future Federal Model Under a Proposed 28th Amendment
Across the world, nations periodically revisit their constitutional structures to address demographic pressures, administrative inefficiencies, regional inequalities, or emerging political realities. In this purely hypothetical framework, the proposed 28th Amendment envisions the most radical restructuring of Pakistan’s political and administrative architecture since independence. The concept imagines Pakistan divided into eleven federal units, laying the foundation for what is described as the “United States of Pakistan”—a union in which provinces become states, Azad Kashmir and Gilgit-Baltistan gain princely-state status, and representation follows an equal-state formula.
Although entirely theoretical, the model opens intellectual space for debating governance, representation, and national cohesion.
28ویں ترمیم کا تصور — پاکستان کی ریاستی از سر نو تنظیم
اس رپورٹ میں پیش کیا گیا 28ویں ترمیم کا ماڈل مکمل طور پر ایک تصوراتی خاکہ ہے جس میں پاکستان کو گیارہ ریاستی یونٹس میں تقسیم کرنے کا نظریہ بیان کیا جاتا ہے۔
اس تصوراتی ترمیم کے مطابق پاکستان کے موجودہ انتظامی ڈھانچے میں ایک بڑی تبدیلی متوقع ہے جس کے تحت پنجاب کو تین حصوں میں، جبکہ سندھ، خیبرپختونخوا اور بلوچستان کو دو دو حصوں میں تقسیم کرنے کی تجویز شامل ہے۔ اس کے علاوہ آزاد کشمیر اور گلگت بلتستان کو خصوصی حیثیت دیتے ہوئے "روایتی ریاستیں" یا "princely states" قرار دیا جائے گا۔
یہ ترمیم ایک نئے وفاقی ڈھانچے کا تصور دیتی ہے جس کا نام "یونائیٹڈ اسٹیٹس آف پاکستان" رکھا گیا ہے۔ اس کے تحت مجموعی طور پر گیارہ ریاستیں وفاق کا حصہ ہوں گی اور ہر ریاست کو برابر نمائندگی دی جائے گی۔ یہ ماڈل آبادی نہیں بلکہ ریاستی تقسیم کے اصول پر قائم ہوگا جس کا مقصد سیاسی توازن، انتظامی کارکردگی میں بہتری اور علاقائی ہم آہنگی کو فروغ دینا ہے۔
اس تجویز کے مطابق دفاع، خارجہ امور، خزانہ، داخلہ اور قانون وفاق کے ماتحت رہیں گے جبکہ صحت، تعلیم، انفراسٹرکچر، زراعت اور عوامی خدمات سمیت درجنوں محکمے ریاستی اختیار میں آ جائیں گے۔ اس کے ذریعے حکومت سازی زیادہ موثر اور مقامی سطح پر فیصلوں کی رفتار بہتر ہونے کی توقع ظاہر کی جا رہی ہے۔
آزاد کشمیر اور گلگت بلتستان کی روایتی حیثیت برقرار رکھتے ہوئے انہیں ایسے یونٹس کے طور پر شامل کیا گیا ہے جو اپنی جغرافیائی شناخت، داخلی نظام اور سماجی ڈھانچہ برقرار رکھتے ہوئے وفاق کے ساتھ منسلک رہیں گے۔ ان کی داخلی خودمختاری قائم رہے گی جبکہ خارجی اور قومی سطح کے معاملات وفاق کے ذریعے طے پائیں گے۔
سیاسی ماہرین کے مطابق یہ ماڈل اگر حقیقی صورت اختیار کرے تو پاکستان کے انتخابی نظام میں بڑی تبدیلیاں آئیں گی۔ قومی اسمبلی ریاستی بنیاد پر منتخب ہوگی، جبکہ سینٹ یا کانگریس کو سابقہ طریقہ کار کے مطابق قومی اسمبلی کے ذریعے تشکیل دیا جائے گا۔
1. The Division: From Four Provinces to Eleven States
In this hypothetical amendment, Pakistan’s existing provinces undergo substantial territorial reconfiguration:
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Punjab would be divided into three distinct states, possibly addressing population imbalance and administrative load.
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Sindh, Khyber Pakhtunkhwa, and Balochistan would each be divided into two states, aiming to improve service delivery and political representation.
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Azad Kashmir (AJK) and Gilgit-Baltistan (GB) would be declared special princely states, preserving their historical and territorial identity.
This yields a total of eleven units—nine from Pakistan and two from AJK/GB—each functioning as semi-autonomous states within a federal union.
2. Princely-State Status for AJK & GB
In this imagined arrangement, both AJK and GB maintain their geographical, political, social, and territorial status. Their identities, flags, regional parliaments, and historical autonomy are protected. As princely states, they participate in the federation while retaining symbolic and limited administrative sovereignty.
The idea emphasizes that such designation would not disrupt state affairs, nor hinder institutional continuity. Instead, it aims to strengthen their status through constitutional recognition while ensuring federal cooperation.
3. Federal-Unit Equality: Representation Through Eleven States
One of the most transformative features of this scenario is the principle of equal representation. Unlike Pakistan’s current parliamentary system, where population size determines National Assembly seats, this envisioned model allocates equal weightage to each of the eleven states.
Under this system:
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Each state contributes equally through its state electoral vote.
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National Assembly members are elected through state-based elections.
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The Senate (or Congress) continues to be elected by the National Assembly but reflects the equal division of states.
Such equality mirrors models seen in federations like the United States, where each state—regardless of population—enjoys equal representation in at least one legislative chamber.
4. Federal Powers vs. State Powers
In this hypothetical 28th Amendment, key portfolios remain with the federation, ensuring national cohesion, security, and consistency. Federal subjects include:
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Finance .Defense .Foreign Affairs. Interior Federal Law and Constitutional Affairs
Meanwhile, states gain authority over dozens of sectors that directly affect citizens’ everyday lives. These may include:
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Health .Public Works.Education.Local Government. Culture and Heritage. Agriculture
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Infrastructure and Transportation
This division aims to decentralize power, reduce bureaucratic delays, and create a more accountable governance structure.
5. The Governance Structure of the United States of Pakistan
This hypothetical framework envisions a two-tier system:
State Level
Each state elects its own assembly and chief executive, similar to U.S. governors or Indian chief ministers. States manage local taxation, development budgets, and administrative priorities.
Federal Level
The National Assembly represents the states proportionately, while the Senate/Congress ensures equality among states. The federal government retains responsibility for security, fiscal integrity, diplomacy, and national law.
A federal court system—possibly a “Federal Constitutional Court”—would arbitrate disputes between states and the center.
6. Political, Social, and Economic Implications
Administrative Efficiency
Dividing larger provinces like Punjab and Balochistan could reduce governance overload, improving access to services and representation.
Balanced Development
Smaller, more focused states may prioritize local development, resource management, and infrastructure with greater precision.
Identity Preservation
Declaring AJK and GB as princely states symbolizes respect for their unique history and political sensitivities.
Power Redistribution
Equal representation ensures smaller states are not overshadowed by larger ones—potentially reducing political alienation.
7. Challenges and Critiques
Even as a theoretical model, such restructuring entails substantial challenges:
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Political resistance from existing power blocs
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Boundary disputes and identity concerns
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Economic realignment of resources and revenue sharing
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Administrative costs of creating eleven state governments
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Constitutional complexities, especially involving AJK and GB
Such an amendment would require national consensus, parliamentary supermajorities, and public acceptance—difficult but not impossible in conceptual debates.
8. Conclusion: A Conceptual Pathway, Not a Current Policy
This hypothetical 28th Amendment offers a visionary but speculative blueprint for reorganizing Pakistan into an equal-state federation. By decentralizing governance, elevating regional identities, and rebalancing national representation, it imagines a radically different political future.
While no such amendment exists in reality, exploring these frameworks helps policymakers, academics, and citizens imagine how Pakistan’s governance can evolve to meet emerging challenges of population growth, regional disparities, and administrative complexity.
policy-analysis article exploring a hypothetical 28th Amendment proposing new states, federal restructuring, and princely-state status for Azad Kashmir and Gilgit-Baltistan. Includes governance model, powers, representation, and national impacts.
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