AS the promise of elections looms, manifestos take centre stage, promising reform and progress. In our volatile context, empowering local governments is a crucial, yet often overlooked pathway towards a more responsive and resilient democracy.

Despite constitutional provisions for devolution, Pakistan’s local governance system remains hobbled by a plethora of challenges. Over-centra­lisation, inadequate financial resources, weak institutional capacities and limited citizen parti­­cipation have plagued this tier of government. Though varying in detail, existing Local Gov­ernment Acts share the common flaw of inadequate devolution and excessive provincial control.

As general elections approach, parties are driven by political considerations, which shape their approaches to local governance. A review of some manifestos reveals inconsistent approaches to local governance. The PML-N, while promising devolution and financial autonomy, focuses on party-aligned initiatives. The PTI manifesto touches upon citizen participation and local development but lacks concrete mechanisms for implementation. The PPP emphasises that rural development aligns with local governance potential, but the required details remain vague. The PML-Q focuses on administrative reforms and overlooks the need for structural changes like fiscal devolution. The ANP manifesto primarily addresses Khyber Pakhtunkhwa’s specific needs but merely offers insights into a broader vision for local governance. The JUI focuses on religious values and social conservatism but doesn’t adequately address the systemic issues hindering local governments. The MQM’s urban-centric approach highlights the need for tailored solutions for diverse local contexts but lacks comprehensiveness.

The pathway to democratic empowerment is linked to genuine empowerment of local governments. This demands action on multiple fronts, particularly on the legislative side. There is a dire need for a constitutional amendment to dedicate a chapter to local government, outlining its autonomy, functions, and financial resources. Another important factor is an independent election commission. Establishing an independent body to oversee local elections, prevent manipulation, and ensure transparency is crucial and pivotal for the empowerment and strengthening of local governments. Grants also need to be tied to service delivery indicators. Most experts may not be of this opinion, but by extending RTI laws to local governments, transparency and citizen oversight can be ensured.

The elections offer parties a chance to adopt a transformative vision for local governance.

The policy landscape presents a curious paradox. On one hand, the National Finance Commis­sion (NFC) Award and the 18th Amendment stand as cornerstones of devolution, transferring significant financial and administrative responsibilities to local governments. The NFC Award, in particular, mandates a minimum of 57.5 per cent of divisible federal resources to be distributed among the provinces, with a further 10pc earmarked for local governments. The 18th Amendment, for its part, devolved 26 subjects, including education, health, and sanitation, to local bodies.

Despite these seemingly progressive frameworks, the ground reality paints a different picture. Local governments remain shackled by a lack of autonomy, resource constraints, and weak institutional capacities. Provincial governments often wield the power of veto, undermining the democratic spirit of elected local councils. This disconnects policy intent and implementation, resulting in a chasm between the needs of the people and the services delivered.

While the NFC Award and 18th Amendment provided a necessary framework for empowering local governments, they are not a panacea. The devil, as they say, lies in the details. The allocation of resources often falls short of the promised 10pc, with provincial governments diverting funds for their priorities. Additionally, the devolution of responsibilities has not been matched by a commensurate transfer of financial resources and capacity-building initiatives. This has left local governments grappling with limited budgets and a shortage of skilled personnel.

The Local Government Acts at the provincial level are very different. The Punjab Local Government Act 2013, though progressive in decentralising service delivery, still grants excessive powers to the provincial government. The Balochistan Local Government Act 2012 falls short of financial devolution and citizen participation, hindering effective local governance in this resource-rich province. The Sindh Local Government Act 2013, similar to Punjab’s act, needs further amendments to strengthen local autonomy and accountability. The Khyber Pakhtunkhwa Local Government Act 2019 commits to/ensures the promotion of citizen participation and local development but requires greater financial autonomy.

Local government representatives can be more than just service providers. They can become catalysts for progress in diverse areas such as ESG (Environmental, Social, and Governance), Corporate Social Responsibility, and Disaster Risk Management. Local governments can promote environmental sustainability through waste management, renewable energy projects, and green infrastructure development. Additionally, they can champion social causes like women’s empowerment, youth development, and minority inclusion. Local governments can foster partnerships with businesses and civil society organisations to address pressing issues like poverty, illiteracy, and healthcare access. This can create a collaborative ecosystem for social good and shared responsibility. Local governments can also be pivotal in disaster preparedness and response, leading community-based initiatives for early warning systems, evacuation plans, and post-disaster rebuilding efforts.

Pakistan’s political manifestos must transcend rhetoric and translate into genuine commitment to local government empowerment. A comprehensive vision is needed, encompassing legislative reforms, capacity building, financial independence, and citizen participation. Only then can local governments become the engines of development, democracy, and social justice Pakistan desperately needs. The upcoming elections present a critical opportunity for parties to break free from political expediency and embrace a transformative vision for local governance. The future of Pakistan’s democracy hangs in the balance.

The writer is a researcher associated with the Sustainable Development Policy Institute.

Published in Dawn, January 15th, 2024