FOREWORD
Foreword
In every parliamentary democracy, the legislature stands as the most critical pillar of the state. It is the origin from which all other institutions derive their legitimacy, and its strength is the foundation upon which democratic governance and the rule of law are built. Robust and dynamic parliaments are the bedrock of an effective democracy, providing the institutional framework for transparent governance and the representation of the people. Through the legislative process, oversight of the executive, budgetary accountability, and the inclusion of diverse voices, legislatures shape the welfare of society and ensure that governments remain answerable to their citizens.
In today’s globalized world, Pakistan's citizens are increasingly aware of how parliaments in established democracies, such as the UK House of Commons or the US Congress, function. With this awareness, come elevated expectations for their own legislatures to adopt global best practices. Our provincial assemblies, in turn, must meet these rising standards by ensuring that their operations reflect principles of transparency, accountability, and inclusive governance. The need for capacity building within these legislatures is paramount as they strive to serve the people with greater effectiveness and integrity.
The 18th Constitutional Amendment has devolved significant powers to the provinces, placing new responsibilities upon provincial legislatures. This devolution has increased the pressure on assemblies to enhance their legislative oversight, improve strategic policy planning, and boost implementation capacity. As the largest provincial legislature in Pakistan, the Punjab Assembly plays a decisive role in addressing the key challenges facing not just our province but the entire country. The decisions taken within this Assembly hold the power to influence national discourse and advance critical reforms. Therefore, the Assembly must be equipped with the tools necessary to fulfill its mandate in a rapidly evolving political landscape.
Upon my election as Speaker in February 2024, I pledged to introduce institutional reforms that would bring the Punjab Assembly at par with the highest standards of international parliamentary practices. This vision was shared with the Chief Minister, the Government and the Opposition. The Chief Minister, Punjab, Ms Maryam Nawaz Sharif, who, in her inaugural speech in Punjab Assembly on February 26, 2024, underscored the urgent need to revitalize our Assembly’s committee system and introduce new parliamentary forums. She advocated for the empowerment of women, the establishment of a dedicated forum for Sustainable Development Goals (SDGs), and the creation of caucuses representing women and minority groups. The demand for reforms was also made by the Minister for Parliamentary Affairs, Mian Mujtaba Shuja Ur Rehman. Similarly, the Opposition, particularly Leader of the Opposition and senior parliamentarian Rana Aftab Ahmad Khan have also consistently advocated for reforms. These reforms are a recognition of the importance of inclusive governance in shaping policies that reflecting the diversity and aspirations of the people.
With the aim of modernizing the Assembly’s functioning, on April 23, 2024, the Punjab Assembly took the unprecedented step of converting itself into a Committee of the Whole House. This move gave me the mandate to lead a comprehensive review of our Assembly’s Rules of Procedure, bringing them in line with the best practices of our sister legislatures, particularly the National Assembly and the Senate of Pakistan. The need for these reforms was clear: the Rules of Procedure that had served us since 1997, no longer fully reflected the evolving nature of governance, the demographic shifts in Punjab, and the Assembly’s expanded responsibilities following the 18th Amendment.
To ensure the thoroughness and inclusivity of the reform process, a Special Committee was also established. This multi-partisan body included seasoned parliamentarians from both the treasury and the opposition benches, along with younger legislators and female representatives, ensuring a diversity of perspectives. Leader of the Opposition Malik Ahmad Khan Bachar and Minister for Parliamentary Affairs, Mian Mujtaba Shuja Ur Rehman, were part of the Committee. Key contributors — including Mr Sami Ullah Khan, Rana Aftab Ahmad Khan, Syed Ali Haider Gilani, Mr Saeed Akbar Khan, Ch Iftikhar Hussain Chhachhar, Mr Ahmad Iqbal Ch and Mr Ahmer Bhatti — were instrumental in shaping the recommendations that have guided these reforms. The Special Committee, with the active support and backing from Minister for Parliamentary Affairs, Mian Mujtaba Shuja Ur Rehman, following extensive deliberations and consultations, recommended comprehensive amendments that reflect our commitment to transparency, inclusivity, and efficient governance.
Key reforms introduced as part of these amendments include the empowerment of Assembly committees, which are now able to address matters of public importance without requiring prior approval from the Speaker. This autonomy will enhance the responsiveness and efficiency of the legislative process. We have also expanded the membership of Standing Committees from 11 to 15 members, ensuring broader representation and the inclusion of at least two women in each committee. Another major step forward is the removal of the language barrier in Assembly debates—members can now address the House in any widely spoken language of the province, from Punjabi to Saraiki, alongside Urdu and English. This change acknowledges the cultural and linguistic diversity of Punjab and strengthens the Assembly’s connection with the people it represents.
The reform process also includes a significant expansion of the role of the Committee on Law Reforms, which is now tasked with systematically reviewing the implementation of the 18th Constitutional Amendment, particularly in areas concerning provincial autonomy and governance. The Committee will evaluate both principal and delegated legislation to ensure consistency with constitutional objectives, correct anomalies, and eliminate obsolete provisions. Through Post-Legislative Scrutiny (PLS), the Committee will assess the effectiveness and societal impact of provincial laws, with special attention to issues such as gender and minority rights, ensuring that Punjab’s legal frameworks evolve in line with contemporary governance challenges.
The successful drafting and integration of these reforms into the Rules of Procedure would not have been possible without the dedicated efforts of the Assembly Secretariat. I extend my deepest gratitude to Secretary General, Ch Amer Habib, Director General (Law and Parliamentary Affairs) Mr Khalid Mahmood, and Additional Secretary (Legislation) Mr Ali Hussnain Bhalli, whose expertise and hard work ensured the smooth execution of this complex and arduous task. I also acknowledge the invaluable progressive input of independent law and policy expert
Mr Usama Khawar Ghumman, whose assistance was critical in shaping the amendments.
On September 9, 2024, the Punjab Assembly formally adopted these historic amendments. They are now incorporated into the Rules Book you hold in your hands. I am confident that these changes will usher in a new era of parliamentary efficiency, empowering the legislature to more effectively represent the people of Punjab and strengthen provincial governance.
This Book represents more than just procedural changes—it symbolizes our collective commitment to fostering an inclusive, transparent, and accountable Assembly that is truly reflective of the needs and aspirations of the people it serves. I trust that this revised edition will guide future legislators in upholding the highest standards of democratic practice and governance.
MALIK MUHAMMAD AHMAD KHAN
October 2024 SPEAKER