Islamabad as a Province: Completing the Federal Capital’s Governance Model

Islamabad was established to be the federal capital of Pakistan; however, the Islamabad that exists today is quite different from the one that was envisioned during the establishment of its governance framework. It is not merely a governmental center enclosed within a few sectors anymore. It is an expanding population center, an economic and educational center, a diplomatic center, and a complex urban area. Now comes the question of whether its governance system has developed at the same pace.

The census of 2023 counted the population of Islamabad to be 2.36 million people, compared to 2 million in 2017. Moreover, the population of Islamabad has increased along with its responsibility areas, where healthcare, education, transport, housing, environmental issues, municipal management, e-governance, and economic development require decision-making institutions.

This is precisely why the discussion of the governance of Islamabad needs to be elevated from the debate of creating yet another province. Rather, the core issue at hand is whether a city of over two million population needs to continue running through a fragmented administrative system or through a constitutionally established government that has its own powers and accountability.

Interestingly, the federal government has already created this opening. According to the ICT Governance Model established by the Planning Commission of Pakistan on the directives of the Prime Minister, there will be an Islamabad Capital Territory Assembly and chief executive that will be elected and accountable to the local constituency. This would ensure that the government of ICT has considerable administrative and financial powers for the sectors like health, education, environment, and public services whereas functions like law and order and master planning remain with the federal government on account of its national importance.

This forms an excellent base for thinking about the status of a province.

The most convincing reason for considering Islamabad as a province is not only because of the growth in population. It is because the responsibility of governance should come along with democratic accountability. If there is a city that needs laws passed regarding schooling, health facilities, roadways, transportation facilities, environmental management, and city expansion, then the citizens should know who is accountable for all these laws. Governance systems in which the power is dispersed amongst various ministries, the CDA, municipalities, and other institutions make it very hard to trace accountability.

Status as a province would ensure an effective chain of politics and administration. The elected legislature will formulate laws for the area, whereas the government will implement the laws and be accountable to the voters. The federal institutions would go on to do their jobs, while the provincial government will focus on the day-to-day requirements of the people of Islamabad.

This would not necessarily jeopardize the identity of Islamabad as the capital city of the nation. In fact, a well-designed constitutional framework could actually enhance this identity. The uniqueness of Islamabad lies in the fact that it serves two purposes at once – it is a seat of the national government of Pakistan and the place where millions of people live. The governing structure for Islamabad needs to cover both of these aspects.

While the federal government should remain in charge of the issues that are directly related to the capital city, namely, the security, foreign policy considerations, and the strategic aspects of the planning of the city, an elected provincial government can take care of social and economic development, administration of services, and urban governance.

Moreover, there is an institutional rationale behind such a change. Pakistan’s major cities are playing an increasing role in the economic development of the country. As such, Islamabad with its universities, IT sector, diplomacy, tourism, and services economy could serve as an example of an urban governance system.

The ongoing process of reform by the government itself acknowledges the need for a contemporary, efficient and responsive system for Islamabad. The 27-member assembly with directly elected and reserved seats is a significant step in this direction.

In this regard, the discussion should now enter the institutional level and not be confined to the political level only. There is no need for Islamabad to become a province just to increase the number of provinces in Pakistan. Rather, there is a need for Islamabad to have a governance system commensurate with its demographic size and significance.

If that system turns out to be a province, then it should be designed on one simple basis – the federal capital will always be the capital of the federation, while its citizens will simultaneously have their own government accountable to them. This will result in Islamabad being a much better governed federal capital city of modern Pakistan.