Second Chambers in Parliamentary Federations: The Senate of Pakistan in Comparative Perspective

University of Gujrat

Department of Political Science & International Relations

By: Muhammad Mushtaq

Supervised By:

Academic Level: Other

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Abstract

Federal bicameralism has recently received considerable scholarly attention. However, few studies have investigated the challenges that second chambers usually face in parliamentary federations in the face of stronger popular chambers (lower houses). Therefore, this study investigates the Senate’s position as a federal chamber compared to its counterparts in contemporary parliamentary federations. The paper shows that the Senate has received co-equal legislative powers (compared to National Assembly of Pakistan), and performs considerable oversight role since the federation has adopted the 18th Constitutional Amendment. Being an indirectly elected body, it can claim more democratic legitimacy than appointed or nominated federal chambers. Similarly, the Senate is among those second chambers that provide parity representation to constituent units irrespective of their population size. Besides, the disparity between sizes of two chambers in Pakistani parliament is not exceptional. National Assembly-to-Senate membership ratio is also comparable with Canada, Austria, and Malaysia. This comparison demonstrates that the Senate of Pakistan is not a deviant case, and it fulfills the requirements of a federal chamber. As compared to its Asian counterparts—the Indian Rajya Sabha and the Malaysian Dewan Negara, it appears a more influential house. Several reforms suggested by ethno-regional groups, such as powers related to election of Prime Minister, approval of budget, and endorsement of international treaties are not compatible with parliamentary system of government. Nevertheless, the centralized nature of party system, electoral malpractices, and weakening of democratic institutions are the factors that limit the federal role of Senate in Pakistan.

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On the direction of the Chairman Senate/President PIPS Board of Governors, the Pakistan Institute for Parliamentary Services (PIPS), has implemented a comprehensive set of measures aimed at ensuring fiscal discipline, operational efficiency, and responsible utilization of public resources, on the same lines as notified and adopted by the Senate and National Assembly Secretariats.

Under the new measures, the Institute has adopted a four-day working week (Monday to Thursday), while introducing a hybrid working model whereby 50% of staff will perform duties from the office and 50% will work remotely on a rotational basis. Employees working from home will remain fully accessible through digital communication platforms and may be required to report to the office on short notice, ensuring uninterrupted institutional functioning.

Significant steps have also been taken to promote energy conservation. These include a target of achieving up to 70% reduction in energy consumption through minimizing unnecessary use of electricity and ensuring that official meetings, trainings, and events are scheduled during daylight hours. Foreign tours are banned and international meetings are being held virtually.

In the transport section, PIPS has introduced strict measures to curtail expenditure and 70% official vehicles have been grounded as part of this initiative.

As part of broader austerity efforts, 20% reduction has been imposed on the non-ERE budget for the fourth quarter of the current financial year. The officers drawing a monthly salary of PKR 300,000 or more, shall surrendered two days salary or 5% to 30% salary on gross as per Federal Government decision.

The Institute has also discontinued all non-essential procurements with immediate effect. Official functions such as dinners and receptions will not be hosted, except in the case of visiting foreign delegations, and even then, strictly in accordance with austerity protocols.

These measures have been implemented with immediate effect and will remain in force until further orders.

Under the guidance of President PIPS Board of Governors, Syed Yousaf Raza Gilani, PIPS remains fully committed to maintaining its core functions of parliamentary support, capacity building, and research while contributing proactively to national austerity and sustainability goals.