In 2025, Security Took Precedence Over Democracy: PILDAT
PILDAT Quality of Democracy Report highlights consolidation of a hybrid governance model in Pakistan in 20254
The Pakistan Institute of Legislative Development and Transparency (PILDAT) has released its Assessment of the Quality of Democracy in Pakistan 2025, finding that while democratic institutions remain intact in form, their functioning has become increasingly constrained by a security-driven governance paradigm. Unlike previous years marked by political instability and contestation, 2025 was characterised by the consolidation and normalisation of the hybrid governance model rather than its disruption. The security-driven environment, particularly since the brief but intense Pakistan-India armed conflict in May 2025, has further entrenched the security establishment’s influence over all matters, including democratic institutions and governance in Pakistan. This “hybrid” model has the full endorsement of the civilian government, which increasingly views democracy through the lens of state survival. Regional security developments, including tensions with India and Afghanistan, alongside persistent internal insurgencies and intense political polarization, have all contributed to Pakistan’s reversion to becoming a security-centric state. Threat perceptions, internal and external, now override democratic norms and principles. At the same time, the post-May 2025 security environment elevated Pakistan’s regional strategic relevance, with exemplary military performance reframing the country from a perceived source of instability to a potential regional security actor in the eyes of several international partners. This strategic recalibration appears to have also resulted in increased international legitimacy for the “hybrid” model. Within this broader context, PILDAT’s assessment highlights the following institutional developments during 2025:
- Legislature: Parliament passed the consequential 27th Constitutional Amendment with limited debate and political consensus. Parliamentary representativeness and oversight were weakened by continuing vacancies in the offices of Leaders of the Opposition in both Houses and by depriving PTI of reserved seats earlier. Suspension by the Lahore High Court of the Punjab Protection of Ownership of Immovable Property Act, 2025 passed by the Punjab Assembly has raised new questions about the democratic principles and the powers of the elected houses.
- Executive: Executive authority remained formally civilian but substantively constrained. The Prime Minister and Defence Minister’s public statements regarding governing in collaboration with the security establishment exemplified the formalisation of the hybrid model.
- Judiciary: The judiciary experienced significant structural changes during 2025 as the 27th Constitutional Amendment led to the creation of a new apex court, the Federal Constitutional Court. Meanwhile, the continued operation of military courts for civilians, as well as high-profile accountability proceedings conducted under exceptional conditions, raised concerns regarding due process.
- Security and Rule of Law: The security establishment’s role in national decision-making became even more pronounced after major terrorist incidents, continued instability along the western border, and the Pakistan-India armed conflict in 2025. This was reflected in the restructuring of the military command through constitutional amendment, the elevation of the COAS to the rank of Field Marshal, and increasing public commentary by representatives of security institutions on governance and political issues.
- Electoral Integrity: Electoral processes continued through by-elections but low voter turnout, boycotts and political disengagement limited their capacity to restore public trust.
- Political Parties: Political parties remained highly centralised and dominated by entrenched leadership, with weak internal democracy and minimal inter-party dialogue. PTI continued without a proper party identity within the legislatures due to procedural issues controlled by the ECP.
- Decentralisation: Decentralisation remained one of the weakest dimensions of democratic governance in 2025. The continued absence of elected local governments in populous jurisdictions, like Punjab, Islamabad Capital Territory and Quetta, undermined grassroots democracy.
- Media and Human Rights: Media freedom and civic space continued to contract, following amendments to the Prevention of Electronic Crimes Act in January. Journalists and activists operated in an increasingly constrained environment, with dissent frequently framed as being against Pakistan’s national interest.
The full report can be read here: [English]