Over 50% agenda items left over in 11th session of 16th National Assembly

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Highlights

  • Eight (8) Sittings convened over 18 hours and 20 minutes
  • One (1) Government Bill and Two (2) Private Member Bills passed
  • 56.49% agenda items left over during the session

Highlight of the Session

The 11th session of the 16th National Assembly 2024 saw passage 0f one (1) Government Bill and two (2) Private Member Bills. A key point of contention was the amendments to the Societies Registration (Amendment) Bill, 2024, aimed at mandating the registration of madrassas, requiring annual audits, and introducing modern subjects into their curricula. Another major topic of debate was the PTI protest on November 26, 2024 where protestors clashed with law enforcement in Islamabad. The government’s heavy-handed response drew criticism from opposition members. The House unanimously passed a resolution on the 10th anniversary of the APS Peshawar attack.

Working Hours

The 11th Session of the 16th National Assembly was convened on December 10, 2024 and was prorogued on December 19, 2024. Eight (8) sittings were held for a total of 18 hours and 20 minutes. The longest sitting of the session was held on December 17, 2024 which lasted for 5 hours and 23 minutes while the shortest sitting on December 12, 2024 lasted for only 21 minutes. Schedule of the sittings is given in Appendix A.

Figure 1: Working Hours

Agenda Items Left Over

56.49% agenda items were left over during the 11th Session. These included proposed legislations, motions, and calling attention notices. Details of the agenda items left over are given in Appendix B.

Quorum

Quorum was pointed out twice during the session. It was first pointed out on December 10, 2024 by Mr. Muhammad Iqbal Khan, MNA (NA-27 Khyber, KP, SIC). The count was made and the House was not found to be in order and hence the sitting was adjourned even though on that date, 203 members were marked as present in the sitting. The second time quorum was pointed out was on December 18, 2024. When the count was made, the House was not found to be in order and the Deputy Speaker suspended the proceeding of the House for 15 minutes. When the count was made again, the House was found in order and the sitting was resumed. 162 members were marked as present in that sitting.

Attendance

On average, 172 (55%) MNAs were recorded as present in the session. Mr. Omar Ayub Khan, MNA (NA-18 Haripur, KP, Independent), Leader of the Opposition, attended 6 or 75% of 8 sittings. Prime Minister did not attend any sittings of this session.

Figure 3: Attendance

Top 5 Vocal MNAs

Mr. Omar Ayub Khan, Leader of the Opposition was the most vocal MNA during the session with a recorded talk time of 52 minutes. He was followed by Khawaja Muhammad Asif, MNA (NA-71 Sialkot-II, Punjab, PML-N), Federal Minister for Defence and Aviation, who spoke for 42 minutes. Maulana Fazl Ur Rehman, MNA (NA-265 Pishin, Balochistan, JUIP), spoke for 40 minutes. Mr. Ali Muhammad Khan, MNA (NA-23 Mardan-III, KP, SIC), spoke for 33 minutes and Mr. Shehryar Khan Afridi, MNA (NA-35 Kohat, KP, SIC), spoke for 30 minutes.

Figure 4: Top 5 Vocal MNAs

Legislation

One (1) Government Bill and two (2) Private Member Bills were passed during this session. A total of sixteen (16) bills were referred to relevant Standing Committees.

Government Bills passed during the Session

One (1) Government Member Bill was passed during the 11th Session.

The National Forensics Agency Bill, 2024 was laid in the House by Senator Azam Nazeer Tarar, Federal Minister for Law, Justice, Parliamentary Affairs and Human Rights on December 18, 2024 after being passed in the Senate on December 13. The bill aims to establish an independent National Forensic Agency (NFA) to enhance forensic capabilities nationwide. The agency will standardize forensic services, integrate advanced digital and cyber forensics, and provide expertise across all provinces, Gilgit-Baltistan, and Azad Jammu and Kashmir. The law aims to address challenges from fragmented forensic services and is seen as vital for modernizing forensic science in Pakistan. It received Presidential Assent on December 24, 2024.

During debate on the bill, Ms. Shazia Marri, MNA (NA-209 Sanghar-I, Sindh, PPPP) highlighted inconsistencies in the bill’s language particularly concerning references to the Prime Minister. She pointed out that in some sections, Prime Minister was explicitly mentioned, while in others, the term was omitted, which she argued could create ambiguity in the implementation of the bill.[1] Ms. Marri also criticized the proposed penalty for government officials misusing their authority, arguing that the fine of Rs 100,000 was insufficient to deter such violations. She recommended increasing the fine to at least Rs 500,000, emphasizing the need for stricter accountability measures to ensure the new agency’s integrity and effectiveness. She also cautioned against the potential for misuse of authority under the new agency, urging the government to ensure that the bill included safeguards against such risks.[2]

In response, Senator Azam Nazeer Tarar emphasized the necessity of establishing the National Forensic Agency (NFA) to address critical gaps in forensic science and enhance the efficiency of Pakistan’s criminal justice system. Addressing the issue of lenient penalties, he agreed that robust accountability mechanisms are vital but urged that the bill should not be delayed over disagreements about specific fine amounts. He reassured the Assembly that these concerns could be resolved later through amendments if required. Regarding the inconsistencies in the bill’s language, particularly the absence of uniform references to the “Prime Minister,” Senator Tarar committed to rectifying such ambiguities in subsequent revisions. He described these issues as minor drafting oversights that would not undermine the bill’s implementation or effectiveness.

Private Member Bills passed during the Session

Two (2) Private Member Bills were passed in the 11th Session.

The National Assembly Secretariat Employees (Amendment) Bill, 2024 was laid in the House on December 17, 2024 by Syed Naveed Qamar, MNA (NA-221 Tando Muhammad Khan , Sindh, PPPP). The bill was passed on the same day without being referred to Standing Committee. The bill aims to amend the National Assembly Secretariat Employees Act, 2018. The amendment mandates that appointments for positions up to Grade 15 in the National Assembly Secretariat be made through advertisements to ensure merit-based hiring. Additionally, these appointments will be conducted through the Public Service Commission. This change aims to enhance transparency and fairness in the recruitment process within the Secretariat.[3]

The Nippon Institute of Advanced Sciences Act, 2024 was laid in the House on July 09, 2024 by Mr. Zulfiqar Ali Bhatti (NA-85 Sargodha-IV, Punjab, PML-N) and was referred to Standing Committee on Federal Education, Professional Training, National Heritage and Culture. The committee submitted its report on October 29, 2024. The law aims to establish the Nippon Institute of Advanced Sciences as an institution dedicated to higher education and research in advanced scientific fields. The bill extends to the entire country and will come into force immediately upon its enactment. The Institute aims to promote scientific innovation, research, and development, contributing to Pakistan’s technological advancement and educational growth. Federal Law Minister endorsed the bill. No significant objections were raised against the bill leading to its smooth passage on December 17, 2024. [4]

Ordinances

No ordinance was laid during the 11th Session of the National Assembly.

Resolutions

One (1) Resolution was adopted during the Session.

The resolution was passed unanimously on December 16, 2024 commemorating the 10th anniversary of the tragic attack on the Army Public School (APS) in Peshawar. Moved by Ms. Shazia Marri, MNA (NA-209 Sanghar-I, Sindh, PPPP), the resolution honoured the 149 innocent lives lost, including 132 children, and reaffirmed the nation’s commitment to eradicating terrorism and extremism. It also emphasized the importance of ensuring justice for the victims and enhancing the security of educational institutions to prevent such tragedies in the future.

Analysis [7]

The 11th session of the National Assembly of Pakistan. With fewer new laws passed in comparison to previous sessions, this session was marked by debates on issues including the PTI showdown in Islamabad, controversy surrounding the amended Societies Registration Act, 2024 and violence in Kurram.

On November 26, 2024, the PTI organized a significant protest in Islamabad. The demonstrators breached security barriers and defied lockdowns, marching toward the Red Zone near the National Assembly to demand former PM’s release from prison and the restoration of PTI’s “stolen mandate.” The protest escalated into violent clashes and there remained a major controversy regarding the actual number of lives lost during the protest.[8] Opposition members expressed outrage over the government’s response to the political protest and demanded a judicial inquiry into deaths and criticized the use of force against peaceful demonstrators. “The hands of Shehbaz Sharif are stained with blood of Model Town and November 26 victims,” alleged Mr. Omar Ayub Khan, Leader of the Opposition. Highlighting alleged ethnic profiling, Mr. Khan accused the government and Islamabad police of targeting Pashtuns following the PTI protest.[9]

MNAs from the PML-N defended the government’s actions, asserting that the protest had turned violent and posed a threat to public order. The claims of casualties made by the opposition were promptly denied by Federal Minister for Defence who pointed out that the opposition had not offered any proof to support its assertions. “Such baseless statements and rhetoric without proof are an insult to the people,” he said.[10]

Rana Sanaullah, Advisor to Prime Minister on Political And Public Affairs and Inter-Provincial Coordination, invited the PTI to officially approach the government for talks, emphasizing the need for dialogue to resolve political differences. “But this is a reality that in this parliamentary democratic system; until the opposition leader and leader of the House don’t sit and have dialogue, this system cannot work,” he said. He stressed that “both wheels need to turn for the car to move forward.” [11]

Mr. Gohar Ali Khan, MNA (NA-10 Buner, KP, SIC) emphasized the importance of moving on by making amends for past errors, requesting that the government at the very least issue an apology and provide compensation for party members who were allegedly killed during the protest on November 26 at D-Chowk in Islamabad. Speaking on a point of order, he stated that 12 PTI protesters were killed at the “doorstep of the Parliament” for which the country demands accountability. “Even if bullets have been fired, there should at least be the courage to give answers, show remorse, apologise, investigate, and compensate the people,” he demanded.[12]

On December 17, 2024 Maulana Fazl Ur Rehman, MNA (NA-265 Pishin, Balochistan, JUIP), delivered a speech in reference to the Societies Registration (Amendment) Bill, 2024, which was aimed at regulating religious institutions, particularly madrassas (religious schools) in Pakistan. Key amendments made by parliament included the requirement for societies to register with the government and provide detailed financial disclosures, as well as increased oversight to ensure compliance with national security standards. These amendments were designed to enhance transparency, prevent misuse, and ensure that societal organizations operate within the legal framework. He criticized the government for its handling of the bill, particularly in relation to the President’s refusal to sign the bill into law which had been passed by the Parliament in the 10th session when the 26th Amendment was passed. President Asif Ali Zardari cited worries about its necessity and possible repercussions. He maintained that the new law was unnecessary because madrassa regulation was already adequately covered under the Islamabad Capital Territory Trust Act of 2020 and the Pakistan Madrasa Education Board Ordinance of 2001. President voiced concerns that by permitting several seminaries to function under a single organization, placing madrassas under the Societies Registration Act may inadvertently encourage sectarianism and undermine law and order. He also cautioned that such laws might draw condemnation from around the world and harm Pakistan’s reputation with groups like the Financial Action Task Force (FATF), which keeps an eye on financial transparency and the funding of terrorism.[13]

Maulana Fazl Ur Rehman warned that if the bill was not enacted, he would take the issue to the streets. His statement reflected the deep frustration within religious circles as many felt that the government was encroaching on religious autonomy under the guise of regulation through the Ministry of Education, and instead wanted that the seminaries be registered only under the Societies Registration Act.[14] He criticised the government’s division of madrassas into “religious” and “modern” categories as a flawed approach. He argued that madrassas have continuously adapted to modern educational demands without compromising their religious teachings, and such divisions would unfairly stigmatize these institutions. [15]

Federal Law Minister acknowledged the concerns raised but defended the government’s position on the bill. He clarified that the bill had already been passed through the Parliament and was awaiting the Presidential assent. Despite the delay, he assured, that the government was committed to resolving the issue in accordance with constitutional protocols. “We own the bill whether its provisions were correct or wrong, but legal aspects need to be seen,” and added that the “bill was passed by the National Assembly and the Senate after the decision was reached with Maulana Fazl Ur Rehman. [16] On December 27, President signed his assent to the Societies Registration (Amendment) Act, 2024.

The issue of escalating violence and unrest in Kurram district was highlighted by MNAs. Mr. Hameed Hussain MNA (NA-37 Kurram, Balochistan, MWMP) raised the dire humanitarian crisis in Kurram detailing the inhumane conditions faced by the local population. He condemned the sectarian violence which had resulted in the martyrdom of many people and spoke of severe shortages of food and fuel with roads in the region blocked. He criticized the government’s lack of action and argued that a divide-and-rule policy was exacerbating the situation. This concern was echoed by Khawaja Muhammad Asif, MNA (NA-71 Sialkot-II, Punjab, PML-N), Federal Minister for Defence and Aviation who acknowledged the ongoing conflict but placed responsibility on the provincial government for restoring peace. He emphasized that it was up to the provincial authorities, in consultation with the Governor, to manage the situation effectively. Syed Rafiullah, MNA (NA-230 Malir-II, Sindh, PPP) also criticized the provincial leadership for failing to maintain law and order in Kurram and suggested that the provincial government should have been more proactive. The lack of a substantial debate on Kurram issue was seen as a failure to address a critical regional crisis. [17]

Time consumed on discussion of Policy Issues during 11th Session

The quality of the time used during the National Assembly session can be gauged by analysing the time consumed on discussing key issues of democratic governance. The time dedicated to discussion on policy issues was 10 hours and 15 minutes.[18]


References

  1. “National Assembly passes National Forensic Agency Bill 2024,” Express Tribune online, December 18, 2024, accessed December 20, 2024. https://tribune.com.pk/story/2516807/national-assembly-passes-national-forensic-agency-bill-2024.

  2. “NA greenlights bill to establish independent National Forensic Agency,” Pakistan Today online, December 18, 2024 accessed December 20, 2024. https://www.pakistantoday.com.pk/2024/12/18/na-greenlights-bill-to-establish-independent-national-forensic-agency/.

  3. “NA passes Secretariat Employees (Amendment) Bill, 2024” Daily Times online, December 19, 2024, accessed December 21, 2024. https://dailytimes.com.pk/1248519/na-passes-secretariat-employees-amendment-bill-2024/.

  4. Ibid.

  5. It must be noted that all the bills mentioned were referred to relevant Standing Committees after introduction.

  6. Ibid.

  7. It must be noted that to inform our analysis, PILDAT’s researchers have analysed live proceedings of the National Assembly and various documents including, but not limited to, the National Assembly’s Daily Journals, Committee Reports and NA Debates.

  8. “PTI confirms 12 killed in Islamabad protest despite earlier claims of higher death toll,” Express Tribune online, November 29, 2024, accessed, December 22, 2024. https://tribune.com.pk/story/2512724/pti-confirms-12-deaths-in-islamabad-protest-despite-earlier-claims-of-higher-death-toll.

  9. Amir Wasim “PM ordered crackdown on PTI protesters, alleges Omar AyubDawn online, December 11, 2024, accessed December 20, 2024. https://www.dawn.com/news/1877973/pm-ordered-crackdown-on-pti-protesters-alleges-omar-ayub.

  10. Rizwan Shehzad. “Govt, PTI face off in NA over protest deaths,” Dawn online, December 11, 2024 accessed December 15, 2024. https://tribune.com.pk/story/2515222/govt-pti-face-off-in-na-over-protest-deaths.

  11. Rana Sanaullah invites PTI to officially approach govt for talks,” Dawn online, December 17, 2024, accessed December 20, 2024. https://www.dawn.com/news/1879323.

  12. Amir Wasim. “PTI ready to bury hatchet, only to block ‘third force,” Dawn online, December 12, 2024 accessed December 20, 2024. https://www.dawn.com/news/1878238.

  13. Naveed Butt, “Madrassah registration: President says ‘new law is unnecessary” Business Recorder online, December 14, 2024 accessed December 18, 2024. https://www.brecorder.com/news/40337548

  14. “Fazl vows to take madrassa bill issue to the streets,” Express Tribune online, December 17, 2024, accessed December 22, 2024. https://tribune.com.pk/story/2516597/fazl-vows-to-take-madrassa-bill-issue-to-the-streets.

  15. “Fazl urges govt to notify madrassa bill immediately,” Busniess Recorder online, December 18, 2024, accessed December 22, 2024. https://www.brecorder.com/news/40338205/fazl-urges-govt-to-notify-madrassa-bill-immediately.

  16. “Fazl warns govt of street protests over madrasa bill,” The News online, December 18, 2024 accessed December 22, 2024. https://www.thenews.com.pk/print/1262797-fazl-warns-govt-of-street-protests-over-madrasa-bill.

  17. Naveed Butt and Sardar Sikander Shaheen, “PTI leader alludes to ‘civil disobedience movement” Busniess Recorder, online, December 11, 2024 accessed December 18, 2024. https://www.brecorder.com/news/40336941

  18. It must be noted that PILDAT has classified that a policy issue is such that involves any legislation or a recommendation on devising a policy.