As the third parliamentary year commenced on March 2, 2026, with the President’s address to the Joint Sitting, PILDAT reviews the legislative performance and effectiveness of the 16th National Assembly in its second year.
In its annual of the performance of the 16th National Assembly during its second year, PILDAT has noted that while the Assembly recorded the highest legislative output among recent assemblies, it continued to demonstrate structural weaknesses in attendance, agenda management, executive engagement, and deliberative scrutiny. The heightened pace of legislation, particularly on constitutionally significant matters, often unfolded within compressed timeframes, limiting the opportunity for sustained parliamentary debate and committee review.
The second parliamentary year of the 16th National Assembly spanned from March 1, 2025 to February 28, 2026. During this period, the Assembly was convened for 84 sittings, compared to 93 sittings in its first year, reflecting a decline of 9.7%. However, total working hours increased to 231 hours, up from 212 hours in the first year, indicating longer sittings despite fewer working days. 
The total annual budget of the National Assembly stood at PKR 16,290 million during the second year. The average budget per sitting rose significantly to PKR 193.93 million, compared to PKR 136.96 million in the first year. The increase in cost per sitting underscores the importance of ensuring that parliamentary time is utilized efficiently and productively.
Legislative productivity intensified during the second year, with the passage of 59 bills, compared to 47 bills in the first year — a 25.5% increase. Compared to the second years of the 12th to 15th National Assemblies, where the average number of bills passed stood at 21.75, the 16th National Assembly recorded the highest legislative output among recent assemblies. 
At the same time, reliance on ordinances declined to 8 ordinances, down from 16 in the first year, indicating relatively reduced executive-driven legislation.
Among the most consequential legislative developments was the passage of the 27th Constitutional Amendment, which introduced structural changes affecting judicial appointments and institutional balance. The Amendment generated intense political and legal debate both within Parliament and beyond. The year also witnessed passage of the Elections (Amendment) Bill, 2026, which restricted public access to legislators’ asset declarations by granting discretionary authority to withhold such information on security grounds. The speed with which several major laws were processed raised concerns about limited committee scrutiny and constrained clause-by-clause deliberation.
Despite record legislative output, agenda efficiency remained weak. During the second year, 47.59% of the scheduled daily agenda items were left over, only marginally improved from 49.18% in the first year. Nearly half of planned parliamentary business remained incomplete, reflecting structural challenges in legislative planning and time management.
Attendance trends reflected declining member engagement. Average attendance of MNAs fell to 58.80%, compared to 66.29% in the first year. Quorum was pointed out 19 times, and 8 sittings had to be adjourned due to lack of quorum. Prime Minister Mian Muhammad Shehbaz Sharif attended 6 out of 84 sittings, recording an attendance rate of approximately 7%. Limited executive presence in the House, combined with declining overall attendance, constrained opportunities for robust parliamentary oversight and accountability. 
The second year also witnessed a prolonged vacancy in the office of the Leader of the Opposition following the disqualification of Omar Ayub Khan on August 5, 2025. The position remained vacant until January 16, 2026, creating a five-month leadership gap during a period of significant constitutional and legislative activity. This institutional vacuum further reduced the scope for structured government–opposition engagement at a time when consensus-building was particularly needed.
In terms of individual participation, Defence Minister Khawaja Muhammad Asif was the most vocal MNA during the second year, recording the highest cumulative speaking time in the House. The top five most vocal members together accounted for a significant share of total debate time, indicating that parliamentary discussion remained concentrated among a limited group of legislators.
Keeping the important position of Leader of the Opposition vacant for five months marked a low point in parliamentary performance and so was the dissociation of opposition MNAs from the standing committees. MNAs who refuse to join Standing Committees proceedings are not doing justice to their parliamentary duties for which they are elected. 
Politically, the year remained marked by heightened contestation within parliamentary space, including protest strategies adopted inside Parliament House. At the same time, the Assembly demonstrated capacity for bipartisan consensus on matters of national security, adopting a unanimous resolution in May 2025 during heightened tensions with India, affirming Pakistan’s sovereignty and territorial integrity.
Overall, the second year of the 16th National Assembly reflects a legislature that was quantitatively productive yet institutionally strained. While legislative throughput reached historic levels, declining attendance, persistent quorum disruptions, incomplete agenda disposal, and compressed deliberative processes raise concerns about the depth and quality of parliamentary functioning. Strengthening committee oversight, improving participation, and reinforcing meaningful debate will be essential to enhancing democratic credibility as the Assembly enters its third year.
To read the complete report, click on this link.