Record bills passed amid political turmoil

PILDAT flags declining attendance, executive absence

ISLAMABAD:

The 16th National Assembly posted its highest legislative output in recent parliamentary history during its second year, even as political polarisation, declining attendance and institutional vulnerabilities continued to shadow its performance, according to PILDAT's annual performance assessment.

Covering the period from March 1, 2025 to February 28, 2026, the report notes that the assembly entered its second parliamentary year "amid sustained political polarisation and institutional strain", yet demonstrated "heightened legislative activity alongside continuing structural and procedural challenges".

The assembly met for 84 working days during the year, down from 93 sittings in its first year, a decline of approximately 9.7%. However, total working hours increased to 231 hours, up from 212 hours previously, indicating comparatively longer sittings.

Despite this increase, the total working hours remained "significantly below the historical second-year average of 324.5 hours observed in previous assemblies," the press release noted.

Financially, the assembly's annual budget stood at Rs16,290 million. The average budget per sitting rose sharply to Rs193.93 million, compared to Rs136.96 million in the first year.

Legislative productivity intensified considerably. A total of 59 bills were passed during the second year, compared to 47 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 current assembly recorded the highest legislative output among recent assemblies.

At the same time, reliance on executive legislation declined. Eight ordinances were laid during the year, down from 16 in the first year, a 50% reduction.

Among the most consequential developments was the passage of the 27th Amendment.

According to the report, the amendment introduced "structural changes to Pakistan's judicial architecture, including the establishment of a Federal Constitutional Court, alterations to judicial appointment processes, restructuring of the military command framework, and expanded constitutional immunities for key officeholders".

The amendment generated "intense political and legal debate," with critics raising concerns regarding judicial independence, separation of powers, and civil–military balance. Its passage marked the most significant constitutional development of the assembly's second year.

Another controversial measure was the Elections (Amendment) Bill, 2026, which restricted public access to parliamentarians' asset statements by granting discretionary authority to the speaker or chairman to withhold disclosures on security grounds.

The bill triggered debate over transparency and accountability, particularly due to the expedited legislative process used for its passage.

Despite increased lawmaking, structural weaknesses persisted. During the second year, 47.59% of scheduled agenda items remained unfinished, only slightly better than 49.18% in the first year, meaning nearly half of the planned business was left incomplete.

Attendance trends also reflected declining engagement. Average attendance of MNAs fell to 58.80%, compared to 66.29% in the first year. Quorum was pointed out 19 times, with eight sittings adjourned due to a lack of quorum.

Structural concerns regarding the attendance recording system remain unresolved.

Prime Minister Shehbaz Sharif attended six out of 84 sittings, reflecting an attendance rate of approximately 7%, continuing a pattern of limited executive presence in parliamentary proceedings.

A defining institutional challenge during the year was the prolonged absence of a formally recognised Leader of the Opposition.

Following the disqualification of Omar Ayub Khan on August 5, 2025, the office remained vacant until January 16, 2026, when Mahmood Khan Achakzai was formally notified. The five-month vacuum weakened coordinated opposition oversight during a period of significant constitutional and legislative change.