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First Parliamentary Year of the 14TH NATIONAL ASSEMBLY

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First Parliamentary Year of the 14TH NATIONAL ASSEMBLY FAFEN PARLIAMENT MONITOR First Parliamentary Year of the 14TH NATIONAL ASSEMBLY June 2013 – May 2014 National Assembly of Pakistan ir Electio a n F N & e t w e e o r r k F FAFEN FREE AND FAIR ELECTION NETWORK w w w . f a f e n . o r g FAFEN Parliament Monitor: Annual Appraisal of the 14th National Assembly First Parliamentary Year (June 2013 – May 2014) - Islamabad: FAFEN, 2014. Free and Fair Election Network All rights reserved. Any part of this publication may be produced or translated by duly acknowledging the source. 1st Edition: July 2014. Copies: 2000 FAFEN is governed by the Trust for Democratic Education and Accountability (TDEA) TDEA-FAFEN Secretariat: Islamabad, Pakistan Email: [email protected] Website: www.fafen.org Disclaimer: This publication has been produced with the assistance of the European Union. The contents of this publication are the sole responsibility of FAFEN and can in no way be taken to reflect the views of the European Union. Every efforts has been taken to maintain accuracy. To intimate any errors and omissions, please contact House 145, St 37, F-10/1, Islamabad - 051-8466232 This report is based on direct observation of the National Assembly proceedings conducted by CPDI Development Organization, a member organization of FAFEN Acknowledgement The Parliament Watch program of Free and Fair Election Network (FAFEN) aims at collecting and publishing information on the performance of Members of the National Assembly by observing their legislative activities and the conduct of business during parliamentary sessions. FAFEN intends to foster informed engagement between constituents and elected representatives by providing objective and statistically-sound information on parliamentary processes and decisions. The effectiveness of parliamentary business is assessed through direct observation of parliamentary procedures keeping an eye on both process and result. FAFEN has devised a robust methodology to observe parliamentary proceedings. A standardized observation checklist based on rules of procedure is used by parliamentary observers, who attend the sittings of the Parliament and collect information on all major types of parliamentary business. The report would not have been possible without the guidance and strategic input of the CEO Muddassir Rizvi. The Parliament Watch team comprising the data management and analysis unit of Shehzad Anwer and Mohammad Waqas complemented the work of the report writing and editing unit comprising Amna Imtiaz, Sheemah Khan, Maryam Naseer, Ayesha Rehman and Hajra Akhlaq ably led by Usama Zafar. Additionally, the contribution of graphic designer Hammad Hussain also deserves special mention. Lastly, FAFEN would like to thank European Union for their generous support in realizing our vision of making the Parliament's activities and performance transparent and accessible to the public. Zaheer Khattak, Chairperson TDEA-FAFEN Board of Trustees Table of Contents Executive Summary 3 1.0 Parliamentary Output 6 1.1 Government Bills Passed 6 1.2 Government Bills Introduced 7 1.3 Private Bills Introduced 8 1.4 Amendments in the Rules of Procedure and Conduct of Business 9 1.5 Standing Committee Reports 9 1.6 Resolutions 10 2.0 Representation and Responsiveness 12 2.1 Motions under Rule 259 12 2.2 Adjournment Motion 13 2.3 Motion under Rule 244 13 2.4 Matters of Public Importance 13 2.5 Budget Session 13 3.0 Executive Oversight 15 3.1 Calling Attention Notices (CANs) 15 3.2 Questions 17 4.0 Session Time and Members' Participation 20 4.1 Duration 20 4.2 Key Members' Attendance 20 4.3 Parliamentary Leaders' Attendance 21 4.4 Members’ Attendance 21 4.5 Participation 22 4.6 Non-Participating Members 23 5.0 Order and Institutionalization 24 5.1 Conduct of Members 24 5.2 Questions of Privilege 24 5.3 Quorum 25 5.4 Protests/Walkouts/Boycotts 25 5.5 Points of Order (POs) 26 Annexure A: List of Government Bills Passed 30 Annexure B: List of Government Bills Introduced 30 Annexure C: List of Private Bills Introduced 31 Annexure D: List of Resolutions Adopted 35 Annexure E: List of Calling Attention Notices Moved by Lawmakers 43 Annexure F: List of Questions of Privilege 51 Annexure G: List of Motions Under Rule 259 52 Annexure H: Parliamentary Interventions: Member-wise Performance 55 Glossary 66 Abbreviations AJIP Awami Jamhuri Ittehad Pakistan ANP Awami National Party APML All Pakistan Muslim League AMLP Awami Muslim League Pakistan BNP Balochistan National Party IND Independent Member JI Jamaat-e-Islami JUI-F Jamiat-e-Ulema-Islam - Fazlur Rehman MQM Muttahida Qaumi Movement NP National Party NPP National Peoples Party PkMAP Pakhtunkhwa Milli Awami Party PML Pakistan Muslim League PML-F Pakistan Muslim League (Functional) PML-N Pakistan Muslim League (Nawaz) PML-Z Pakistan Muslim League (Ziaul Haq Shaheed) PPPP Pakistan Peoples Party Parliamentarians PTI Pakistan Tehreek-e-Insaf QWP Qaumi Watan Party g r o . n e f a f . w w w 2 Y L B M E Executive Summary S S Marked by national security challenges, post-election disputes and strained civil-military relations, the first A L parliamentary year of the 14th National Assembly, which ended on May 28, 2014, saw the passage of only 11 A treasury-backed bills. N O I T Following the country's first-ever democratic transition of power, the National Assembly had to respond to A 1 N public concerns over prevailing multi-pronged issues of governance. Meeting for 99 sittings , the National H Assembly's focus remained on bills pertaining to judicial commissions, banking and amendments in the Anti- T 4 1 Terrorism Act 1997. e h t f In the event of continuing insurgency and sectarian violence as well as the change in leadership of o r a e neighbouring countries, the re-haul of internal and external security policy was expected among the major Y y r tasks the PML-N government would perform. The House passed only three relevant bills during the year – a t n the Anti-Terrorism (Amendment) Bill 2014, the Anti-Terrorism (Second Amendment) Bill 2014, and the e m a i Protection of Pakistan Bill 2013. l r Pa t s r The second amendment in the Anti-Terrorism Act sought to counter terrorism financing and address i shortcomings highlighted in the original act by the international body - the Financial Action Task Force. On the F other hand, the remaining two bills faced vehement opposition due to clauses pertaining to powers given to the security forces to detain suspects for up to 90 days without disclosure of their location. Other treasury-backed legislations pertained to repeal of an obsolete bill, and for the most part, were amendments in existing laws dealing with government institutions, such as the Law and Justice Commission, bar councils and services tribunals. No private members' bill was passed during the year. However, 45 bills were introduced in the House. Moreover, 26 Standing Committee reports were also presented, including three quarterly reports and one annual report on the performance of the economy; two monitoring reports on the implementation of NFC award as well as others on federal accounts and audits etc. In terms of attendance and participation reflecting the interest of members in the House proceedings, 89% of the total membership of 341 took part in the sessions by submitting agenda items, taking part in debates, or both, while the remaining 11% members did not participate in the sessions in any way. Among single member parties, members of AJIP, APML, AMLP, and NP submitted agenda items and participated in the debates, while those of BNP-A, PML-Z, and QWP only took part in the debates. Similarly, all four members of JI participated in the sessions by submitting agenda items as well as taking part in the debates. Attendance of parliamentary leaders varied during the year as the PkMAP leader was present in 60 out of 99 sittings, followed by JI (59), QWP (46), AMLP (42), APML (40), PML-Z and ANP (34 each), PML-F (30), MQM (21), JUI-F (15) and PTI and PML (11 each). Moreover, two sittings each were attended by leaders of NPP, BNP, AJIP and NP. The Prime Minister was present in only seven sittings, while the Leader of the Opposition was present in 75. The Speaker presided over 59% of total time, whereas Deputy Speaker chaired 26% of the time during the year. The remaining 7% of the time was chaired by members of the Panel of Chairpersons. The National Assembly adopted 56 out of 110 resolutions moved on the floor. Thirty-four resolutions appeared on the Orders of the Day, while the remaining were submitted as supplementary agenda in light of national and international events as they occurred, such as the attack on the Quaid's residency in Ziarat, terrorist attacks on Bolan Medical College and Hospital Complex in Quetta and the death of Nelson Mandela. Eighteen adopted resolutions were jointly sponsored by members of various political parties. Through these resolutions, the House condemned the attacks on the Quaid's residency, Bolan Medical College, All Saints Church in Peshawar, drone attacks, Indian aggression on the Line of Control (LoC), the execution of Abdul 1 This figure does not include the weekends and only accounts for the sittings (the actual days members met in the assembly as part of the plenary sessions). The National Assembly Secretariat counts the weekends as working days when the assembly is in session. 3 Qadir Molla in Bangladesh and the use of force on civilians by Egyptian security forces. The parliamentarians moved 67 motions under Rule 259, of which 16 were debated on the floor for nearly 54 hours while the remaining were not taken up. Thirty-nine lawmakers (22 male and 17 female) from PML- N, PPPP, PTI, MQM, JUI-F and JI sponsored these motions.
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