Decentralization of Environment in Pakistan: Issues in Governance

Khayam, Maryam Umer; Ahmad, Iftikhar

doi:10.13169/polipers.17.2.0101

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Policy Perspectives

Volume 17, Issue 2

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Decentralization of Environment in Pakistan: Issues in Governance

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Author(s): Maryam Umer Khayam ^* , Iftikhar Ahmad ^**

Publication date (Print): 1 January 2020

Journal: Policy Perspectives

Publisher: Pluto Journals

Keywords: Environment, Devolution, Decentralization, 18th Amendment, Fiscal Decentralization, Forestry

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Journal ID (doi): 10.2307/j50009730

Journal ID (jcode): polipers

Title: Policy Perspectives

Publisher: Pluto Journals

ISSN: 1812-1829

ISSN: 1812-7347

Publication date (Print): 1 January 2020

Volume: 17

Issue: 2 ( doiID: 10.13169/polipers.17.issue-2 )

Pages: 101-116

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[* ]Socio-legal Researcher, Human Rights Lawyer; Project Associate, Institute of Policy Studies (IPS), Islamabad, Pakistan (2018-2020).

[** ]PhD, Assistant Professor, Pakistan Institute of Development Economics (PIDE), Islamabad, Pakistan.

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DOI: 10.13169/polipers.17.2.0101

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ScienceOpen disciplines: Education,Religious studies & Theology,Social & Behavioral Sciences,Law,Economics

Keywords: Fiscal Decentralization,Environment,Forestry,Devolution,Decentralization,18th Amendment

Notes

Zachary A. Wendling, John W. Emerson, Alex de Sherbinin and Daniel C. Esty, Environmental Performance Index 2020, report (New Haven: Yale Center for Environmental Law & Policy, 2020), https://epi.yale.edu/downloads/epi2020report20200911.pdf.
Andrew Maddocks, Robert Samuel Young and Paul Reig, “Ranking the World's Most Water-Stressed Countries in 2040,” Insights: World Resources Institute's (WRI's) Blog, August 26, 2015), https://www.wri.org/blog/2015/08/ranking-world-s-most-water-stressed-countries-2040.
David Eckstein, Vera Künzel, Laura Schäfer, Maik Winges, “Global Climate Risk Index 2020: Who Suffers Most from Extreme Weather Events? Weather-Related Loss Events in 2018 and 1999 to 2018” (Bonn: Germanwatch, 2019), https://www.germanwatch.org/sites/germanwatch.org/files/20-2-01e%20Global%20Climate%20Risk%20Index%202020_14.pdf.
Ibid.
Muhammad Ahsan Rana, “Decentralization Experience in Pakistan: The 18th Constitutional Amendment,” Asian Journal of Management Cases 17, no. 1 (2020): 61-84, https://doi.org/10.1177/0972820119892720.
Keith Carlisle and Rebecca L. Gruby, “Polycentric Systems of Governance: A Theoretical Model for the Commons,” Policy Studies Journal 47, no. 4 (2019): 926-952, https://doi.org/10.1111/psj.12212.
Muhammad Tayyab Sohail, Huang Delin, Muhammad Afnan Talib, Xie Xiaoqing and Malik Muhammad Akhtar, “An Analysis of Environmental Law in Pakistan - Policy and Conditions of Implementation,” Research Journal of Applied Sciences, Engineering and Technology 8, no. 5 (2014): 644-653, http://dx.doi.org/10.19026/rjaset8.1017.
Mudassar Hussain, Abdul Rahman Butt, Faiza Uzma, Rafay Ahmed, Samina Irshad, Abdul Rehman and Balal Yousaf, “A Comprehensive Review of Climate Change Impacts, Adaptation, and Mitigation on Environmental and Natural Calamities in Pakistan,” Environmental Monitoring and Assessment 192 (2019), https://doi.org/10.1007/s10661-019-7956-4.
Andrés Rodríguez-Pose, Nicholas Gill, “The Global Trend towards Devolution and its Implications,” Environment and Planning C: Government and Policy 21, no. 3 (2003): 333-351, https://journals.sagepub.com/doi/pdf/10.1068/c0235.
Pranab Bardhan, “Decentralization of Governance and Development,” Journal of Economic Perspectives 16, no. 4 (2002): 185-205, http://dx.doi.org/10.1257/089533002320951037.
Rémy Prud'homme, “The Dangers of Decentralization,” The World Bank Research Observer 10, no. 2 (1995): 201-220, https://doi.org/10.1093/wbro/10.2.201.
The fifteen constituent republics of the former Soviet Union have become independent states; Czechoslovakia peacefully split into the Czech Republic and Slovakia; four new states have emerged out of war-torn Yugoslavia, and Kosovo and Montenegro may follow suit.
John D Donahue, “The Disunited States,” Atlantic, May 1997, https://www.theatlantic.com/magazine/archive/1997/05/the-disunited-states/376854/.
New Federalism is characterized by gradual devolution of certain powers from to the states
“What is Devolution?” BBC Academy, September 19, 2019, https://www.bbc.co.uk/academy/en/articles/art20130702112133671.
Sam Peltzman and T. Nicolaus Tideman, “Local versus National Pollution Control: Note,” The American Economic Review 62, no. 5 (1972):959-963, https://www.jstor.org/stable/1815215?seq=1; and Maria Angeles Garcia-Valiñas, “Environmental Federalism: A Proposal of Decentralization” (paper, 44th ERSA Congress, Porto, August 2004), 6, https://core.ac.uk/download/pdf/7040404.pdf.
Ibid.
J.H. Cumberland, “Interregional Pollution Spillovers and Consistency of Environmental Policy,” in Regional Environmental Policy: The Economic Issues, eds. Horst Siebert, Ingo Walter and Klaus Zimmermann (New York: New York University Press, 1979), 255-281.
Wallace E. Oates, “A Reconsideration of Environmental Federalism,” in Recent Advances in Environmental Economics, eds. John A. List and Aart de Zeeuw (Cheltenham: Edward Elgar Publishing, 2002), 1-32.
Garcia-Valiñas, “Environmental Federalism: A Proposal of Decentralization.”
The Constitution (Eighteenth Amendment) Act of 2010, Sec. 101 (2010). See, Amendment of Fourth Schedule to the Constitution.
Ibid.
Anwar Shah, “The 18th Constitutional Amendment: Glue or Solvent for Nation Building and Citizenship in Pakistan?” in “Towards Accelerated Economic Growth in Pakistan: Its Need and Feasibility,” special issue, The Lahore Journal of Economics 17 (2012): 387-424 (394), https://doi.org/10.35536/lje.2012.v17.isp.a16.
Leslie Seidle and Zafarullah Khan, Federalism and Eighteenth Amendment: Challenges and Opportunities for Transition Management in Pakistan, report (Islamabad: United Nations Development Program, 2012), 12, http://www.forumfed.org/wpcontent/uploads/2016/02/18AmedmentReportLastFinalReport1.pdf.
The Constitution of Islamic Republic of Pakistan of 1973, (1973). See “Entry no. 24 of the CLL in the Fourth Schedule.”
SACEP, Handbook on Environmental Legislation and Institutions in Pakistan, Environmental Law and Policy (Colombo: South Asia Cooperation for Environment Programme, 2001), 57, http://www.sacep.org/pdf/Reports-Technical/2001-UNEP-SACEP-Law-Handbook-Pakistan.pdf.
Ernesto Sánchez-Triana, Santiago Enriquez, Javaid Afzal, Akiko Nakagawa and Asif Shuja Khan, Cleaning Pakistan's Air: Policy Options to Address the Cost of Outdoor Air Pollution (Washington, DC: World Bank, 2004), 6.
Ibid., 8.
The Constitution (Eighteenth Amendment) Act of 2010, Sec. 101 (3) (2010).
The Constitution (Eighteenth Amendment) Act of 2010, Art. 51 (2010).
The Constitution of Islamic Republic of Pakistan of 1973, Art. 147 (1973).
The Constitution (Eighteenth Amendment) Act of 2010, Sec. 52 (2010).
The Punjab Environmental Protection Act of 1997, Sec. 31 (1997). The Punjab Act came into force on April 18, 2012.
Shah, “The 18th Constitutional Amendment: Glue or Solvent for Nation Building and Citizenship in Pakistan?” 394.
Inter-Provincial Coordination Division, GoP, “Ministry of Inter-Provincial Coordination: History” (Government of Pakistan, n.d.), accessed December 2, 2020, http://www.ipc.gov.pk/Detail/ZDAzNTQwZjgtNTgzMi00ODAxLThjYmUtZGI2Y2UzYzcwM2E2.
United Nations Development Programme, “Strengthening Participatory Federalism and Decentralization,” strategy document, 2013, accessed November 30, 2020, http://www.undp.org/content/dam/pakistan/docs/Democratic%20Governance/Feder alism/Federalism.pdf.
United Nations Development Programme Pakistan, “18th Amendment Transition Management: Lessons Learned and Way Forward,” press release, 2013, http://www.pk.undp.org/content/dam/pakistan/docs/Democratic%20Governance/Fe deralism/Reportsandpublications/Quetta%20Report.pdf.
WBG, “Pakistan@100: Environmental Sustainability” (brief, World Bank Group, Washington, DC, 2019), https://openknowledge.worldbank.org/bitstream/handle/10986/31415/PakistanPN_E nvironmental_Sustainability.pdf?sequence=1&isAllowed=y.
Ibid., 29.
Rafay Alam, “Climate Governance in Pakistan after the 18th Amendment” (paper, Civil Society Coalition on Climate Change, Islamabad, 2019), 1-19, https://bit.ly/35Gm7nL.
Ibid.
This draft policy is not a formal legal document until approved by Cabinet and is not-for-circulation.
WBG, “Pakistan@100: Environmental Sustainability.”
The Constitution (Eighteenth Amendment) Act of 2010, Sec. 61 (3) (2010). http://www.pakistani.org/pakistan/constitution/amendments/18amendment.html. A province may raise domestic or international loans, or gives guarantees on the security of the provincial consolidated fund within such limits and subject to such conditions as may be specified by the National Economic Council.
Manzoor Ahmed and Akhtar Baloch, “The Impact of Fiscal Decentralisation through 7th NFC Award on Healthcare and Basic Education in Balochistan, Pakistan,” International Journal of Applied Business and Management Studies 4, no. 2 (2019): 1-30, http://www.ijabms.com/wp-content/uploads/2019/11/01_AHMED-BALOCH_PB_2.pdf.
Firuza Pastakia, Environmental Protection and the Eighteenth Amendment: Impact of Constitutional Amendments on Environmental Protection Legislation, Analysis of Laws in Force, and Assessment of Implementation Issues, report (Karachi: International Union for Conservation of Nature, 2012), https://www.iucn.org/sites/dev/files/import/downloads/pk_niap_impact_of_18th_amd_final_draft_19_may_2012_formatted.pdf.
To facilitate common, agreed-upon legislation across jurisdictions.
Fikret Berkes, “Devolution of Environment and Resources Governance: Trends and Future,” Environmental Conservation 37, no. 4 (2010): 489-500, http://www.jstor.org/stable/44594757.
Ibid.
Carlisle and Gruby, “Polycentric Systems of Governance: A Theoretical Model for the Commons,” 928.
CRS, Flooding in Pakistan: Overview and Issues for Congress (Washington, DC: Congressional Research Service, 2010), 1-14, https://www.everycrsreport.com/files/20101118_R41424_8fbe26dddl3e8d767b7b9f136a28b7371835db7d.pdf.

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Comment on this article

[1] Zachary A. Wendling, John W. Emerson, Alex de Sherbinin and Daniel C. Esty, Environmental Performance Index 2020, report (New Haven: Yale Center for Environmental Law & Policy, 2020), https://epi.yale.edu/downloads/epi2020report20200911.pdf.

[2] Andrew Maddocks, Robert Samuel Young and Paul Reig, “Ranking the World's Most Water-Stressed Countries in 2040,” Insights: World Resources Institute's (WRI's) Blog, August 26, 2015), https://www.wri.org/blog/2015/08/ranking-world-s-most-water-stressed-countries-2040.

[3] David Eckstein, Vera Künzel, Laura Schäfer, Maik Winges, “Global Climate Risk Index 2020: Who Suffers Most from Extreme Weather Events? Weather-Related Loss Events in 2018 and 1999 to 2018” (Bonn: Germanwatch, 2019), https://www.germanwatch.org/sites/germanwatch.org/files/20-2-01e%20Global%20Climate%20Risk%20Index%202020_14.pdf.

[4] Ibid.

[5] Muhammad Ahsan Rana, “Decentralization Experience in Pakistan: The 18th Constitutional Amendment,” Asian Journal of Management Cases 17, no. 1 (2020): 61-84, https://doi.org/10.1177/0972820119892720.

[6] Keith Carlisle and Rebecca L. Gruby, “Polycentric Systems of Governance: A Theoretical Model for the Commons,” Policy Studies Journal 47, no. 4 (2019): 926-952, https://doi.org/10.1111/psj.12212.

[7] Muhammad Tayyab Sohail, Huang Delin, Muhammad Afnan Talib, Xie Xiaoqing and Malik Muhammad Akhtar, “An Analysis of Environmental Law in Pakistan - Policy and Conditions of Implementation,” Research Journal of Applied Sciences, Engineering and Technology 8, no. 5 (2014): 644-653, http://dx.doi.org/10.19026/rjaset8.1017.

[8] Mudassar Hussain, Abdul Rahman Butt, Faiza Uzma, Rafay Ahmed, Samina Irshad, Abdul Rehman and Balal Yousaf, “A Comprehensive Review of Climate Change Impacts, Adaptation, and Mitigation on Environmental and Natural Calamities in Pakistan,” Environmental Monitoring and Assessment 192 (2019), https://doi.org/10.1007/s10661-019-7956-4.

[9] Andrés Rodríguez-Pose, Nicholas Gill, “The Global Trend towards Devolution and its Implications,” Environment and Planning C: Government and Policy 21, no. 3 (2003): 333-351, https://journals.sagepub.com/doi/pdf/10.1068/c0235.

[10] Pranab Bardhan, “Decentralization of Governance and Development,” Journal of Economic Perspectives 16, no. 4 (2002): 185-205, http://dx.doi.org/10.1257/089533002320951037.

[11] Rémy Prud'homme, “The Dangers of Decentralization,” The World Bank Research Observer 10, no. 2 (1995): 201-220, https://doi.org/10.1093/wbro/10.2.201.

[12] The fifteen constituent republics of the former Soviet Union have become independent states; Czechoslovakia peacefully split into the Czech Republic and Slovakia; four new states have emerged out of war-torn Yugoslavia, and Kosovo and Montenegro may follow suit.

[13] John D Donahue, “The Disunited States,” Atlantic, May 1997, https://www.theatlantic.com/magazine/archive/1997/05/the-disunited-states/376854/.

[14] New Federalism is characterized by gradual devolution of certain powers from to the states

[15] “What is Devolution?” BBC Academy, September 19, 2019, https://www.bbc.co.uk/academy/en/articles/art20130702112133671.

[16] Sam Peltzman and T. Nicolaus Tideman, “Local versus National Pollution Control: Note,” The American Economic Review 62, no. 5 (1972):959-963, https://www.jstor.org/stable/1815215?seq=1; and Maria Angeles Garcia-Valiñas, “Environmental Federalism: A Proposal of Decentralization” (paper, 44th ERSA Congress, Porto, August 2004), 6, https://core.ac.uk/download/pdf/7040404.pdf.

[17] Ibid.

[18] J.H. Cumberland, “Interregional Pollution Spillovers and Consistency of Environmental Policy,” in Regional Environmental Policy: The Economic Issues, eds. Horst Siebert, Ingo Walter and Klaus Zimmermann (New York: New York University Press, 1979), 255-281.

[19] Wallace E. Oates, “A Reconsideration of Environmental Federalism,” in Recent Advances in Environmental Economics, eds. John A. List and Aart de Zeeuw (Cheltenham: Edward Elgar Publishing, 2002), 1-32.

[20] Garcia-Valiñas, “Environmental Federalism: A Proposal of Decentralization.”

[21] The Constitution (Eighteenth Amendment) Act of 2010, Sec. 101 (2010). See, Amendment of Fourth Schedule to the Constitution.

[22] Ibid.

[23] Anwar Shah, “The 18th Constitutional Amendment: Glue or Solvent for Nation Building and Citizenship in Pakistan?” in “Towards Accelerated Economic Growth in Pakistan: Its Need and Feasibility,” special issue, The Lahore Journal of Economics 17 (2012): 387-424 (394), https://doi.org/10.35536/lje.2012.v17.isp.a16.

[24] Leslie Seidle and Zafarullah Khan, Federalism and Eighteenth Amendment: Challenges and Opportunities for Transition Management in Pakistan, report (Islamabad: United Nations Development Program, 2012), 12, http://www.forumfed.org/wpcontent/uploads/2016/02/18AmedmentReportLastFinalReport1.pdf.

[25] The Constitution of Islamic Republic of Pakistan of 1973, (1973). See “Entry no. 24 of the CLL in the Fourth Schedule.”

[26] SACEP, Handbook on Environmental Legislation and Institutions in Pakistan, Environmental Law and Policy (Colombo: South Asia Cooperation for Environment Programme, 2001), 57, http://www.sacep.org/pdf/Reports-Technical/2001-UNEP-SACEP-Law-Handbook-Pakistan.pdf.

[27] Ernesto Sánchez-Triana, Santiago Enriquez, Javaid Afzal, Akiko Nakagawa and Asif Shuja Khan, Cleaning Pakistan's Air: Policy Options to Address the Cost of Outdoor Air Pollution (Washington, DC: World Bank, 2004), 6.

[28] Ibid., 8.

[29] The Constitution (Eighteenth Amendment) Act of 2010, Sec. 101 (3) (2010).

[30] The Constitution (Eighteenth Amendment) Act of 2010, Art. 51 (2010).

[31] The Constitution of Islamic Republic of Pakistan of 1973, Art. 147 (1973).

[32] The Constitution (Eighteenth Amendment) Act of 2010, Sec. 52 (2010).

[33] The Punjab Environmental Protection Act of 1997, Sec. 31 (1997). The Punjab Act came into force on April 18, 2012.

[34] Shah, “The 18th Constitutional Amendment: Glue or Solvent for Nation Building and Citizenship in Pakistan?” 394.

[35] Inter-Provincial Coordination Division, GoP, “Ministry of Inter-Provincial Coordination: History” (Government of Pakistan, n.d.), accessed December 2, 2020, http://www.ipc.gov.pk/Detail/ZDAzNTQwZjgtNTgzMi00ODAxLThjYmUtZGI2Y2UzYzcwM2E2.

[36] United Nations Development Programme, “Strengthening Participatory Federalism and Decentralization,” strategy document, 2013, accessed November 30, 2020, http://www.undp.org/content/dam/pakistan/docs/Democratic%20Governance/Feder alism/Federalism.pdf.

[37] United Nations Development Programme Pakistan, “18th Amendment Transition Management: Lessons Learned and Way Forward,” press release, 2013, http://www.pk.undp.org/content/dam/pakistan/docs/Democratic%20Governance/Fe deralism/Reportsandpublications/Quetta%20Report.pdf.

[38] WBG, “Pakistan@100: Environmental Sustainability” (brief, World Bank Group, Washington, DC, 2019), https://openknowledge.worldbank.org/bitstream/handle/10986/31415/PakistanPN_E nvironmental_Sustainability.pdf?sequence=1&isAllowed=y.

[39] Ibid., 29.

[40] Rafay Alam, “Climate Governance in Pakistan after the 18th Amendment” (paper, Civil Society Coalition on Climate Change, Islamabad, 2019), 1-19, https://bit.ly/35Gm7nL.

[41] Ibid.

[42] This draft policy is not a formal legal document until approved by Cabinet and is not-for-circulation.

[43] WBG, “Pakistan@100: Environmental Sustainability.”

[44] The Constitution (Eighteenth Amendment) Act of 2010, Sec. 61 (3) (2010). http://www.pakistani.org/pakistan/constitution/amendments/18amendment.html. A province may raise domestic or international loans, or gives guarantees on the security of the provincial consolidated fund within such limits and subject to such conditions as may be specified by the National Economic Council.

[45] Manzoor Ahmed and Akhtar Baloch, “The Impact of Fiscal Decentralisation through 7th NFC Award on Healthcare and Basic Education in Balochistan, Pakistan,” International Journal of Applied Business and Management Studies 4, no. 2 (2019): 1-30, http://www.ijabms.com/wp-content/uploads/2019/11/01_AHMED-BALOCH_PB_2.pdf.

[46] Firuza Pastakia, Environmental Protection and the Eighteenth Amendment: Impact of Constitutional Amendments on Environmental Protection Legislation, Analysis of Laws in Force, and Assessment of Implementation Issues, report (Karachi: International Union for Conservation of Nature, 2012), https://www.iucn.org/sites/dev/files/import/downloads/pk_niap_impact_of_18th_amd_final_draft_19_may_2012_formatted.pdf.

[47] To facilitate common, agreed-upon legislation across jurisdictions.

[48] Fikret Berkes, “Devolution of Environment and Resources Governance: Trends and Future,” Environmental Conservation 37, no. 4 (2010): 489-500, http://www.jstor.org/stable/44594757.

[49] Ibid.

[50] Carlisle and Gruby, “Polycentric Systems of Governance: A Theoretical Model for the Commons,” 928.

[51] CRS, Flooding in Pakistan: Overview and Issues for Congress (Washington, DC: Congressional Research Service, 2010), 1-14, https://www.everycrsreport.com/files/20101118_R41424_8fbe26dddl3e8d767b7b9f136a28b7371835db7d.pdf.