Reimagining Federalism: Constitutional Challenges in Pakistan’s Multi-Tier Governance System

Federalism in Pakistan is both a constitutional framework and a contested political practice, shaped by historical centralization, amendments, and political bargaining. This study examines the constitutional and institutional challenges facing Pakistan’s multi-tier governance, including ambiguities in legislative powers, fiscal imbalances from National Finance Commission arrangements, weak intergovernmental bodies like the Council of Common Interests, and the uneven integration of the former Federally Administered Tribal Areas into Khyber Pakhtunkhwa. Using a qualitative approach, the research analyses constitutional texts, policy documents, judicial rulings, and scholarly literature to identify gaps between legal provisions and practical implementation. Findings indicate that constitutional amendments alone cannot ensure effective federalism; sustainable governance requires fiscal equity, strong intergovernmental mechanisms, and a normative shift toward cooperative governance. The article concludes with legal, institutional, and policy recommendations to strengthen cooperative federalism, promote inclusive development, and enhance stability, emphasizing that Pakistan’s federal structure must combine constitutional design with functional and equitable institutional practices.