Legal Frame Work Order: Features of Lfo

25.
LEGAL FRAME
WORK ORDER
The Legal Framework Order (LFO) of 1970 was a set of constitutional guidelines
issued by General Yahya Khan, who was then the President and Chief Martial Law
Administrator of Pakistan. The LFO sought to establish a framework for conducting
general elections and transferring power to an elected government after years of
military rule.
FEATURES OF LFO
1: The National Assembly of Pakistan will consist of 313 seats with 13 seats reserved
for women. Out of 313, 169 seats were reserved for East Pakistan, 85 for Punjab, 28
for Sindh, 19 for NWFP, 5 for Baluchistan, and 7 seats were allotted to the tribal
areas.
2: Each province will have a provincial assembly consisting of elected members. East
Pakistan provincial assembly will have 400 members, Punjab 186, Sindh 62,
Baluchistan 21, and NWFP 42.
3: The elections for National Assembly will be held on 5 October 1970 and for
provincial assemblies not later than 22 October.
4: The new constitution of Pakistan will follow these principles:
a: Pakistan will be the Federal Republic and will be known as the Islamic Republic of
Pakistan b: The head of the Pakistan state would be a Muslim and the divinity of
Islam will be preserved in the constitution.
c: The principles of democracy will prevail by holding free elections for federal and
provincial legislatures based on adult franchise. Independent judiciary will be made
possible along with fundamental rights for the citizens.
d: The center will remain strong while all provinces will be given maximum
autonomy.
e: The state will try to eliminate economic disparities in the society and the citizens
of the country will be able to participate actively in the affairs of the state.
f: The constitution of the country will enable the Muslims of Pakistan to live their
lives according to the teachings of Islam. The minorities will be free to follow their
faiths and will be able to enjoy the benefits of citizenship along with their fellow
Pakistanis.
g: The LFO clarified the status of national and provincial assemblies. The National
Assembly would either be the only legislature provided that federal legislature
consisting of one house or it would be the lower house if the federation has two
houses. Its tenure would be for the full term in both cases. The same went for
provincial assemblies.
h: The Constituent Assembly was to stand dissolved if it was unable to frame the
Constitution within 120 days.
5: After the elections of the National Assembly, provisions will be made to arrange
its meetings.
6: The LFO specified the number of conditions and qualifications. Any contesting
political party failing to fulfill the requirement will not be allowed to participate in
the elections.
Positive Impacts of the Legal Framework Order

1. Path Toward Democratic Elections
o Historical Significance: The LFO enabled Pakistan’s first direct elections,
allowing citizens to elect representatives in a national assembly, marking
a shift toward democratic governance.
o Scholar’s View: According to Stanley Wolpert in “Pakistan: A Modern
History”, the LFO was a critical step in moving Pakistan toward
democracy after years of military rule. It provided a framework for
involving citizens in the democratic process, aiming to give political
power back to the people through elections.
2. Decentralization of Power
o One Unit System Abolished: By dismantling the “One Unit” system, the
LFO recognized provincial identities and gave East and West Pakistan
their own representation. This was seen as a response to longstanding
grievances, especially in East Pakistan.
o Perspective: Ian Talbot in “Pakistan: A New History” explains that
abolishing One Unit addressed East Pakistan’s demand for
representation, which had been ignored under a centralized system. This
acknowledgment of provincial autonomy was a move toward more
inclusive governance.
3. Clear Framework for Constitution-Making
o Assembly’s Role: The LFO set up a National Assembly with the
responsibility of drafting a new constitution within 120 days. This step
was intended to give elected representatives control over constitutional
development.
o Author’s Note: In “Constitutional and Political History of Pakistan”,
Hamid Khan notes that the LFO’s guidelines for constitution-making were
an important way to restore civilian rule, offering a structured path for
Pakistan’s lawmakers to build a democratic state.
Negative Impacts of the Legal Framework Order

1. Military Retention of Power
o Limited Autonomy for Elected Representatives: Despite democratic
promises, the LFO allowed President Yahya Khan to keep his role as Chief
Martial Law Administrator until the new constitution was adopted,
limiting the assembly’s autonomy and keeping real power with the
military.
o Academic View: Wolpert criticizes this in “Pakistan: A Modern History”,
pointing out that the LFO was contradictory: while it promised
democracy, it allowed military leaders to veto constitutional changes.
This tension between democratic ideals and military control undermined
the assembly’s legitimacy.
2. Fueling East-West Tensions
o Centralized Control: Although the LFO attempted to provide a more
democratic setup, it didn’t fully address East Pakistan’s demands for
autonomy. The requirement for "unity" provisions in the constitution,
which restricted East Pakistan’s push for greater independence,
furthered regional frustrations.
o Scholar’s Perspective: In “Witness to Surrender”, Siddiq Salik, a military
officer, observed that the LFO’s limits on autonomy fueled resentment in
East Pakistan, contributing to the divide between East and West Pakistan
and ultimately leading to the 1971 secession.
3. Failure to Resolve Regional Grievances
o Political Crisis Post-Election: The LFO failed to account for the possibility
of a regional party winning a majority, as happened with the Awami
League’s victory in East Pakistan. This led to a standoff, as West Pakistan
leaders refused to hand over power to an East Pakistani-majority
government, igniting a political crisis.
o Analyst’s Take: Hamid Khan’s “Constitutional and Political History of
Pakistan” argues that the LFO, while designed to unify the country,
instead exposed deep divisions. The military’s unwillingness to allow East
Pakistan self-governance led to the 1971 conflict and the creation of
Bangladesh.
4. Undermined Democratic Intentions
o Martial Law and Assembly Limitations: By maintaining martial law and
placing restrictions on the assembly’s power, the LFO contradicted its
own goal of restoring democracy. The assembly’s lack of true authority
weakened public trust in the democratic process.
o Expert Analysis: Talbot in “Pakistan: A New History” contends that these
limitations showed a lack of commitment to real democracy, as the
military kept its grip on power. This set a precedent for future conflicts
between civilian and military rule in Pakistan.

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25.

Positive Impacts of the Legal Framework Order

Negative Impacts of the Legal Framework Order

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