Last month, the Government of Khyber Pakhtunkhwa (GoKP) hosted a landmark conference in Peshawar, bringing together global development partners to mobilize public investments for the advancement of the Merged Districts. Major stakeholders, including USAID, the World Bank, the Asian Development Bank, the European Union, and various United Nations agencies, reaffirmed their commitment to enhancing the socio-economic development of the region.
In mid-2018, the Federally Administered Tribal Areas (FATA) were redesignated as the Merged Districts (MDs) through the 25th Constitutional Amendment, integrating the region into the Khyber Pakhtunkhwa province. Six years after the merger, the Federal and Khyber Pakhtunkhwa provincial governments have struggled to make substantial progress in effectively integrating the former FATA region into Pakistan. Their limited success reflects challenges in implementing the necessary administrative, legal, and developmental reforms to ensure true integration. Despite the federal government's commitment to allocate 3% of the National Finance Commission (NFC) Award, equating to Rs 100 billion annually over a decade, it has yet to fulfill this pledge.
Judicial complexes have been established, but in some districts, they are absent and instead located in adjacent districts, complicating access to justice for the local populace. Police reforms have been slow, with the Khasadar and Levies transitioning into a police force yet lacking essential skills, often providing their own weapons and purchasing uniforms at personal expense. The most encouraging progress is the establishment of a women's desk in Bara, a positive and welcoming sign.
The role of the Political Agent was replaced by the District Commissioner of the neighboring district. However, this bureaucratic position continues to retain its colonial approach toward locals, treating them more as subjects than as citizens deserving public service. Furthermore, the slow pace of land reforms has led to disputes across many areas, stalling progress and undermining the government's pledges to ensure the merger's legitimacy through comprehensive reforms. As a result, many key areas of reform remain unaddressed.
The Taliban takeover of Afghanistan has emboldened the Tehreek-e-Taliban Pakistan (TTP), which has resurfaced as a significant threat to the state's authority. This militant group, now a powerful stakeholder, is advocating for the reversal of the merger of erstwhile FATA into Khyber Pakhtunkhwa.
Prior to 2018, popular support for the FATA merger was significantly high among the masses. A series of research studies conducted by CAMP (Community Appraisal & Motivation Program) between 2007 and 2012 in all seven districts of the MDs and six frontier regions revealed that most people supported merging of FATA with Khyber Pakhtunkhwa, believing it was their fundamental right to be treated as equal citizens. The findings also revealed a general reluctance to embrace specific institutions, such as establishing police stations and adopting the modern judicial system in place of the centuries-old jirga (council of elders). Therefore, despite their desire for equality, these communities were hesitant about changes that would accompany the merger due to deep-seated concerns over its impact on their traditional way of life.
The widespread support for the merger stemmed from the competition between tribal elders and the common population, which, more specifically, manifested as a generational conflict over political leadership. Despite cultural constraints that traditionally favored elders, significant events like the Soviet-Afghan Jihad and the post-9/11 global dynamics disrupted the established age-based hierarchy within tribal society. This disruption opened up new spaces for youth to assert their agency and challenge the long-standing dominance of the elders, enabling a shift toward broader acceptance of the merger. As I argue in my PhD thesis, the older generation had already solidified its control over the political landscape, while the younger generation sought to carve out space for itself. This generational divide highlighted differing aspirations and approaches toward political engagement and leadership.
The opposition to the merger by actors such as tribal aristocrats, politicians, and bureaucrats has intensified, leading to greater confusion for both the government and the donor community. This vocal opposition is fueled by longstanding alliances among these groups, who were primary beneficiaries of the pre-merger status quo.
However, the current conundrum surrounding the merger debate has bred mistrust in state institutions, leading to disillusionment among youth. While these changes initially opened new avenues for younger generations to engage in the political process, the inability to resolve tensions within the merger framework has undermined confidence, deepening the rift between state institutions and the aspirations of the younger population. Those, particularly living in poverty, are questioning whether their support for the merger was wise or if they were misled under the pretext of enhanced security. Many of those I interacted with expressed that they are grappling with the reality of unmet promises and unfulfilled reforms, questioning whether the merger has genuinely served their best interests.
Currently, various actors are at play and exploiting this sentiment, capitalizing on the slow merger process and the communities' limited representation in mainstream political decision-making, which has amplified their sense of marginalization and uncertainty. The opposition to the merger by actors such as tribal aristocrats, politicians, and bureaucrats has intensified, leading to greater confusion for both the government and the donor community. This vocal opposition is fueled by longstanding alliances among these groups, who were primary beneficiaries of the pre-merger status quo.
Claiming to represent local interests, these actors try to manipulate government and donor priorities to advance their own agendas, directing investments in ways that do not benefit the general population. Simultaneously, the government's failure to fulfilled its promises has provided these voices with an opportunity to spin facts, confuse locals, and influence policies that could potentially revert the region to its previous status. While such a regression is unlikely, the ensuing confusion could delay progress and misdirect investments into unproductive sectors.
On the other hand, the Taliban takeover of Afghanistan has emboldened the Tehreek-e-Taliban Pakistan (TTP), which has resurfaced as a significant threat to the state's authority. This militant group, now a powerful stakeholder, is advocating for the reversal of the merger of erstwhile FATA into Khyber Pakhtunkhwa. Their aim is to reintroduce Sharia law, challenging the state's writ and destabilizing the region by promoting a return to pre-merger conditions.
The slow progress and unfulfilled promises concerning the integration of the former FATA region into Pakistan could lead to widespread disillusionment, particularly among the youth, who have worked hard to secure their place in decision-making. This, in turn, may result in chaos and foster deep mistrust toward the state.
To expedite the mainstreaming process and ensure effective integration, the government should prioritize several key recommendations. Firstly, it is crucial to expedite the implementation of the administrative, legal, and developmental reforms outlined in the merger agreement, ensuring the process is inclusive of youth and other vulnerable groups to foster their sense of empowerment. This includes expediting the establishment of judicial complexes and police stations, ensuring their accessibility to all communities within the MDs. Additionally, the government must streamline land reforms to resolve disputes promptly and fairly, providing a foundation for economic stability and growth.
The slow progress and unfulfilled promises concerning the integration of the former FATA region into Pakistan could lead to widespread disillusionment, particularly among the youth, who have worked hard to secure their place in decision-making.
Secondly, tackling the socio-economic challenges in the MDs necessitates targeted interventions that create employment opportunities, generate sustainable livelihoods, and secure social protection for vulnerable groups through community involvement which should aim to strengthen community resilience. The government and donor community should directly engage the broader population rather than tribal elders and urban elite, who have exploited previous schemes through corruption and favoritism.
To prioritize inclusive governance, mechanisms should be established for community engagement and consultation in decision-making processes, ensuring that marginalized voices are represented and respected. This could be achieved through investment in infrastructure development, vocational training programs, and support for small-scale enterprises, particularly in sectors such as agriculture, livestock, e-commerce, and renewable energy.
Thirdly, strengthening the legal and administrative systems is crucial for improving governance and enhancing public trust. This includes enhancing the capacity and accountability of local government bodies, empowering them to effectively address the needs of their communities. Furthermore, initiatives to enhance transparency, accountability, and access to justice should be prioritized, ensuring that all citizens can exercise their rights and seek redress for grievances.
Overall, the successful mainstreaming of the former FATA region requires a sincere and holistic approach that addresses the complex challenges facing the MDs. By implementing these recommendations, the government can not only expedite the mainstreaming process but also foster inclusive development, strengthen governance, and promote peace and stability in the region.