Second Constituent Assembly

The Second Constituent Assembly of Pakistan, which operated from 1955 to 1958, represents one of the most significant yet turbulent chapters in Pakistan’s political history. This assembly carried the enormous responsibility of shaping the constitutional direction of a young state that had been born only a few years earlier in 1947. The years between 1955 and 1958 were marked by debates, compromises, and political maneuvering, but ultimately ended in a setback when martial law was imposed and democratic aspirations were suspended. To understand the significance of this period, it is necessary to look closely at the background, the debates that unfolded, the achievements of the assembly, and the reasons why it could not survive beyond 1958.

When Pakistan achieved independence, the First Constituent Assembly was tasked with drafting a constitution and setting the foundation for governance. That first body worked for years on constitutional proposals but became mired in disputes over provincial autonomy, the role of Islam, and the representation of East and West Pakistan. In 1954, the Governor-General dissolved the assembly, citing inefficiency and deadlock. The country then entered a phase of political uncertainty. Governments rose and fell, factions within parties clashed, and the demand for a clear constitutional structure grew more urgent. It was in this climate that the Second Constituent Assembly of Pakistan was convened in 1955, with the hope that it would succeed where the first one had failed.

The Second Constituent Assembly of Pakistan was composed of representatives from both East Pakistan and West Pakistan, with the intention of balancing regional interests. The members faced pressing questions that had troubled Pakistan since independence: how to distribute power fairly between provinces, what language should represent the federation, what role Islam should play in the state, and how to prevent domination by one group over another. These debates defined the assembly's work and continue to resonate in Pakistan's political history. One of the earliest and most controversial steps during this period was the introduction of the One Unit Scheme in 1955. This administrative decision merged the four provinces of West Pakistan—Punjab, Sindh, Balochistan, and the North-West Frontier Province into a single unit, so that East Pakistan and West Pakistan would each be treated as one half of the federation. The stated goal was to remove the fears of smaller provinces about Punjabi domination and to simplify the federal structure. However, in practice, the One Unit Scheme was deeply resented by many groups. Smaller communities within West Pakistan felt their identities and rights were being suppressed, while East Pakistan perceived the scheme as another attempt to deny it majority rule. This became one of the underlying causes of long-term tensions between the two wings of the country.

Alongside administrative reforms, the Second Constituent Assembly of Pakistan also had to resolve the language issue, which had become politically explosive since the early 1950s. The people of East Pakistan, where Bengali was the mother tongue of the majority, demanded recognition of Bengali as an official language alongside Urdu. After years of protests and political mobilization, the assembly accepted Bengali and Urdu as the two official languages of Pakistan. This was a major concession to the demands of East Pakistan, but it came after years of bitterness and loss of trust. The language controversy highlighted how cultural and linguistic identities could not be ignored in a diverse country like Pakistan, and it foreshadowed the struggles that would later lead to the separation of East Pakistan in 1971.

Another major area of debate was the role of Islam in the constitution. The Second Constituent Assembly worked to reconcile the desire to make Pakistan an Islamic state with the need to respect minority rights and democratic principles. The Constitution of 1956, which emerged from these debates, declared Pakistan to be an Islamic Republic. It included provisions that no law would be enacted against the teachings of Islam, while also providing safeguards for religious minorities. The assembly attempted to strike a balance, ensuring that Islamic principles guided the state while maintaining a parliamentary democracy that respected the rights of citizens of all faiths. This delicate compromise reflected the dual identity of Pakistan as both a homeland for Muslims and a country with diverse communities.

The Constitution of 1956 was a milestone achievement of the Second Constituent Assembly of Pakistan. It established a parliamentary system with a unicameral legislature, defined the relationship between the central and provincial governments, and outlined fundamental rights for citizens. Importantly, it declared Pakistan a republic, ending the formal role of the British monarchy. For the first time since independence, Pakistan had a complete constitutional framework. However, the political environment remained unstable. Prime Ministers were frequently replaced, coalitions shifted rapidly, and the bureaucracy and military increasingly intervened in political matters. This instability undermined the authority of the new constitution before it could take root.

By 1958, the political situation had become so fragile that President Iskander Mirza decided to take drastic measures. He abrogated the 1956 Constitution, dissolved the Second Constituent Assembly of Pakistan, and declared a state of martial law. General Ayub Khan, the Commander-in-Chief of the army, was appointed Chief Martial Law Administrator. Within weeks, Ayub Khan sidelined Mirza and took complete control, ushering in the first period of direct military rule in Pakistan. The dissolution of the assembly and the imposition of martial law marked the collapse of Pakistan’s first experiment with parliamentary democracy. It was a turning point that shifted the country toward authoritarian governance and set a pattern of military involvement in politics that has recurred throughout Pakistan’s history.

The legacy of the Second Constituent Assembly of Pakistan is mixed. On one hand, it deserves credit for finally producing the 1956 Constitution, which attempted to address the pressing issues of federalism, language, and religion in state affairs. It gave Pakistan a republican identity and tried to enshrine democratic principles. On the other hand, the assembly failed to stabilize the political system or prevent the rising influence of unelected institutions. Its dissolution and the military takeover in 1958 represented a setback for democratic development. The key debates of that era—provincial autonomy, the balance of power, the role of Islam, and recognition of linguistic diversity—did not end with the assembly’s demise. Instead, they continued to resurface in later constitutional experiments, including the 1962 Constitution under Ayub Khan and the 1973 Constitution after the breakup of Pakistan.

In hindsight, the years between 1955 and 1958 remain vital for understanding Pakistan’s constitutional evolution. The Second Constituent Assembly reflected both the aspirations and the weaknesses of the early Pakistani state. Its attempt to resolve long-standing disputes laid the groundwork for future debates, while its eventual collapse illustrated the fragility of democratic institutions in the face of political instability and authoritarian intervention. The story of the Second Constituent Assembly of Pakistan is therefore not only about a short-lived parliamentary body but about the broader struggle to define the political identity of a nation still searching for stability and unity in its formative years.