Pakistan’s Proposed Constitutional Changes: What Do They Mean for Azad Jammu and Kashmir and Gilgit-Baltistan?
Representation in Pakistan's Parliament, Political Identity and the Right of the People to Decide Their Future
Dr Shabir Choudhry, London. 11 November 2026.
A newspaper report published by Kashmir Express, Muzaffarabad, has raised an important, and potentially far-reaching question concerning the constitutional and political future of Azad Jammu and Kashmir (AJK) and Gilgit-Baltistan (GB).
According to the report, proposals are being considered under a proposed constitutional amendment for changes in the relationship of these two territories of Jammu and Kashmir with Pakistan.
The reported proposals include granting their residents Pakistani citizenship, providing representation in Pakistan's Parliament, allocating eight seats in the National Assembly to Azad Jammu and Kashmir and three to Gilgit-Baltistan, and providing five seats each in the Senate.
The report further suggests that the proposed constitutional changes would first be presented in Pakistan's Parliament and subsequently submitted to the respective legislative assemblies of Azad Jammu and Kashmir and Gilgit-Baltistan for approval.
If accurately reported, these proposals deserve serious attention. They are not merely administrative adjustments or questions of parliamentary representation. They concern the constitutional identity, political status and future relationship of two territories whose historical and political circumstances are closely connected with the unresolved Jammu and Kashmir dispute.
It is therefore necessary to examine what is being proposed, why it matters and, most importantly, whether the people concerned have been consulted.
A Constitutional Change with Far-Reaching Consequences
Pakistan has administered Azad Jammu and Kashmir and Gilgit-Baltistan through separate constitutional and administrative arrangements. Although both territories have their own legislative institutions, their relationship with the Pakistani government in Islamabad is different from that of Pakistan's constitutionally recognised provinces.
The newspaper report appears to suggest a significant change in this arrangement. Parliamentary representation would bring residents of these territories into Pakistan's legislative system in a more direct manner.
At first sight, some people may welcome this as an improvement in democratic representation. Having elected representatives in the National Assembly and Senate of Pakistan could provide a stronger parliamentary voice on issues affecting their daily lives.
However, political representation cannot be examined in isolation from constitutional status.
The crucial question is: What would these changes mean for the existing constitutional position of Azad Jammu and Kashmir and Gilgit-Baltistan, and for the internationally recognised context of the Jammu and Kashmir dispute?
A change that appears beneficial in terms of parliamentary representation could also have wider implications for the political future of the territories. Those implications must be explained openly before any decision is taken.
The Developments in Gilgit-Baltistan
The issue is not entirely speculative. There have been publicly reported developments concerning Gilgit-Baltistan's constitutional and financial arrangements.
On 17 July 2026, Dawn reported that the Gilgit-Baltistan Assembly had unanimously adopted a resolution seeking provisional provincial status and constitutional and political rights, including representation in Pakistan's National Assembly and Senate.
Furthermore, on 11 September 2026, Pakistan's Ministry of Law and Justice confirmed that consultations were under way concerning the constitutional and legal arrangements for Gilgit-Baltistan. The federal law minister stated that relevant stakeholders would be consulted and that different constitutional, financial and administrative options were being examined.
These developments provide an important background to the newspaper report.
However, an important distinction must be maintained. The publicly confirmed consultations concerning Gilgit-Baltistan do not, by themselves, establish that the specific parliamentary seat allocations or the wider proposals concerning both territories described in Kashmir Express have been formally approved or introduced as a constitutional amendment. We need the actual draft legislation before treating those details as government policy.
This distinction matters because a newspaper report, a political proposal, a government consultation and an enacted constitutional amendment are four different things.
Gilgit-Baltistan's Demand and the Kashmir Dispute
The demand for greater constitutional and political rights in Gilgit-Baltistan cannot simply be dismissed. Its people have legitimate concerns about democratic representation, financial resources, development and their ability to participate in decisions affecting their future.
For decades, Gilgit-Baltistan has operated under special administrative arrangements. Its people have sought greater political and constitutional rights, including representation in Pakistan's federal institutions.
The difficulty is that Gilgit-Baltistan is also part of the wider Jammu and Kashmir dispute. Any constitutional arrangement must therefore consider not only the immediate demands of its population but also the historical and political context of the former princely state.
This creates a difficult question for Pakistan: how can it provide meaningful democratic and constitutional rights to the people of Gilgit-Baltistan without taking unilateral steps that could prejudice the final settlement of the Jammu and Kashmir dispute?
The same question applies, although in a different constitutional context, to Azad Jammu and Kashmir.
The Position of Azad Jammu and Kashmir
Azad Jammu and Kashmir has a different constitutional history and administrative structure from Gilgit-Baltistan. It has its own Interim Constitution, elected Legislative Assembly, President, Prime Minister and government.
Its political and constitutional relationship with Pakistan is also connected with the unresolved dispute over Jammu and Kashmir.
Consequently, the proposed changes raise several questions.
· Would parliamentary representation strengthen the political voice of Azad Jammu and Kashmir, or would it gradually bring its institutions into Pakistan's federal constitutional framework?
· Would the proposed arrangements preserve the territory's distinct constitutional identity?
· Would the people of Azad Jammu and Kashmir retain meaningful control over their political institutions and future?
These questions cannot be answered simply by allocating parliamentary seats.
We should also remember that the people of Azad Jammu and Kashmir have repeatedly raised concerns about political autonomy, economic rights, governance and the exercise of authority by institutions based outside the territory.
The experience of the Joint Awami Action Committee and its demands for economic justice, civil rights and accountable government demonstrate why constitutional arrangements must be judged by their practical consequences for ordinary people.
Who Has the Right to Decide?
This is perhaps the most fundamental question.
Constitutional changes affecting the future of Azad Jammu and Kashmir and Gilgit-Baltistan should not be treated as an internal administrative matter for Islamabad alone.
The people living in these territories have legitimate interests and aspirations that must be considered.
The process should involve:
- Genuine consultation with the people of both territories.
- Full participation of their elected representatives.
- Independent constitutional and legal examination.
- Transparency concerning the proposed changes.
- Protection of their political, cultural and constitutional identities.
- Consideration of the wider Jammu and Kashmir dispute and the principle of self-determination.
The people must be informed about the consequences of any proposed arrangement before being asked to support it.
Pakistan's own constitutional procedure also requires attention. Article 239 provides for constitutional amendments to be passed by a two-thirds majority in each House of Parliament. Other constitutional requirements may apply depending on the nature of the proposed changes.
But fulfilling Pakistan's domestic constitutional requirements and establishing the political legitimacy of a decision among the people concerned are two separate questions.
Both deserve consideration.
Is Parliamentary Representation the Same as Political Self-Determination?
We must not confuse these two concepts.
Having representatives in the National Assembly and Senate may improve participation in Pakistan's political system. It does not, by itself, resolve the question of self-determination.
Representation within another country's parliamentary structure is not necessarily the same as having the freedom to determine one's own political future.
For those who support an independent and united Jammu and Kashmir, this distinction is particularly important.
The future of the former princely state should not be reduced to a question of how many seats its different regions might receive in Pakistan's Parliament.
The wider question concerns the political rights and aspirations of all the people of the former state, including those living in Indian-administered Jammu and Kashmir, Pakistan-administered Azad Jammu and Kashmir, Gilgit-Baltistan and the diaspora.
Any lasting political settlement must take account of these different populations and their aspirations.
What Should the People Demand?
Instead of accepting or rejecting proposals without examining their contents, people in both territories should demand answers.
· The governments in Muzaffarabad and Gilgit should explain what they know about these proposals.
· Political parties should publish their positions.
· Constitutional experts should examine the proposed legislation.
· Civil society organisations should organise public discussions.
· And the people should be given access to the actual draft before any final decision is taken.
· There should be no secret constitutional arrangements affecting the future of millions of people.
Conclusion: Representation, Integration or Self-Determination?
The newspaper report from Muzaffarabad has brought an important subject into public discussion. The developments concerning Gilgit-Baltistan confirm that constitutional and administrative questions are being examined in Pakistan.
However, we must distinguish between confirmed government consultations and the specific proposals reported by the newspaper. The latter require documentary verification.
There is nothing inherently wrong with seeking better political representation, financial rights or constitutional protection for the people of Azad Jammu and Kashmir and Gilgit-Baltistan. These are legitimate matters for public debate.
But the wider political consequences must not be ignored.
If constitutional changes are intended to improve democratic participation, the people should be able to examine and judge them freely. If they are intended to change the relationship of these territories with Pakistan, that intention should be stated openly.
For those who believe in a united, independent Jammu and Kashmir, the central issue remains the right of its people to determine their own political future.
The people of Jammu and Kashmir should not be treated merely as recipients of constitutional arrangements designed elsewhere. They must be participants in deciding their own future.
The question is not simply how many seats Azad Jammu and Kashmir and Gilgit-Baltistan will receive in Pakistan's Parliament.
The bigger question is: Who has the authority to decide the political future of Jammu and Kashmir, and have the people themselves been given a genuine opportunity to express their wishes?