Decentralization on paper, centralization in practice: exploring the structural barriers to effective urban governance in Pakistan’s decentralized systems

Abstract

This study examines how incomplete devolution shapes governance in Sukkur, Pakistan. Despite Article 140-A’s constitutional mandates decentralization, municipal functions including water and sanitation, urban planning, and local revenue mobilization, remain under provincial control. An exploratory qualitative case study drew on six semi-structured interviews with municipal officials, legislators, and citizens, supplemented by government documents, and scholarly literature. Thematic analysis identified four interlinked challenges: (1) limited local authority and overlapping jurisdictions, (2) fiscal constraints undermining local projects, (3) service delivery gaps that erode citizen trust, and (4) competing narratives over whether devolution deficits are genuine or politically exaggerated. Findings show politicized fiscal transfers intensify constraints, weakening accountability, delaying improvements, and depress civic participation. Local capacity deficits also contributes. Policy recommendations prioritize activating the Provincial Finance Commission, strengthening municipal capacity, and progressively devolving authority. Sukkur’s case illustrates ‘incomplete decentralization’ in the Global South, informing reforms in Pakistan and comparable contexts.