the inclination of the people and we feel that to ignore this preponderance of view would be an extremely rash step, specially when, even apart from the doubt and suspicion we have dealt with, the unitary form of government is not practicable in Pakistan.
64. Under a unitary form of government, there would be decentralization on an extensive scale without a provincial legislature to act as a check on the officers in order that they may not become autocratic. When this aspect of the matter was put by the Commission to the witnesses who advocated the unitary form, including those who appeared on behalf of government, our attention was drawn to the Governor's Council constituted under the Basic Democracies scheme, and it was said that that body could be utilized by persons having grievances against officers for bringing their facts to the notice of the Governor. But the Governor's Council, even if its members happen to be bold enough to criticize the officers of the province before the Governor, being a nominated body, will not command the confidence of the people, and, consequently, that body would not give satisfaction to the province. As for the parliament, where the representatives of both the regions will be present, it would hardly have time for question to be asked with regard to administration as would be the only legislature in a unitary from and, therefore, busy the whole time with legislation for the whole of Pakistan. In this respect, the case of West Pakistan is more in point. This province consists of four former provinces and the people of these regions complained to us that sufficient decentralization had not yet been made, though, at the time of integration of these provinces into One Unit, it had been decided to decentralize the administration. As stated already the majority opinion is in favor of retaining the One Unit and it is only 8.6% of the opinions that recommend the breaking up of the integrated province. We think that, whatever the defects in the present management and however objectionable the methods of integration were, it would open the flood-gates of provincialism if we break up the integrated province at this stage. Decentralization is the only remedy, and that would satisfy the majority who are only anxious for an arrangement that would avoid the inconvenience of their having to go to the headquarters of the province in matters in which, prior to the integration, they could get relief nearer home. If the administration on this account is de-centralized on a large scale, then a provincial legislature becomes indispensable as a check on the arbitrary exercise by the executive of its extensive powers, but the unitary form does not provide for it.
65. The further proposals put before us on behalf of the government acknowledge the difficulty of the Central Parliament dealing with legislation for the entire country while sitting at the Capital. It was conceded that provincial matters could be better dealt with by the province concerned, and the suggestion was that powers should be given to the provinces, more or less on the lines of the late Constitution, subject to Railways and Industries being excluded from the Provincial List, and that the Centre should be empowered to legislate in respect of all subjects including those of the Provincial List. It was further suggested that, instead of provincial legislatures, each half of the parliament representing a province should act as a provincial committee to deal with provincial affairs at the headquarters of the province, and that the legislation passed by such committees should receive the assent of the President and not of the Governor concerned. It was said that this would save time and, expense while retaining the appearance of a
