represent the Units. A federation is a free association of Units in the governance of the country. The equality of representation in the Upper House is, therefore, designed to give each Unit, big or small, an equal voice in the Upper House. Thus far these proposals follow, the generally accepted federal pattern adopted by most progressive countries.
We then proceeded to make special provision to ensure that neither of the two parts of Pakistan may apprehended domination by the other. For this purpose the following mechanism has been devised. First, both Houses have been given equal powers. Every measure introduced and passed in the Lower House which is constituted on a population basis, must also be passed by the Upper House where each unit is equally represented. Similarly every measure introduced and passed in the Upper House has also to be passed by the lower House. Should there be a difference of opinion between the two Houses in respect of the measure or any clauses thereof, it shall be placed before a Joint Session of the two Houses. The measure may then be passed by a majority vote, but this majority vote must include at least 30 percent of the members present and voting from each zone. For this purpose, East Bengal constitutes one zone and the four Units of what is commonly known as West Pakistan constitute another zone. Further it has been provided that a vote of confidence or of no-confidence may be moved only in a joint session of the two Houses, may be passed by a majority vote provided only that the majority includes at least 30 per cent of the total members belonging to each zone. A similar majority is required also for the election of the Head of the State in a joint session.
The effect of these special provisions is that no vote of confidence/no-confidence and no controversial measure can be passed unless it receives substantial support from both zones, since its passing will require support of at least 30 per cent of the members from each zone in the case of a confidence/ no-confidence motion and 30 per cent of the members present and voting from each zone in other cases. Similarly no person may be elected the Head of the State without the support of at least 30 per cent of the members of each zone.
There are a number of checks and balances provided. You will notice that, firstly the Central Government will be responsible to both Houses jointly, since a confidence motion can be moved only in a joint session of the two Houses, and secondly, that any measure over which there is disagreement between the two Houses, can only be passed in a joint session of the two Houses. The representation of the various Units in the two Houses is so arranged as to give an overall equality of representation to the two Zones. You will recall that this principle of what came to be known as parity between East Bengal on the one hand and the Provinces composing West Pakistan on the other is contained in the Basic Principles Committee's Report. Fears were expressed, however, that it might in practice result in the domination of West Pakistan by East Bengal or vice versa. In order to prevent such a contingency the safeguard has been provided that any measure to be discussed in a joint session which gives East Bengal parity of representation vis-a-vis the units composing the Western zone can be passed only if a substantial percentage of the members for each zone support that measure. What we have thus ensured is not merely parity between the two zones, but, what is far more important, inter-dependence of these two parts of Pakistan. No Government can be formed or can
