An Independent Journal of Ideas

Gauri Khanna

Imran Khan Has Been Removed. Pakistan’s Institutions May Have Just Passed a Harder Test.

Imran Khan is no longer prime minister of Pakistan.

Shortly after midnight, Pakistan’s National Assembly voted 174–0 in favour of the no-confidence motion against him after members of Khan’s party largely left the chamber. He becomes the first prime minister in Pakistan’s history to lose office through a successful parliamentary vote of no confidence.

That sentence sounds remarkably ordinary.

A prime minister lost his majority, parliament voted, and the government fell.

The week required almost everything to go wrong before Pakistan reached that ordinary conclusion.

Last Sunday, the National Assembly was expected to vote on the opposition’s no-confidence motion. Instead, Deputy Speaker Qasim Suri rejected the motion, accepting the government’s argument that it was connected to a foreign conspiracy against Pakistan. Khan immediately advised President Arif Alvi to dissolve the National Assembly and move towards elections.

For several hours, the political logic appeared straightforward: if parliament was about to remove the prime minister, dissolve parliament before it could vote.

The Supreme Court intervened.

On Thursday, a five-member bench unanimously ruled that the deputy speaker’s decision was unconstitutional, restored the National Assembly and ordered the no-confidence vote to proceed.

Then came another extraordinary day of delay, argument and uncertainty before parliament finally voted late last night.

Khan lost.

What makes this week important is not that Pakistan suddenly became a perfectly functioning democracy. It plainly did not. The political confrontation has exposed enormous distrust between government and opposition, continuing questions about the military establishment’s influence, allegations of foreign interference and a constitutional system repeatedly pushed towards its limits.

But there is still something significant about how the crisis eventually ended.

A prime minister tried to prevent a parliamentary vote that appeared likely to remove him.

The court said he could not.

Parliament voted anyway.

That sequence tells us something about what constitutional government actually requires.

Democracy is not tested only when everybody agrees about the rules.

It is tested when obeying the rules produces an outcome one side desperately wants to prevent.

Khan and his supporters believe the process removing him is deeply illegitimate. They argue that opposition parties represent a corrupt political establishment, that legislators were induced to defect and that foreign pressure played a role in destabilising the government. Khan has repeatedly presented the confrontation as a struggle for Pakistan’s sovereignty rather than an ordinary parliamentary contest.

Those beliefs will not disappear because the Supreme Court issued a ruling.

This is where institutional legitimacy becomes more difficult than constitutional legality.

A court can determine what the law requires.

It cannot force millions of citizens to believe the result is fair.

That gap matters because democratic systems ultimately depend on both.

The constitution tells us who legally holds power.

Political legitimacy determines whether enough citizens accept the system through which that answer was produced.

Sometimes the two reinforce each other.

Sometimes they diverge dramatically.

Pakistan is entering the second situation.

Khan may have lost the parliamentary vote while remaining one of the most popular politicians in the country. His ability to mobilise supporters may actually increase now that he can return to the political identity that helped build PTI in the first place: outsider confronting an entrenched establishment.

Government turned Khan into the institution being blamed for economic problems.

Opposition can turn him back into the politician blaming the institutions.

That may make his removal politically more complicated than the parliamentary arithmetic suggests.

But popularity and constitutional authority remain different things.

A parliamentary system does not guarantee that the most personally popular politician remains prime minister. It guarantees that the government must retain the confidence of parliament.

If Pakistan wanted a directly elected executive with an independent national mandate, it could design a presidential system.

It did not.

Institutional rules matter precisely because they determine how different forms of political legitimacy are translated into authority.

Khan’s defenders can reasonably criticise legislators who changed allegiance. Party switching raises serious questions about whether representatives are respecting the mandate under which voters elected them. Coalition politics can become opportunistic, and Pakistan’s political system contains well-established histories of patronage and elite bargaining.

Those are genuine institutional weaknesses.

They do not give the executive the authority to cancel the parliamentary mechanism designed to test whether it still possesses a majority.

This is the central distinction.

An institution can function badly without becoming optional.

If politicians believe defections are too easy, change the rules governing defections.

If campaign finance encourages corruption, reform campaign finance.

If coalition agreements are opaque, improve transparency.

If foreign governments interfered improperly, investigate and present evidence.

The remedy for weak institutions is stronger institutions, not allowing whichever politician currently controls the executive to suspend the process when it turns against them.

This is why the Supreme Court’s intervention matters.

Courts are often criticised for becoming too involved in political disputes, particularly in Pakistan, where judicial institutions have themselves played controversial roles in political history. Judicial power is not automatically democratic simply because judges wear robes rather than uniforms.

But constitutional courts exist partly for exactly this kind of dispute: when different branches of government disagree over what the constitution permits.

The important question is whether the court applies a rule that would remain defensible if the political identities were reversed.

Suppose the opposition controlled the speakership and blocked a vote that might save a PTI government.

Would the same constitutional principle apply?

If yes, the rule has institutional legitimacy independent of who benefits today.

That is one of the best tests of constitutional fairness I know.

Would I still support this rule if my opponent controlled the institution using it?

Political actors rarely ask themselves that question because immediate incentives are stronger.

Institutions are supposed to force them to live with the answer anyway.

Pakistan’s political history makes this particularly important because prime ministers have so often failed to complete terms for reasons extending beyond ordinary electoral accountability. The military has ruled the country directly for long periods and retained deep influence during civilian governments. Presidents and courts have removed governments. Civilian leaders themselves have repeatedly attempted to weaken rivals through institutions.

As a result, losing office in Pakistan rarely feels politically neutral.

Every removal invites the suspicion that somebody outside the visible constitutional process helped produce it.

That suspicion is not irrational given the country’s history.

But history can also become a trap.

If every institutional defeat is interpreted automatically as evidence of an invisible conspiracy, institutions can never build credibility.

Every court ruling becomes establishment manipulation.

Every defection becomes bribery.

Every election defeat becomes rigging.

Every political success becomes the true will of the people.

A system cannot function under that asymmetry.

Political actors have to distinguish between having reasons to distrust institutions and treating every unfavourable institutional outcome as proof that distrust was justified.

The first can motivate reform.

The second makes reform almost impossible because no institution is permitted to produce legitimate defeat.

There is another reason Khan’s foreign-conspiracy argument is politically potent. Questions of sovereignty have enormous emotional force in Pakistan because the country has historically navigated difficult relationships with the United States, China, India, Afghanistan and international financial institutions.

America in particular occupies an unusually complicated position in Pakistani politics. The two countries cooperated closely during parts of the Cold War and the post-9/11 period while repeatedly distrusting one another. Washington depended heavily on Pakistan during the Afghanistan war while also accusing elements of Pakistan’s security establishment of tolerating or assisting Taliban networks. Pakistan received substantial American support while many Pakistanis believed Washington treated the country principally as an instrument of US strategy.

Khan can therefore connect a domestic parliamentary defeat to an already existing narrative about foreign pressure.

That makes the allegation politically powerful even before its evidentiary status is resolved.

The relevant standard should remain evidence.

Foreign governments certainly express preferences about other governments. Diplomats criticise policy. States use economic and political pressure. Powerful countries have historically interfered in weaker states.

None of that should make a specific conspiracy claim automatically true.

The distinction between plausible mechanism and demonstrated event matters.

If evidence emerges that Washington actively orchestrated Khan’s removal, that would be extremely serious.

If the evidence shows American officials expressed strong displeasure with Khan’s policies, that would be considerably more ordinary diplomacy.

Political rhetoric has incentives to erase the distinction because “foreign regime-change operation” mobilises supporters more effectively than “another government disliked our foreign policy”.

The public should resist allowing the emotional strength of an allegation to determine the evidentiary threshold.

The military remains the largest unspoken variable in much of the crisis. Pakistan’s army has repeatedly insisted that it is neutral in the current political confrontation.

Whether every Pakistani believes that is another matter.

Khan’s relationship with the military establishment was widely considered relatively cooperative earlier in his term and subsequently appeared to deteriorate, particularly around senior appointments and questions of political influence.

This demonstrates why informal institutional power is so difficult to analyse. Formal political authority can be read from a constitution. Informal authority has to be inferred from appointments, relationships, statements and behaviour.

That creates enormous room for speculation.

The safest conclusion is therefore not that the army engineered Khan’s rise or fall unless evidence establishes that clearly. It is that Pakistan still contains a political institution powerful enough that every major civilian crisis is interpreted partly through the question of what the military wants.

That alone is evidence of incomplete civilian democratic consolidation.

In a consolidated civilian democracy, the political position of the army during a no-confidence vote should be boring.

It should not have one.

Pakistan is not there yet.

Still, the military did not openly cancel this week’s parliamentary process.

That matters.

Perhaps democratic consolidation sometimes occurs through institutions gradually choosing not to exercise powers they historically possessed.

A military staying in its barracks can be as politically consequential as a parliament passing legislation.

Institutional restraint is difficult to observe precisely because it consists of actions not taken.

The same applies to President Alvi, the courts and parliament. Pakistan’s institutions have been pulled into an intense political confrontation, but the crisis has ultimately returned to a constitutional mechanism rather than overt coercion.

That is not enough to declare victory for democracy.

It is enough to resist declaring failure.

The economic conditions awaiting the next government will make everything harder. Inflation remains high. Energy and food prices are under pressure, worsened by the commodity shock following Russia’s invasion of Ukraine. Pakistan continues to face fiscal constraints and external financing difficulties.

Whoever becomes prime minister will inherit these problems immediately.

That means the opposition is about to discover something every opposition eventually learns: defeating a government is considerably easier than governing after it.

Criticising inflation creates political support.

Reducing inflation without causing unemployment, fiscal stress or other economic costs is harder.

Promising cheaper energy is popular.

Financing cheaper energy when global oil prices are high is expensive.

Blaming the previous government can buy time.

Eventually the new government owns the numbers.

This may help explain why parliamentary systems can sometimes appear unstable during economic crises. Coalition partners reassess whether remaining attached to an unpopular government damages their electoral prospects. Legislators defect. Opposition parties coordinate around removing the incumbent even when they agree on little else.

Negative coalitions are easier to construct than positive ones.

Several parties can agree that Khan should leave without agreeing on what Pakistan’s economic strategy should be afterwards.

This creates another institutional test.

The coalition removing a government needs enough internal coherence to govern rather than simply enough votes to remove.

If the next administration becomes paralysed quickly, Khan’s argument that his opponents were united only by hostility towards him will become politically stronger.

The success of the no-confidence vote therefore tells us almost nothing about the success of the government that follows.

Democracy does not promise good governments.

It promises mechanisms for replacing them.

That limitation is simultaneously its weakness and strength.

Authoritarian systems often claim superiority because they can provide continuity. A leader does not lose office because coalition partners defect. Policy can be planned over longer horizons. Decisions can be made quickly.

But continuity becomes dangerous when the government is wrong and there is no credible mechanism for removing it.

Parliamentary instability imposes costs.

Permanent executive insulation imposes different costs.

Political design is again a trade-off rather than a search for a system containing none.

Pakistan has historically suffered from too much instability at the top, but much of that instability came from mechanisms outside ordinary parliamentary accountability.

That is why this week’s distinction matters.

A prime minister being removed by parliament is not necessarily another example of Pakistan’s inability to maintain civilian governments.

It could be an example of parliament finally being important enough to remove one itself.

Whether that interpretation survives depends heavily on what happens next.

Khan and PTI will almost certainly continue mobilising politically. They should. Opposition is legitimate. If Khan believes the public remains behind him, the democratic route is straightforward: demand elections, campaign, win seats and attempt to return to government.

The danger begins if parliamentary defeat is reframed as evidence that no political outcome except Khan’s victory can express the legitimate will of Pakistanis.

No democratic politician gets that privilege.

A leader may represent millions.

The opposition represents citizens too.

The entire purpose of political institutions is to prevent any one politician from claiming ownership over “the people” as though everyone outside their coalition becomes illegitimate.

That is particularly important for populist politics because populism tends to define political competition morally rather than procedurally. The leader represents the authentic people; opponents become corrupt elites, traitors or agents of outsiders.

Once politics is framed that way, losing becomes conceptually impossible.

If I represent the real people, how could a legitimate institution remove me?

The institution must therefore be corrupt.

This logic can destroy democratic systems while continuing to use democratic language.

The antidote is surprisingly mundane.

Accept that voters and representatives sometimes make choices you believe are terrible.

Contest them.

Criticise them.

Organise against them.

Then try to win next time.

Democracy is not agreement about who should govern.

It is agreement about how disagreement over who should govern is resolved.

Pakistan came very close this week to breaking that distinction.

On Sunday, the parliamentary process was blocked and the assembly dissolved.

On Thursday, the Supreme Court restored it.

Last night, parliament removed the prime minister.

The politics has been chaotic, partisan and deeply distrustful.

Yet perhaps the most important fact is that, eventually, a vote happened.

Pakistan does not need politics without conflict.

It needs political conflict that stops before becoming constitutional destruction.

Imran Khan has lost office.

Whether Pakistan has gained anything institutionally depends on whether everyone now accepts that losing office is something politicians are allowed to survive.