The idea of creating new provinces in Pakistan is not new and has been debated many times. Given the country’s growing population, governing large expanses of geography has become challenging. Hence, smaller administrative units should be established with better local representation.
While some present the proposal’s merits, others believe that carving out new provinces will fuel instability. Opponents of the idea argue that in a resource-stricken, ethnically diverse country like Pakistan, the creation of more boundaries can potentially fuel fragmentation, violence, and ethnonationalism. This insight attempts to address the debate surrounding the creation of new provinces while considering how countries worldwide have benefitted from more provinces.
Federalism and Governance
Pakistan’s government is premised on a federal structure under which the power is distributed between the center and the constituents. This helps cater to the demands of the country’s heterogeneous and ethnically diverse landscape. On the other hand, in a unitary style of government, the power is concentrated in the center. Regardless of the type of government, countries continue to create more provinces for efficient delivery of services.
Figure 1: Comparison of the Total Number of Provinces in Countries around the Globe
Globally, no country has a population exceeding 25% of its provinces’ total. In Pakistan, however, the province of Punjab hosts 56% of the country’s population, while Balochistan accounts for a meagre 5%. This has led to uneven resource distribution and unfair political representation in the national legislatures. Pakistan’s four provinces are divided based on British-era ethnolinguistic divisions, where districts and regions on the peripheries of each are the poorest and rank the lowest in HDI.
International Comparisons
- Nigeria: A country with a population and geographical size comparable to Pakistan, Nigeria has steadily increased its number of states from 4 to 36. This has helped decentralize governance, improve resource allocation, and mitigate ethnic disparities.
- Turkey: Initially divided into historical regions, Turkey has adjusted provincial boundaries to better meet administrative needs, enhancing social cohesion and local governance.
- India: India has systematically created new states to address governance challenges, with new states like Chhattisgarh, Jharkhand, and Uttarakhand leading to improved governance and economic growth.
Administrative and Political Challenges
- The vast size of provinces like Punjab makes governance and service delivery inefficient, contributing to disparities.
- Political elites and regional parties often oppose redistricting efforts due to vested interests.
- Lack of effective local governance models and financial transparency exacerbates governance challenges.
Proposed Framework for New Provinces
New provinces should be created based on:
- Geographic considerations: Ensuring accessibility and administrative convenience.
- Population size: Balancing population density across administrative units.
- Economic viability: Evaluating the financial sustainability of new provinces.
- Historical and cultural context: Respecting local identities and traditions.
- Local security dynamics: Addressing governance challenges in conflict-prone areas.
- Ethnolinguistic diversity: Ensuring fair representation and reducing ethnic tensions.
A gradual phase-wise process should be employed to create smaller units. This will give local government more control over finances, thus improving governance and allowing the public greater accessibility to funds and services. This will foster organized development, especially in health care and educational facilities, reassuring the audience about the positive impact of the proposal. Improved administration and enhanced development will help address the locals’ grievances, aiding in quashing militancy.
Considering the advantages of more units, 3-4 provinces can be carved from Punjab and 2-3 from Sindh, KP, and Balochistan. The GB and AJ&K regions can also be made into separate provinces with provisional status. Moreover, given Lahore and Karachi’s economic vitality and population size, the two metropolitan areas can be designated independent metropolis similar to Islamabad. This strategic division can lead to improved governance, better resource allocation, and enhanced local representation, fostering a sense of optimism and hope for the future.
Implications and Future Prospects
Creating new provinces in an underdeveloped country like Pakistan needs thorough deliberation and the management of political, ethnic, racial, and linguistic differences. An informed debate about the subject needs to be started, engaging all stakeholders and ensuring their voices are heard.
Moreover, a roadmap must be devised for its political, administrative, and economic aspects to ensure the proposal stays strong. If implemented, creating new provinces is bound to yield results, strengthen the federation, and promote unity and diversity.
A parliamentary commission should be formed to lead discussions on creating new provinces, ensuring that the process is democratic and well-researched. If executed effectively, this initiative will lead to a more balanced federation, reducing regional grievances and strengthening national unity.
Pakistan’s most influential think tank, IPRI, held a roundtable discussion that underscored the importance of a structured, research-based approach to addressing administrative inefficiencies, as highlighted below:
