The debate over creating more provinces in Pakistan resurfaces repeatedly, driven by demands for administrative efficiency, equitable resource distribution, and ethnopolitical representation. While proponents argue that additional provinces would enhance governance, strengthen democracy, and improve economic stability, critics warn of the dangers of fragmentation, regionalism, and political instability. This editorial examines the complexities of this debate and explores whether the formation of new provinces is a viable solution or a Pandora’s box that could further destabilize the nation.
Pakistan, with its diverse ethnic, linguistic, and cultural groups, has long been the subject of calls for the reorganization of its administrative boundaries. The country currently consists of four provinces, Punjab, Sindh, Balochistan, and Khyber Pakhtunkhwa (KPK), alongside Islamabad Capital Territory, Gilgit-Baltistan, and Azad Jammu and Kashmir. However, with a population exceeding 250 million and a highly centralized governance model, many believe that the existing provincial structure is inadequate to meet the demands of various communities.
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The 18th Amendment to the Constitution, passed in 2010, granted greater autonomy to provinces, inadvertently amplifying voices advocating for further devolution of power. The demand for new provinces has primarily emerged from South Punjab (Saraiki province), Hazara (Hazara province in KPK), and Karachi (Muhajir province). Political, economic, and ethnocultural grievances, including inadequate budget allocations, marginalization, and inefficient governance, fuel these movements.
Advocates of new provinces present a compelling argument centered on administrative efficiency, improved governance, and socio-economic development. Countries with decentralized structures, such as India and the United States, have demonstrated that smaller administrative units can lead to improved governance, more effective resource allocation, and enhanced public service delivery.
One of the strongest arguments in favor of creating more provinces is the improvement in governance and administration. When provinces become too large, governance structures become unwieldy, leading to inefficiency and corruption. Smaller administrative units, on the other hand, can facilitate more localized decision-making, enhance law enforcement, and improve public service delivery.
Pakistan’s existing provincial system has long been criticized for favoring Punjab, which, due to its sheer size and population, receives a disproportionate share of national resources and political representation. Smaller provinces often feel sidelined in policymaking. Creating new provinces could help reduce political alienation and ensure fairer representation for all ethnic and linguistic groups.
A decentralized government framework can promote democracy and strengthen local governance. Pakistan’s local government system has historically been weak, with power concentrated in the provincial and federal governments. The establishment of new provinces could provide a structural framework for a stronger local government, enabling greater citizen participation in decision-making.
A major concern in Pakistan is the unequal distribution of resources among its provinces. The 7th National Finance Commission (NFC) Award allocates 57.5% of resources to the provinces, with Punjab receiving the largest share (51.74%) due to its population size. This has led to resentment among smaller provinces, where economic development remains stunted. A more equitable division of provinces could lead to fairer resource distribution, synchronized economic growth, and greater investment opportunities.
Tax evasion and fiscal mismanagement continue to be pressing issues in Pakistan. With a mere 3.66 million active income tax filers, the country struggles to generate sufficient revenue for developmental projects. The establishment of new provinces could lead to a reformed taxation structure, better enforcement mechanisms, and improved fiscal discipline, ultimately strengthening the economy.
Better governance, fair resource allocation, and localized administration can improve healthcare, education, and employment opportunities. Countries such as Sweden and Norway, with their well-structured, decentralized systems, have demonstrated that empowered local governments can significantly enhance the quality of life for their citizens.
Despite these apparent benefits, the opposition to creating more provinces is equally strong, rooted in concerns about national integration, political instability, and increased bureaucratic complexities.
Critics argue that the creation of new provinces could foster division rather than unity. Pakistan has already faced separatist movements in Balochistan and KPK, and further administrative fragmentation could exacerbate ethnic and regional divides. A stronger national identity is seen as crucial for Pakistan’s stability, and many fear that more provinces might embolden separatist tendencies.
New provinces mean new power structures, which could lead to conflicts among different political factions and interest groups. This could lead to political polarization, policy inconsistencies, and administrative conflicts, ultimately fostering instability rather than resolving governance issues.
Pakistan already struggles with a bloated bureaucracy and inefficient administrative structures. The creation of new provinces would necessitate the establishment of new provincial governments, legal systems, and infrastructure, resulting in increased financial strain on the national budget.
Each new province would have the authority to formulate its policies, which could lead to inconsistent governance frameworks across the country. This heterogeneity might create obstacles in business regulations, taxation, and inter-provincial trade, impacting economic progress rather than facilitating it.
While both arguments hold merit, a balanced and well-planned approach is necessary to determine the feasibility of creating new provinces. Rather than making abrupt changes, Pakistan must consider establishing an independent commission to assess the administrative, political, and economic impacts of such a move. This commission should conduct detailed studies, consult stakeholders, and formulate a legal framework to ensure a smooth transition if new provinces are to be created.
Moreover, the focus should not merely be on increasing the number of provinces but on strengthening governance structures at all levels. Reforming the local government system, ensuring equitable resource distribution, and implementing transparent policies could help address the issues raised by proponents of new provinces without necessitating a restructuring of administrative boundaries.
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The demand for new provinces in Pakistan stems from legitimate grievances related to governance, representation, and economic disparity. However, the solution does not lie solely in redrawing administrative boundaries but addressing the underlying causes of discontent, corruption, mismanagement, and lack of local governance.
If Pakistan is to move forward with the creation of new provinces, it must do so with political consensus, institutional backing, and a clear roadmap that prioritizes national stability over short-term political gains. A systematic approach that balances decentralization with national unity, economic sustainability, and efficient governance will be crucial in determining whether the formation of new provinces is a necessity or a liability for Pakistan’s future.
Will Pakistan embrace the challenge of restructuring its federal units, or will it continue with the status quo, risking the deepening of socio-political divides? The answer lies in how policymakers navigate this complex issue wisely.
