Maryam Noureen Janjua
The idea of creating new provinces in Pakistan is not new. For decades, political leaders, regional activists, and civil society have debated the feasibility and necessity of forming smaller administrative units. The conversation has resurfaced time and again, driven by Pakistan’s growing population, geographical expanses, and complex governance challenges. With the country’s current population nearing 250 million, managing large provinces like Punjab, Sindh, Khyber Pakhtunkhwa, and Balochistan has become increasingly difficult, affecting the quality of governance, representation, and service delivery.
Pakistan’s current administrative structure traces its roots to the British colonial period, where the provinces were largely drawn along historical and ethnic lines. After independence in 1947, the administrative boundaries remained intact, with the exception of the creation of Khyber Pakhtunkhwa (formerly the North-West Frontier Province). Since then, despite the evolving socio-political landscape, the country’s four provinces have remained unchanged. The current administrative structure of the federation demands an overhauling and creation of new provinces.
Proposals for creating new provinces have surfaced sporadically, often in the context of political bargaining or regional discontent. The debate gained momentum in the 1970s and 1980s, but it was in the last two decades that the idea was actively pushed, especially concerning the demand for the formation of a ‘South Punjab’ province. Advocates argue that smaller provinces would enhance governance, while critics fear that the creation of new administrative units could lead to ethnic divisions and further complications. Amid arguments from both favorable and unfavorable voices, the primary consideration is ethnic and linguistic identities and no one has championed the true spirit of smooth administrative functioning.
Pakistan’s population explosion is a key factor fueling the demand for new provinces. Punjab alone is home to over 120 million people—nearly half of the country’s population—making it difficult for the provincial government to manage its resources and provide equitable development. The existing provincial governments often struggle to provide adequate services in education, healthcare, infrastructure, and law enforcement, as they are stretched thin across vast and diverse regions. This has often led to ‘development in patches’ where most of the provincial funds have either gone to Lahore or a few large cities of the province. It not only leaves discontent but keeps a larger part of the population out of development and welfare.
Smaller administrative units can offer a more localized approach to governance. By reducing the size of governing units, provinces could focus on the specific needs of smaller populations, ensuring that local concerns are addressed more effectively. Furthermore, decentralization could help reduce the bureaucratic bottlenecks that plague large provinces, allowing for more efficient decision-making. As decentralization was the spirit of 18th amendment in the constitution of Pakistan, the lack of transfer of power to local bodies by the provincial governments have not only spoiled the spirit of 18th amendment but also ushered in a dire need to create smaller provinces.
Another strong argument in favor of creating new provinces is the potential for improved political representation. Large provinces often result in the concentration of political power in a few urban centers, leaving rural and peripheral areas underrepresented in provincial legislatures. Smaller provinces would create new provincial assemblies, offering more opportunities for local leaders to advocate for their constituencies. In Punjab, for example, the political landscape is dominated by a few powerful families and constituencies in central Punjab. This leaves southern and western regions—often more impoverished and marginalized—struggling to get their voices heard.
Similarly, in Balochistan, where the provincial government oversees a massive land area with a relatively small population, the creation of smaller administrative units could help address the unique needs of the various ethnic and tribal groups. Many regions of Balochistan, particularly those in the far-flung western and northern areas, feel disconnected from the provincial capital, Quetta. A more localized governance structure could bridge this gap, fostering a sense of inclusion and political participation.
Smaller provinces can also benefit from more equitable resource allocation. In the current structure, provincial capitals often receive a disproportionate share of the budget, leaving peripheral regions underdeveloped. For instance, Lahore, Karachi, Quetta, and Peshawar dominate their respective provinces in terms of infrastructure development, economic investment, and public services, while smaller towns and rural areas lag behind. New provinces would likely have smaller capitals, enabling a more balanced distribution of resources and development initiatives.
The creation of new provinces could also help mitigate some of the ethnic and regional tensions that have historically plagued Pakistan. By granting greater autonomy to distinct regions, the government could foster a sense of inclusion and reduce feelings of marginalization among various ethnic groups. For example, the demand for a Hazara province in Khyber Pakhtunkhwa stems from the Hazara region perception of being sidelined by the dominant Pashtun population. Similarly, there have been calls for creating provinces for the Seraiki-speaking population in South Punjab and the Mohajir community in Sindh. These demands highlight the desire for greater self-governance and recognition of regional identities. While some critics argue that the creation of new provinces along ethnic lines could fuel division, supporters believe that it would actually promote national unity by ensuring that all groups feel represented within the federal structure.
The idea of creating new provinces in Pakistan is not without its challenges, but the potential benefits—improved governance, enhanced political representation, and equitable development—make it a debate worth having. As the country continues to grow and evolve, the current administrative structure may no longer be sufficient to meet the needs of its diverse and rapidly expanding population. By establishing smaller administrative units, Pakistan could pave the way for more efficient governance, stronger regional economies, and a more inclusive political landscape.