The debate over creating new provinces and administrative units in Pakistan continues to dominate political discourse, with President Asif Ali Zardari reportedly cutting short his stay in London and returning to Pakistan amid the prevailing political situation. What initially emerged as a proposal associated with Interior Minister Mohsin Naqvi has gained momentum following Planning Minister Ahsan Iqbal’s suggestion that Pakistan could be divided into 12 to 15 provinces. He has also called for a national political dialogue on restructuring the country’s administrative system. At the same time, reports suggest that powerful quarters are in favour of restructuring the existing setup through the creation of additional provinces or administrative units.
Despite the intensity of the public debate, the issue has reportedly not yet been formally discussed in the federal cabinet. This gap between what is being discussed publicly and what has formally reached the country’s political institutions should be a matter of concern. Administrative restructuring on such a large scale cannot be reduced to political messaging or treated as a decision that is announced after the fact. Any attempt to redraw the country’s administrative map must be preceded by serious consultation, transparency and political consensus.
The strongest resistance to the idea has so far come from Sindh. The Sindh Assembly has opposed the creation of new provinces or administrative units in the province, while PPP leaders have strongly resisted any move that could lead to the division of Sindh. PTI Chairman Barrister Gohar Khan has also backed the PPP’s position, warning that dividing Sindh without the consent of its people could weaken the federation. These reactions demonstrate that the issue is far more sensitive than a simple administrative exercise.
Pakistan’s existing political polarisation makes the matter even more complicated. Redrawing provincial boundaries without political and popular consensus risks transforming an administrative question into an existential political confrontation. Some observers believe that the creation of new administrative units is inevitable sooner or later. Others argue that the current debate is primarily aimed at generating political and institutional consensus rather than deciding the precise number of provinces or determining their boundaries.
There is an important distinction between discussing whether Pakistan’s administrative structure requires reform and deciding how many provinces should be created and where their boundaries should lie. The first is a question of governance and administrative efficiency; the second has profound political, constitutional and regional implications. The two should not be treated as though they are the same issue.
Reports that a high-level committee has presented Prime Minister Shehbaz Sharif with a draft proposal for a 27-member elected assembly for the Islamabad Capital Territory, along with a chief executive and 27 administrative departments, add another dimension to the discussion. If such proposals are indeed part of a broader restructuring exercise, political parties need to engage with them openly rather than allowing rumours and speculation to shape the national conversation.
There is already speculation about whether such a plan, if it exists, would be implemented before the next elections or afterwards. There are also rumours that the process could involve a 28th Constitutional Amendment or even a referendum. These possibilities raise important constitutional and political questions. If a referendum were to produce a result favouring the creation of new administrative units or provinces, would all provincial assemblies respect that outcome and proceed accordingly? And what would happen if they did not?
For now, these remain matters of speculation. What is clear, however, is that Pakistan could be heading towards a tense political autumn, particularly because not all political parties or provinces appear to be on board with the idea. The Sindh Assembly has already made its position clear, while the Punjab Assembly has remained largely quiet. Neither PML-N supremo Mian Nawaz Sharif nor Punjab Chief Minister Maryam Nawaz has publicly stated a clear position on the matter. Some interpret this silence as opposition, while others believe Prime Minister Shehbaz Sharif may not be opposed to the creation of additional administrative units or provinces, even if the Punjab government itself may not be enthusiastic about such an arrangement.
The argument that the ruling parties may ultimately be unable to resist the proposal because they are in power with the backing of powerful quarters is precisely why the process requires greater transparency and consensus. Decisions concerning the country’s constitutional and administrative structure should not be perceived as being imposed from above. Such a perception could further deepen mistrust between political parties, provinces and the centre.
Pakistan does need greater devolution, but the first step should be to empower local governments. Political parties should take ownership of Article 140-A, which they have repeatedly promised to implement, and finally deliver on that constitutional commitment. Strong and genuinely empowered local governments could bring decision-making closer to citizens and improve service delivery without immediately turning the debate into a struggle over provincial boundaries.
More provinces may or may not improve governance. That assumption needs to be properly examined rather than accepted as an established fact. The case for additional provinces should be based on administrative efficiency, equitable resource distribution, improved governance and the needs of the people concerned. Creating new units without political and popular consensus, however, could deepen existing political and regional divisions.
Constitutional restructuring on this scale cannot and should not be rushed or imposed. Pakistan needs more democracy, not less. Before drawing new lines on the map, political parties should strengthen the democratic structures they have already promised to citizens. If administrative reform is genuinely intended to improve governance, the process must begin with consultation, transparency and empowered local government rather than political expediency.
Shafaqna Pakistan
pakistan.shafaqna.com
Note: Shafaqna do not endorse the views expressed in the article
