The idea of creating more provinces in Pakistan has resurfaced in the national debate. While it is not new—discussed at various junctures since independence—it has always been shelved due to political hesitancy, fear of backlash, or the enormity of challenges attached to such structural reforms. Today, however, the debate has regained urgency. With a government supported by strong institutional backing, particularly from the armed forces, there exists a rare opportunity to take bold and practical steps toward reshaping Pakistan’s federal structure for the greater good of its people.
This is not simply a question of drawing new boundaries on the map. It is about redefining governance, expanding representation, ensuring equitable resource distribution, and paving the way for inclusive national development. If approached with wisdom, sensitivity, and pragmatism, creating more provinces can transform Pakistan’s governance model for the better.
Why More Provinces? The Rationale
Pakistan is a diverse federation of over 240 million people. Four provinces, a federal capital, and some special territories have been the governing framework for decades. Yet, this arrangement does not adequately represent the mosaic of ethnicities, languages, and communities across the country. The imbalance in population and geography among the provinces—Punjab being larger than all other provinces combined in population—creates structural inequalities that have been exploited politically and economically.
The case for more provinces rests on several strong arguments:
Improved Governance
Smaller administrative units are easier to govern. With provinces closer to the people, decision-making can become faster, more responsive, and better aligned with local needs. Citizens often complain that provincial capitals are too distant, both physically and politically, from the grassroots. Creating more provinces can bridge this gap.
Enhanced Representation
Pakistan’s diversity is its strength, but when communities feel underrepresented or ignored, discontent grows. More provinces mean that smaller groups can have their voices heard in provincial assemblies and decision-making forums. This strengthens the federation rather than weakens it.
Equitable Distribution of Resources
Provincial governments are responsible for allocating resources for development, education, healthcare, and infrastructure. With fewer, larger provinces, resources often get concentrated in certain regions. By creating more provinces, development can be planned and executed more equitably across districts and divisions.
Balanced National Development
Many areas of Pakistan—southern Punjab, interior Sindh, Balochistan, and erstwhile FATA—lag behind in development indicators. Smaller provinces dedicated to these regions can focus exclusively on their uplift, rather than competing with wealthier regions for limited provincial budgets.
Strengthening National Unity
Critics often fear that more provinces will fuel division. In reality, the opposite is true. By addressing grievances of marginalized communities, acknowledging their identities, and granting them greater autonomy, Pakistan can strengthen its unity and loyalty to the federation.
Possible Scenarios for New Provinces
When discussing new provinces, there are several scenarios to consider. The goal should not be to redraw boundaries arbitrarily, but to ensure fairness, practicality, and broad-based consensus.
Administrative Division-Based Provinces
One option is to convert existing divisions into provinces. For example, Punjab has nine divisions; these could be reorganized into three or four provinces. Similarly, Sindh, Khyber Pakhtunkhwa, and Balochistan could be reorganized to create manageable units.
Ethnic and Cultural Considerations
While avoiding ethnic exclusivity, acknowledging cultural identities can help heal old wounds. For instance, the demand for a Saraiki province in southern Punjab is based on linguistic and cultural identity. Similarly, Hazara in KP has long demanded its own province. These demands, if addressed wisely, can foster inclusiveness.
Economic and Geographic Balance
Provinces could be created with an eye toward economic viability and geographic accessibility. No province should be left landlocked without access to trade or resources. A balanced approach ensures that all new provinces can sustain themselves economically.
Gradual Implementation
Instead of creating multiple provinces at once, Pakistan could adopt a phased approach. Beginning with the most feasible and widely demanded cases (e.g., southern Punjab, Hazara), the model could be refined before expanding further.
The Benefits of More Provinces
If implemented thoughtfully, the creation of more provinces can yield far-reaching benefits:
- Decentralized Power: Bringing power closer to the people weakens bureaucratic bottlenecks and reduces dependency on Islamabad.
- Local Accountability: Smaller governments are easier to monitor and hold accountable, making corruption and mismanagement more difficult to hide.
- Enhanced National Integration: By granting equal recognition to all communities, grievances that have fueled separatism in the past can be addressed.
- Economic Growth: Smaller provinces can specialize in their strengths—agriculture, minerals, trade, or industry—leading to targeted economic growth.
- Political Stability: Fair representation reduces feelings of exclusion, which often manifest in political instability or protest movements.
A Framework for Implementation
For this vision to materialize, a carefully crafted strategy must be adopted. The following framework offers a practical roadmap:
National Consensus-Building
- Initiate a structured national dialogue involving political parties, provincial governments, civil society, and academia.
- Emphasize that the goal is national strengthening, not division.
- Seek buy-in from the masses through public consultations and forums.
- Legislative and Constitutional Process
- Amend the Constitution with a two-thirds majority in Parliament and consent from provincial assemblies.
- Establish a clear legal framework for creating new provinces, including criteria for boundaries, resource sharing, and representation in national institutions.
Resource Allocation and NFC Award
- Revise the National Finance Commission (NFC) Award to ensure fair distribution of federal resources to new provinces.
- Guarantee that smaller provinces are not financially disadvantaged.
Administrative Infrastructure
- Establish new provincial capitals, administrations, and institutions gradually to avoid financial strain.
- Initially, existing divisional headquarters could serve as provincial capitals.
Phased Approach
- Begin with two or three new provinces that enjoy broad consensus, such as South Punjab and Hazara.
- Monitor their performance, refine governance models, and expand gradually to other regions.
Safeguarding National Unity
- Create a robust communication campaign to assure citizens that more provinces mean a stronger Pakistan, not fragmentation.
- Emphasize unity in diversity, ensuring that new provinces strengthen the federation.
A Way Forward
Pakistan stands at a critical juncture. Governance challenges, population pressures, and uneven development demand bold reforms. Creating more provinces is not a luxury—it is a necessity for effective governance in the 21st century.
The path forward must be inclusive, transparent, and gradual. It requires courage from political leaders and trust from the people. Mistakes of the past, where genuine demands were dismissed as threats, must not be repeated. Instead, the process should be seen as a democratic evolution—one that brings the state closer to its citizens and paves the way for a stronger federation.
Ultimately, Pakistan is not defined by the number of its provinces but by the strength of its unity, the inclusiveness of its governance, and the fairness of its development. By embracing the idea of more provinces, Pakistan can turn an old debate into a transformative reality—ensuring that no community feels left behind, and every citizen has an equal stake in the nation’s future.
Summary
The debate on creating more provinces is not about division but about unity through justice. It is about strengthening Pakistan’s federal system by making it more responsive, representative, and fair. The current government, backed by strong institutions, has a historic opportunity to act where others hesitated.
By approaching this reform with wisdom, patience, and inclusivity, Pakistan can create a governance model that delivers development to all corners of the country. This is not just about maps and boundaries—it is about giving every Pakistani the dignity of representation, the promise of development, and the hope of a more prosperous tomorrow.
