The creation of new federating units or provinces has regained attention nowadays. The debate has been further intensified when Mohsin Naqvi hinted that new administrative units are the need of the time, as the system has collapsed. The statement was also endorsed by the military spokesman. The question is whether the creation of new administrative units or provinces will resolve the core structural problems of Pakistan, which are embedded in institutional failure.
First, the ruling elites said that the unitary system was a viable option to solve the governance problems. Secondly, the ruling elites gave the argument that the presidential form of government was the only option to address the outstanding issues of Pakistan. Further, they went on to adopt the parliamentary form of government by arguing that Pakistan needed a federal government and provincial representation. Then, the 18th Amendment was enacted with the promise of strengthening the provinces in economic and administrative spheres.
Now, the ruling elites have sparked a debate about the creation of new provinces. However, the ruling elites have failed to understand the core governance crisis. Pakistan is experiencing severe terrorism in two western provinces, protests in Azad Kashmir, and a law-and-order crisis in Sindh. Pakistan also has one of the worst judicial systems in the world. A single judge is dealing with the fate of more than two hundred thousand people. Besides, the bureaucracy is pathetic, the economy is struggling, the population bomb is ticking, and unemployment is soaring.
Rather than addressing the issues mentioned above, the ruling elites have delayed reforms by sparking the most controversial debate about the creation of new provinces. This debate will not serve the intended purpose unless the ruling elites allow genuine institutional development.
The creation of new provinces also carries constitutional and economic costs. The current political setup does not have sufficient legitimacy to amend the basic structure of the Constitution, especially on such a sensitive issue. The required two-thirds majority also needs to exist in a genuine political spirit. Any attempt to change the constitutional requirement of a two-thirds majority would raise serious concerns about the legitimacy of such a process.
Apart from the constitutional issue, the creation of new provinces would require billions of rupees to establish high courts, secretariats, and administrative departments, besides recruiting civil servants. Such expenditure would create more burden on an already struggling economy, which is sustaining itself through external financial assistance and IMF programs.
The most important question is whether the creation of new provinces will actually improve governance. If the existing provincial governments are struggling to provide basic services, there is no guarantee that the creation of more provinces will resolve the problem. New provinces may only create new administrative structures without addressing the institutional weaknesses that are responsible for the governance crisis.
Pakistan does not need new federating units or provinces merely for the sake of creating new administrative boundaries. Pakistan needs better local government, with sufficient financial and administrative authority to address the grievances of the common citizen. The problems faced by an ordinary citizen are mostly related to education, healthcare, sanitation, water supply, policing, roads, and municipal services. These problems can be addressed more effectively through strong and financially sound local governments.
The creation of new provinces may bring government closer to some populations, but government cannot become effective merely by becoming geographically closer. Effective governance requires strong institutions, accountability, professional bureaucracy, and proper distribution of financial and administrative powers.
The ruling elites should therefore focus on institutional development instead of repeatedly changing political and administrative structures. Pakistan has already experienced different forms of government and major constitutional reforms. The problem has never been limited to the structure of government. The real problem has been the failure of institutions to perform their functions effectively.
Anyone who wants to redraw the boundaries without addressing the core governance crisis is only abstaining from addressing the real problem. New provinces may change the map, but they will not automatically change the quality of governance.
Pakistan does not need another administrative experiment. Pakistan needs institutional reform, strong local governments, and effective governance.
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The views and opinions expressed in this article/paper are the author’s own and do not necessarily reflect the editorial position of Paradigm Shift.
Safdar Ali is a lawyer based in Karachi with a keen interest in current affairs, constitutional law, governance, and public policy. His writing focuses on contemporary legal, political, and institutional issues affecting Pakistan.
