Planning and Development Minister Ahsan Iqbal has put forward a proposal to establish between 12 and 15 new provinces in Pakistan. He urged Prime Minister Shehbaz Sharif to form a committee tasked with reviewing the country’s administrative framework. Iqbal emphasized the need for a political consensus to move forward with such reforms, stating that a committee should be created through the law minister to initiate a national and political discussion on the matter.
Iqbal mentioned he was waiting for the prime minister’s return from Kyrgyzstan before formally discussing the issue. His proposal revives a long-standing debate over Pakistan’s provincial structure, which has gained renewed attention in recent months. Interior Minister Mohsin Naqvi raised concerns about the current governance system in July, followed by a call for serious debate from Inter-Services Public Relations (ISPR) Director General Lt Gen Ahmed Sharif Chaudhry.
Iqbal, Pakistan’s four provinces have become increasingly centralized and monopolistic, negatively impacting the delivery of essential social services like health and education. He suggested dividing each existing province into three, resulting in 12 to 15 provinces overall. However, he stressed that any new provinces must be created based on an equitable formula to avoid drastic changes in Senate representation.
Despite these proposals, other officials have clarified that no formal federal process is underway. Rana Ihsaan Afzal Khan, coordinator to the prime minister, stated that no decision or official committee has been formed regarding the creation of new provinces or administrative units. He added that if such changes occur, they would likely be implemented in the next election cycle.
Currently, Pakistan consists of four provinces, two autonomous territories, and one federal capital territory. Over the years, various political parties and regional groups have periodically advocated for additional provinces. The recent debate reignited on July 30 when Naqvi declared the existing governance system ineffective, proposing new administrative units as a solution.
The ISPR chief echoed this sentiment, highlighting the population growth and questioning whether the current four-province structure supports effective governance. However, the proposal has faced strong opposition, particularly in Sindh, where nationalist parties have organized near-daily protests since August 12 against any division of the province. Ayaz Latif Palijo, president of the Sindh-based Qaumi Awami Tehreek, expressed strong resistance to splitting Sindh.
Opposition to the idea extends beyond nationalist parties. Punjab’s Information Minister Azma Bokhari criticized Naqvi’s remarks as lacking seriousness, while Pakistan Peoples Party (PPP) leader Nisar Khuhro passionately defended Sindh in the provincial assembly, questioning who would want to divide their homeland.
The concept of creating new provinces is not novel. Proposals to carve out South Punjab and a Hazara province from Khyber Pakhtunkhwa have existed for decades. In 2020, the previous government established a South Punjab civil secretariat in Multan, seen as a step toward forming a new province comprising Multan, Bahawalpur, and Dera Ghazi Khan divisions.
Experts remain divided on whether smaller administrative units improve governance. Umair Javed, a political and sociology lecturer at Lahore University of Management Sciences, noted that while smaller units can enhance access to power and local decision-making, accountability is crucial to prevent elite capture. He emphasized that governance improvements depend not only on decentralization but also on increased accountability.
In a related development, Defence Minister Khawaja Asif recently proposed transferring Karachi in Sindh and Gwadar in Balochistan to federal control instead of creating new provinces. Javed criticized this idea, arguing it would financially benefit the federal government but fail to address municipal governance challenges effectively.
Creating new provinces would also entail significant financial and administrative costs. Pakistan’s economy remains under strain despite securing a $3 billion IMF bailout in 2023, followed by a $7 billion Extended Fund Facility. Each new province would require elections, institutions such as a chief minister’s office, assembly, and high court, as well as bureaucratic infrastructure and salaries.
Moreover, redrawing provincial boundaries would raise complex issues regarding the division of water, land, natural resources, and federal funds. The 1991 Water Apportionment Accord currently defines water shares among the four provinces, and any division could complicate these allocations.
For some observers, the debate is less about administrative efficiency and more about control over political power and resources. Political activist Dr Sorath Sindhu suggested the idea is a recurring ambition, often resurfacing under military regimes. The stakes are high, as major political parties have strong provincial bases they seek to protect.
Javed warned that the ongoing debate might weaken these parties, potentially benefiting the establishment by setting the terms of discussion and leveraging coercion to extract concessions. The issue remains a contentious and complex challenge for Pakistan’s political landscape.
