Divide or perish: creating new provinces in Pakistan
Since 1947, two characteristics of the Pakistani state have continued to haunt its legitimacy and survival. The first relates to the lopsidedness of its federal framework; and the second pertains to the dysfunctional citizen-state compact. Prior to 1971, the efforts to achieve parity between the eastern and western wings remained a constant struggle eventually culminating in the break-up of the country. Nationalist narratives insist on the Indian intervention in 1971 rather than acknowledging that the governance arrangements for the two wings through a powerful Centre in Karachi and later Islamabad were inherently biased and unworkable. In the post-1971 context, the lopsidedness did not end as the Punjab continued to dominate the way country works and how power is distributed between the various federating units. How can a federation work when one province will always be the most populous, resourceful and hold keys to state power through the civil-military bureaucracy?
The second unfortunate legacy of the colonial governance arrangements i.e., an over-developed state operating through central rule and diktat , is now facing the greatest crisis of legitimacy. It is now commonly recognized that state legitimacy is a function of how effective a state is in delivering services, ensuring entitlements (such as security) and negotiating plural identities and competing demands for resources and power. Pakistan’s dominant classes have always been averse to address this endemic issue until the recent political consensus that has been achieved through the passage of the 18th Amendment. While the political elites are clear on the future roadmap it remains to be seen whether the unelected institutions of the state are on board with the new provincial autonomy arrangements. Perhaps the recent violence in response to the renaming of the erstwhile North West Frontier Province to Khyber-Pakhtunkhwa was allegedly orchestrated by the Kings’ party known for its servility to the establishment.
The debate on creating new provinces from different corners of the countries is a healthy sign and a direct result of a democratic phase, howsoever uncertain it might be.
In a 2009 survey conducted by the Urban Institute/Nielsen, Pakistani citizens were clear in stating that the federal and provincial governments and bureaucrats were least responsive to their needs and concerns. However, they found the local governments and elected representatives far more responsive. The findings of this survey are not surprising, given that mammoth provincial bureaucracies rule the poor and the disadvantaged through a web of patronage, corruption and malfeasance.
For instance, take the case of the Punjab. A province almost the size of Germany wants to rule a poor, remote region such as Dera Ghazi Khan from Lahore. Or take the case of Sindh; a distant Karachi is in charge of the impoverished and drought-stricken communities of Tharparkar. It is not just an issue of centralization, but of a near-collapse of citizen-state relations. Since 2008, the elected governments have also rolled back the ill-fated devolution reforms introduced by Musharraf’s regime in 2002. New laws are still to be legislated and judging by the past performance of our provincial elites, the future local governments will have little powers and shall remain starved of resources to undertake local development.
The dysfunctional state of Pakistan – already judged as a failed one – needs to reinvent itself if it has to survive. There are numerous regions and districts where the state is hardly present or in a position to serve the citizenry. South Punjab, most of Balochistan, and several parts of Khyber-Pakhtunkhwa fall into this category. Add to this, the no-go areas such as FATA and PATA agencies, and the semi-citizenship zones such as AJK and Gilgit-Baltistan, we can easily assess what ails the Pakistani state? Centralised, distant, and unresponsive governance arrangements have eroded the citizen trust in the state
It is therefore imperative that new governance units be carved out from the existing unmanageable and misgoverned provinces that function in tandem with efficient local governments. The Punjab should at least be divided into four provinces, KP into at least two, and Sindh should also be separated from the messy Karachi that consumes most of the energies of the provincial government. Finally, it is baffling to note that no such move has been considered for Balochistan which currently is an unwieldy province and which needs to be divided into at least three units. The numbers are irrelevant as long as the economic and political viability of the new provinces is properly assessed and tabled for public debate to be followed by referenda.
If this is not done, the Pakistan state, assuming that it has not failed yet, will soon be headed towards failure.
Raza Rumi is a writer and policy expert based in Lahore. He blogs at http://razarumi.com; and manages Pak Tea House and Lahore Nama e-zines. Email: razarumi@gmail.com
All My Posts, governance, History, India-Pakistan History, On Pakistan, Pakistan, Politics, Published in The Friday Times
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Believe if the idea you provided gets into shape than what? To me, the original cause for all this damage lies upon the shoulders of citizens of this country. In democratic countries the right to vote is the biggest power a common man can have, and when it’s spoiled the whole system get spoiled by the incompetent elected person. Our leaders’ (having clear Political way forward) lack the sense of responsibilities they carry when they sit in parliaments.
In our case, excel could be done only when our people understand their power i.e. right to vote. And then raison d’être for creating new provinces won’t affair any longer.
ON the contrary (to what Umair has said) if a robust democracy was to be at work, the inter provincial fissures (among other such gashes) would have further widened. This farcical arrangement is being artificially sustained by the big brother making phony sacrifices; why would one offer from one’s own rightful share and why would the others try to break way from a system that gives them more than they deserve. Democracy is not about sacrifices but about fighting for your rights in a civilized manner.
The issue here is not just the ‘absence of democracy’ (which has otherwise been the sustainer of the state of Pakistan), it’s the lopsided partnership in which one partner is larger than all the others put together that undermines the integrity of this whole relationship. Raza makes a very valid point; 18th amendment is not enough, you have to divide or perish.
leave the problem of deviding pakistan into different provinces. let first solve other problems because thats very necessary. use some common sense and don’t indulge the people in new messive problem.
FIVE REGIONAL CITIES should be upgraded with in the provinces in Pakistan. Regional cities of Dera Ismail Khan in NWFP, Gawadar/ Qalat in Balouchistan, Sukkar/ Larkana in Upper Sind, Jehlam/ Rawalpindi and Multan in Punjab province. These regional cities have been ignored by the federal and provincial governments although these cities have their own history, culture and languages.Dera Ismail Khan in south of Pakhtun khwa/MWFP is under seige, Multan/DG Khan in south of Punjab is next target of religious extremists,Sukkar/ Larkana is being rule by criminals, Gawadar/ Qalat is trouble some. The people of these regions have to travel to provincial capitals for every small issue and requirement of the daily life which should be provided in nearby cities. A good number of population travel to big cities for their survival to earn livelihood as the local feudal own majority land and keep the common man as their slaves. Creation of regional government and upgrading of the regional cities will save a lot of money and time of the poor people of these regions. Circuit benches of the High Courts are already working in these areas and only requirement is the additional staff of different departments involved in additional work at the provincial capitals. The concern authorities should immediately consider to upgrade the regional cities. And immediate attention should be given upgrade/build the airports,TV station, civic center, libraries,hospitals, educational institutes and investment opportunities for Pakistanis living abroad and foreign firms to create jobs in the area as majority population in rural Pakistan do not have enough resources to survive. It remind me the condition of pre Islamic revolution of Iran in Shah time when the rural Iran was ignored and the capital Tehran was developed in a way to call it Paris of Middle East with modern life style. Couple of other big cities like Isfahan and Caspian sea was taken care of because of foreign tourists but rural area was ruled by cruel police and intelligence. Then what happen rural population supported the Islamic revolution and moved to Tehran and other big cities later on. The new government after revolution developed, built and upgraded the rural areas of Iran accordingly. A fund to upgrade/build these regional cities in Pakistan should be intoduced by public and private sector and Pakistani government, our foreign friends and Pakistanis living abroad may be asked to participate in this development mission in the country..KHWAJA AFTAB ALI,( former secretary, Iranian embassy, Saudi Arabia,1975-88) Advocate High Court & I.P. Attorney-first & the only Pakistani lawyer who earned Intellectual Property laws scholarship in USA,presently residing in Florida, USA. all_languages@hotmail.com
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