Adil Najam
For as long as I can remember, I have heard passionate arguments about whether the four provinces of Pakistan should be divided into multiple smaller provinces. The discussion has, once again, gained momentum. This time its the issue of Karachi as a separate province and the the re-focus on converting Southern Punjab into a separate province (a ‘Saraiki sooba‘).
The political optics of the situation remain in flux, but there seems to be a growing sense that eventually some reordering of the provinces is on the cards. The constitutional changes under the 18th Ammendment also has a lot to do with this and as provinces take on new roles there is a sense of change and politicians are hedging their bets. I think all of this may be for the good – if, and only if, the decisions are taken sensibly and for overall administrative and policy improvement rather than just for political expediency. My question for our readers today is whether — irrespective of political motives — creating a new provinces is a good idea, including in Southern Punjab? And what this may mean, if anything, for other provinces?
First, let me put my own cards on the table. The first time I wrote about this subject was back in the 1980s – in an op-ed in The Muslim I argued for a total of 6 to 8 provinces (each of the current four provinces being redrawn along lines consistent with historic, linguistic and cultural affinities). My most radical idea, then, was to reconsider the provinces not just along the lines of existing provinces but across existing lines (to use language as an example, Hindko, Sindhi, Seraiki, and Pushto speakers all straddle across current provincial lines). My motivation then, and now, stemmed from demographic concerns of concentration of populations, resources and, therefore, power in one province and the attendant feelings of peripheralization felt by other provinces. Importantly, this can – and has – led to a politics of fragmentation and distrust where it becomes too easy to evoke distrust and disdain through legitimate as well as exaggerated fears. There is also the concern about fewer provinces strengthening a provincial group identity at the expense of a national identity as well as of more local identities. Importantly, in the case of the Saraiki belt, the local identity sentiment for a separate province is the strongest reason to support such an initiative.
After writing that piece I remember having protracted conversations on this with the late Dr. Mahbub-ul-Haq who had been arguing for a much more elaborate scheme that would end with there being 16-25 different provinces. Over the years I have become more and more sympathetic to his developmental argument: that creating smaller provinces will also de-centralize power and localize opportunities – each provincial capital requires a provincial capital infrastructure and create local employment and opportunities and therefore development opportunities get spread around the country rather than being centralized in a few locations.
I tend, therefore, to lean towards this idea. However, practical realities have tended to mute my enthusiasm somewhat. But, only somewhat. I realize, of course, the fractious politics that will be unleashed in the process of redrawing provincial lines, even though my hope has been that the coalitional politics that will emerge for having more units will be, in fact, less fractious than our current provincial frictions. There is also the practical matter that while in most of the country the affinities have long historical and cultural roots the demographics in urban Sindh are ‘modern’ and constructed through the traumas of sudden migration patterns. Not surprisingly, the resultant identity politics also tends to be more traumatic.
So, my own leanings on this are clear and I would support a Seraiki province, even if a more elaborate redrawing of provincial units across the country were not possible at this time. Three reasons would make me support such a move: (a) it is a deep demand of the area itself and (b) it begins to balance out provincial distributions and (c) amongst the various cases for provincial redrawings this is clearly the strongest case for the clear cultural and historic affinities and this could serve as an important first step.
I have been in this debate long enough to know that there can, and will, be many arguments against mine. So, lets please hear them. Is there a logic to redrawing provincial units? If so, why? If not, why not? I suspect it will not be so, but I hope people will focus especially on the longer-term national logic of such a move rather than whatever short-term political gains or losses this might mean to particular political operatives.
P.S. This post is an updated version of an earlier post published on July 3, 2009. It has been updated to reflect the current issues around this topic.
The discussion continues to rage on the ATP Facebook Page; a few more comments from there.
– “no”
– “no, never. Instead i propose one unit instead of 1973 constitution. This is all because of this 1973 constitution. The constitution must be demolished and back again, i support one unit.”
– “diz iz another foreign plot like datt in baluchistan just to dis -unite pakistanis!”
– “I would not mind – if for the sake of easier administration and resource allocation – Punjab is divided into two provinces. Personally I do not see any threat to the national unity or any foreign conspiratorial theory behind this move.”
– “yessssss”
– “every one know that there is no substitute of unity so y any one wants to be further divisions …………already we called Punjabi,sidhi, Sarhadi Blochi,Kashmiri so no one like to called Pakistani and no one for pakistan they just speak rights of just their own province So what would be the result its further division ,,, we know better”
– “No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No No”
– “Leave the Topic of Punjab, come on the point of Sindh :) :)”
– “i don’t know why are we scared with creation/demarcation of the provinces…india did it too….and to remove all the different of we need make balance and equity…there is no harm. this is part of reforms in long run..”
– “Pakistan Bachhao…..”
– “These leaders can’t handle 4 provinces. How can they handle more??????”
– “yeah it shud be done……!”
– “well, punjab was never what it became post Pakistan…..the multan and some other districts in Southern punjab were part of Sindh historically; three districts (Rajanpur and two the adjacents to it) are baloch districts….. and if Sindhis, Balochie, Pakhtuns and PUnjabis have right to identy; so do the Serakis have it…and Seraki’s right to identity is compromised if they stay within Punjab..”
– “Never”
– “- the deicission should be based on what is good for Pakistan as a whole and not on the needs of any one sub-entity.
– the decision should also take into account the wishes of people so maybe a referendum would be needed.
– all provinces may need to be further divided as they are much too big eitehr area wise (Balochistan) or population wise (Punjba)
– the new dividions should not be based on linguistic or any other groups, these should be solely based on what would be easier for administration. (I think most of us are sick of the slogans of Punjab for Punjabais and Balochistan for Balochis and so on. Pakistan is for Pakistanis and that is all. I claim equal right on all cities, towns and villages of Pakistan, where ever they may be. Pura Pakistan mera ghar hai)
Let us not be afraid of positive change.”
– “never…all such acts provoke separation…we should rather promote unity!all such tonts and everything is giving rise to such momentums round pakistan…..”
– “n i think that no one should go for the like this button in this respect!!!”
– “no way..dis iz not a way……….”
@Nostalgic. Actually I think a Potohar povince would be a very good idea. I think it is what Prof. Najam was suggesting in the post too. Baluchistan should also become two provinces or maybe the Pushto speaking part joined with Pakhtoonkhwa and the Hindko speaking part of NWFP a separate province. I think this will make the country stronger and actually increase national unity.
Haroon beat me to posting Dr. Siddiqa’s article… :) … here’s the link, all the same:
http://www.dawn.com/wps/wcm/connect/dawn-content-l ibrary/dawn/the-newspaper/columnists/ayesha-siddiq a-more-provinces-379
I am surprised, given how she says that the PPP stalwarts from Southern Punjab would be in favor of the partition, that PM Gilani has opposed it unequivocally…
It would help the PPP in the Senate too, if the new province were to get the same number of seats as the existing provinces, which is surely will…
My personal opinion is colored more by the romantic as opposed to the pragmatic… all distinct ethnic groups should have a province of their own, and the Seraiki speakers are no exception… the only trouble is, someone is bound to be feel hard done by: the Punjabi heartland in this case, the Sindhis if urban Sindh was made a new province, the Baloch if Northern Balochistan were to be merged with Pakhtunkhwa, the Pakhtuns if Hazara was separated from them…
So be it… I want a Potohar province, with Rawalpindi as our capital ;) …
I support this notion of division for the reason mentioned above, i.e., Creating smaller provinces will also de-centralize power and localize opportunities – each provincial capital requires a provincial capital infrastructure and create local employment and opportunities and therefore development opportunities get spread around the country rather than being centralized in a few locations.
Its about time the hegemony and monopoly of Punjab comes to an end and Pakistan is projected as Pakistan abroad too .. not as a place where only PUNJABIS live. No offense, but thats how Pakistan is perceived outside and you know what I am talking about and that has caused us much embarrassment already as a nation.
Secondly, for a “HOPEFULLY” (pun intended) better governance, which seems even tougher than a dream in this land, dividing the land might help a bit in this cause.
It is not like “BHARAT-MAATA” being divided into 2. It is for our own good … It is not redrawing the national borders (unless that’s on the cards, somewhere down the line by any operatives).
This, to me, seems a fair deal. Not only Punjab, but every province needs to be re-modeled for administrative purpose provided we’re sincere in our intent to do so! Else, as we have already witnessed many a times, the mentality of our masses can cause havoc to each and everything!
A hopeless nation can only think of more non-conducive measures to any problem. I have very little optimism for things to go the right way as pointed in the above piece.
-Uzair
I support the idea but I also think that we need to have more provinces. Maybe like the Mahbub ul Haq plan.