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.
I am a Siraiki speaker from district Bahawalpur in Southern Punjab and have come to know the sentiment for a Siraiki Subah well over the last 30 years. The Siraiki areas of Punjab are very different from Northern Punjab and the distinction covers many intangibles, but language is where the divergence starts and, for me and others who I know, the distinction continues into the historical and encompasses the fact that much of Southern Punjab was a separate state for more than 200 years — then called ‘Bahawalpur.’ Symbols of the state and the use of Siraiki were discouraged in Punjab province as smacking of separatism. The siraiki language (and this is an example of an intangible greivance) went from being the official language of state affairs under Bahawalpur State to being associated with all those Southern punjab stereotypes of backwardness, being lazy, and being feudal. Southern Punjab is the womb of Pakistani sufism and the pir culture is probably stronger than it is in Northern Punjab. This area was also more disemboweled or, if you like, more decapitated by partition since, like Sindh, the entire Middle Class of professionals and technicians were Hindus. So we do differ from the Northern Punjabis of Lahore, Faisalabad, Sialkot, and Jhang and having a separate province would certainly inject me with some fervor for returning to Pakistan to engage in local development.
one of the questions to consider before thinking of provincial divison……is the national entity and identity….historically, even as per modern definitions, Sindhis, Punjabis, Seraikis, Baloches, Pakhtuns, there were nations…..and Sindh and Punjab, irrespective of their current geographical forms, were separate states being part of Sindhustan… Read More (which later became Hindustan, then India, reference Empire of the Indus, Alice Albania)…..so we should avoid putting the Tuhmat of provinces on these nations…
More comments from ATPs Facebook Page:
– “yes”
– “i think pakistanis have forgotten an old saying: “divide and rule” this is exactly what are politicians are trying to do right now to divert the ppl from their own blunders and they’ve successfully done this. instead of debating on prices of petroleum products & electricity, the abolition of 17th amendment or the culprits who allowed the mangla break down to happen even though it could have been easily averted we are discussing whether punjab should be divided”
– “2 provinces mean, 2 more CM’s, 2 more governors, 2 more provinces to deal with, a lot whole of new MPA’s and yes a lot more to feed the new adminstrators….what good it will do…i suggest make every district a province, make every body happy….but for that we need resources, we even can’t feed four provinces, what will we do with another….forget abouts who is punjabi, sindhi, balochis, saraki, hindku and pukhtuns…just focus that we all are Pakistanis….alot need to be done…once you divide Punjab into two parts, people of Hazara will demand another, people of Makran will demand another and so on…..is there any end to this stupid talk…is there anyone willing to take the lead and do something to save Pakistan…practically??? try to find answers with in u, rather blaming Pakistani people leaving in different provinces….”
– “no it mst not!!!”
– “is sy fiada kia ho ga……! i dont think so k is sy koie fiada hony wala hy…….1”
– “It’s a MQM ploy to disintegrate Pakistan. It won’t finish here. Rather the story begins from here.”
– “Our Pakistan now a days is threaten by verious dangers….”divide punjab” issue …. instead of UNITY all Pakistan …….
it will not be wise political decission …..
we have to think about:Pakistan’s
UNITY not DIVISION !!! for God sake !!!!”
– “NO!”
– “never”
– “No”
– “no way”
– “kabhi nahe”
– “good idea.. JST LIKE ALL THE MUSLIMS R DIVIDED…. THEN LL B DIVIDED FURTHER.. HELLL NOOOOOOOOOOOOOOOO”
– “DeSe fInKx wIlL LeAd 2 Da pRoBx lYk dIvIsIoN oV PaK!”
– “Big things are difficult to handle than smaller things.
Look people, division should not mean some kind of destruction.
Simply saying: if a bigger area cannot be handled by a single government, then the area can be divided among two governments so that both can handle smaller area in better way.
However, I’m also against such division, because in the past and present, what other provincial governments are doing is bad and so making another provincial government would be an edition to corruption”
– “I THINK YES IT IS RIGHT PAKISTAN NEED IT”
– “anti pak elements need it actually.”
– “very fazool idea, who tell that ! ? :P”
– “Not a good idea. A country that has already seen enough hatred and violence based on ethnicity, provincial lines does not need this. What exactly do you think this will accomplish? For history see how giving local power to MQM in Karachi helped Pakistan. Enough said.”
– “no never”
– “yes it must be”
– “never!!!!!!!!!!!!!”
– “we all r already divided into 4 nations nd we r fitin lyk animal nd u wanna further divide it bad idea!!!”
– “no problum if more proviences build . its just good for governes”
– “no this will lead to more ppl deviding sindh NWFP n baluchistan …
this will lead to horrible resultss …
i m scared even to think abt that …”
– “INSHALLAH never…”
– “No none never!!!!!! Punjab was divided already in 1947 no more plz. I don’t want another migration. If you 11 million people VS 81 million and make province for them then What about Urdu Speaking in Karachi.
This is conspiracy is done by MQM to make a base for demand Karachi province and i even don’t want this as well.”
– “My home town is Bhawalpur and i have never experienced and any ethnic problem b/w Punjabi and Seraiki people.
As far as Dera Ghazi khan is concerned. it is not no unusual that baloch are living there same case with Sindh near Sindh-Balochistan border. if you want to go to history then Northern Balochistan was the part of Afghanistan.
As far as History concern Bhawalpur state was evolve from breaking of Durrani empire. Sindh ruled and captured multan and Bhawalpur regeion in history. Capturing territories doesn’t mean that it become the part of Sindh.
If some people have says India have divided Punjab and consequences after 1966 till 1996 were in form insurgencies and ethnic riots.
Do you think that we can bear this by disturbing a province who have 55% population?”
– “yesh saraiki province wil bring more unity and streath to pakistan.as not only saraiki people want their province but in this way other provinces wil b stop blaming on punjab.
lahore is faraway from rahim yar khan 10 hours drive so people want their ease and own rule within the boundries of pakistan.As we love pakistan”
– “@Kashif i am from Bhawalpur, South punjab. If you think it is a demand then why seriaki nationalist parties won’t able win a single seat from National and provincial assembly. this is a lame reason What about someone living in Gawadar and want to go Quetta can you tell me how many hour he need to go there? As we love Pakistan too!!!!”
– “Noo !!!!… why is it that we always think as punjabis,sindhis,balochis and pathans ???… why cant we think as PAKISTANIS !!!!! … that is what these bloody politicians want,divide the nation and ruin the country…fill up their bank accounts and then run away !!!… rascals… none of them is loyal to the nation or pakistan !!!… people need to WAKE UP !!”
– “I think Yes…..It would not help politician It will help Pakistan and people of Pakistan …All depnd on Intention….May Allah keep Pakistan strong and united…..”
– “No… It’s the worst idea of its kind in this regime.. We are already much divided.. it can only promote more hatred in countrymen.. nothing else can be gained…”
I understand that carving out new provinces on the lines of languages races nationalities historical backgrounds or administrative constraints is not a bad idea.India has successfully followed the course.But our trackrecord of other good ideals like Federalism,Parliamentary Form of Govt,Democracy,Islam,Socialism etc reflects how we would handle this issu,if situation arises.We could not accept Bengali as a national language in 1947 for majority tough in Canada French was accepted as such in 1867 for minority.Civil Rights,Liberty,Equality are only myths.Responsible Govt is still a dream.Illlitracy,yellow journalism,level of politicl paries and leadership make things worse.In fact power has not so for been transferred to the people of Pakistan.In a situation when patients[people]are ignorant,doctors[politicians] are inept and dishonest, what would happen with patients during surgery having no regard to any of medecine[above mentioned ideals] being employed.In nutshel iapprove the idea but my skepticism is obvious.
Well this debate is very important and above all needs lots of vision from the leadership. I agree it is not the right timing but since this topic is being discused I wil present my thoughts on it.
Why we need more provinces? Is it beacuse of rights issues,lack of services,lack of admistrative control or beacuse there is a perception/reality that BIG Brother ( Punjab) is exploiting smaller provinces? If it is the former reason alone then another important issue is that making more provinces is the solution to this problem or it will just cause more complications? On what basis more provinces should be formed? Area,population,language or something else?
Let me present my views briefly.
1)Why people want more provinces: Bcz of both lack of services and a perception that punjab is exploiting them.
2)Will it solve the above problems: It will help changing the perception about Punjab’s domination as its clout will diminish but I do not think it will help with delivery of essential services. In fact look at Balochistan…. they have a province but still no provision of civil services and they want autonomy. So even if you have your own province it does not guarantee anything.
3)On what basis new provinces should be created: i think population and area alongwith poverty/resources ratio should be the basis of creating new administrative units and obviously parliament should be doing it. I personally think that present districts provide a good basis for this and we need to improve on our local govt system ( direct election for Zilla Nazim and tehsil nazims with full autonomy and under a regular audit system supervised by federal govt.)
4) The Real Problem: Lack of effective governance and instutuional approach to the issues. Until we improve this no matter how many provinces we create it will not solve th eissue rather we will end up in more chaos……