The debate over creation of new administrative units or provinces is gaining momentum, and it is encouraging that the issue is increasingly being discussed beyond confines of political parties and government offices. A national dialogue held in Lahore, attended by representatives of different segments of society, provided an opportunity to deliberate on a question that has important implications for country’s future governance.
Addressing the forum, Interior Minister Mohsin Naqvi made it clear that any restructuring of administrative system will be undertaken within the Constitution and law through political consensus and most importantly in accordance with the will of people. His emphasis on public aspirations is particularly significant. It suggests that, rather than allowing the question of new provinces to become a matter of political bargaining, the people themselves could ultimately be given a direct say. The Constitution provides a mechanism for doing so. Article 48(6) states that if the prime minister considers it necessary to hold a referendum on a matter of national importance, he may refer the matter to a joint sitting of Parliament. If approved by joint sitting, matter may then be referred to the people in the form of a question that can be answered by either “Yes” or “No”. The creation of new provinces or major administrative units can certainly be considered a matter of national importance. Taking such a fundamental question directly to the people, therefore, would be a legitimate and potentially constructive way forward provided the constitutional requirements are fully observed. A referendum, however, should not be viewed as a substitute for political dialogue. Rather, it should be culmination of a serious national conversation in which the people are properly informed about administrative, economic, political and constitutional implications of any proposed change. That conversation needs to continue and broaden.
All political parties, including those currently opposed to the idea, should be brought into the process. Pakistan People’s Party (PPP), in particular, has expressed opposition to creation of new provinces in Sindh. There may well be backchannel discussions under way to address these differences, but given the importance of the issue, the PPP and other stakeholders must be taken along through an open and meaningful process. At the same time, political parties need to rise above narrow electoral and political interests. The question should not be whether a new province benefits one party or strengthens another. The real question is whether a reorganisation of administrative structure can improve governance, bring government closer to citizens, reduce administrative inefficiencies and ensure a more equitable distribution of resources and political representation. If existing administrative structure is no longer delivering the desired results, it is reasonable to examine whether structural changes are required, yet government should treat present debate as beginning of a national dialogue, not the final stage of a political decision. The interior minister himself called for a dialogue that considers positive and negative aspects of new units.
Parliament, political parties, constitutional experts, academics, civil society, business groups and ordinary citizens should all have an opportunity to participate in such a discourse. Public awareness is essential because people cannot make an informed choice about a new province or administrative unit without understanding what it would mean for their lives. If, after a thorough national debate, there is broad political agreement and constitutional process is followed, asking the people directly would be the right democratic step. The primary objective should be to build a system that works better for Pakistan and its people.
