Beyond New Provinces: Rethinking the Distance Between the State and the Citizen

The discussion on new provinces in Pakistan ought to be understood not only as an attempt to change the country’s map but also as an attempt to design a new governance system in Pakistan. The discussion is usually presented as a choice between maintaining the existing provincial boundaries and creating smaller administrative units. Yet a closer examination suggests that the core issue is not simply the size of provinces, but the physical, institutional and administrative distance between the citizen and the state.

Since independence, Pakistan’s population has grown nearly eightfold, while its basic administrative architecture has remained largely intact. Larger provinces—Punjab in particular, but also Sindh, Khyber Pakhtunkhwa and Balochistan—manage vast populations and diverse geographic regions through centralized provincial capitals. In many cases, citizens must travel long distances to access administrative services, seek legal remedies or engage with government officials.

The Centralization Dilemma

Proponents of new provinces argue that smaller units would reduce this distance, improve service delivery and make government more responsive. By bringing provincial capitals closer to peripheral districts, administrative decision-making could become more attuned to local needs. Regions that feel politically or economically marginalized might also find greater voice within smaller provincial assemblies.

However, creating new provinces is neither a simple nor a guaranteed remedy for governance challenges. Establishing new provincial administrations involves significant financial costs, including the creation of new assemblies, secretariats, judicial structures and administrative departments. Without careful planning and sustainable revenue arrangements, newly created provinces could struggle with fiscal viability and depend heavily on federal transfers.

Strengthening Local Governance

Furthermore, smaller provinces alone do not automatically guarantee better governance. If power remains concentrated in new provincial capitals rather than devolving to local governments, the distance between the state and the citizen may change in location rather than in substance. True administrative proximity requires functioning municipal and district-level institutions capable of managing local affairs independently.

A comprehensive approach to administrative reform in Pakistan would therefore look beyond the provincial question alone. It would combine the debate on provincial boundaries with a serious effort to empower local governments. Whether through smaller provinces, stronger local authorities or a combination of both, the primary objective must be to create a governance structure that is accessible, accountable and capable of meeting the needs of a rapidly growing population.