Pakistan army chief eyes division of provinces

Pakistan’s army chief, Field Marshal Asim Munir, is reportedly pushing to divide the country’s four provinces into 12 to 15 smaller provinces, a move that could reshape the country’s political power structure and strengthen the military establishment’s influence over civilian affairs.

According to a report by 'The Economist', the proposal could also involve creating as many as 160 smaller administrative units. Munir has reportedly argued that Pakistan’s existing provinces are too large to govern effectively. However, the proposed restructuring has raised questions about whether administrative reform could also weaken established political power centres.

Pakistan’s four provinces — Punjab, Sindh, Khyber Pakhtunkhwa and Balochistan — have remained central to the country’s political and administrative structure since its creation in 1947. Dividing them would represent a major overhaul of the country’s federal system.

Why divide Pakistan’s provinces?

The argument for creating smaller provinces centres on population disparities and administrative challenges. Punjab, Pakistan’s most populous province, has around 128 million people, accounting for more than half of the country’s population. Balochistan, the largest province by area, has approximately 15 million residents.

Supporters of administrative restructuring argue that smaller provinces could bring government services closer to citizens, improve local administration and make public spending more responsive to regional needs. In rural Punjab, residents often have to travel long distances to access government services, while access to safe drinking water remains a major challenge, according to 'The Economist'. 
However, Pakistan’s governance and economic problems extend beyond the size of its provinces. The country continues to face weak economic growth, high inflation and heavy debt-servicing costs.

Political implications of the proposed division

The proposal has significant political implications because Pakistan’s provinces are not merely administrative units; they are also strongholds of influential political parties.

Punjab has traditionally been a major power base of the Pakistan Muslim League-Nawaz (PML-N), while Sindh remains the principal stronghold of the Pakistan Peoples Party (PPP). These provincial power centres have helped shape electoral competition and sometimes served as counterweights to the federal government.

Dividing the provinces could fragment their political influence and alter electoral calculations. Critics have warned that smaller provincial units could become more dependent on the federal government, potentially expanding the military establishment’s leverage over civilian politics. However, this remains an interpretation of the proposal’s possible consequences, rather than a confirmed statement of Munir’s motive.

Constitutional and political hurdles

Creating new provinces would require substantial constitutional and political consensus. Pakistan’s Constitution sets out a procedure for changing provincial boundaries, including approval by the affected provincial assembly with at least two-thirds of its total membership, alongside the required parliamentary approval.

The proposal would therefore face political obstacles, particularly if provincial leaders viewed the changes as a threat to their autonomy, electoral influence or control over resources. Sindh has historically been particularly sensitive to proposals to divide the province.

No final restructuring plan has been publicly confirmed. The reported proposal remains a subject of debate, and its eventual scope would depend on political negotiations, constitutional requirements and the form of any proposed administrative changes. 

Pakistan’s wider power struggle

The debate is unfolding against the backdrop of the military’s longstanding influence over Pakistan’s political system. The armed forces have directly ruled the country for more than two-fifths of its history, while elected governments have frequently operated under military pressure.

The reported restructuring plan raises a broader question about the distribution of power between Islamabad and the provinces. Smaller administrative units could improve service delivery if accompanied by adequate resources, elected representation and meaningful local autonomy. But if authority remains concentrated at the centre, the changes could weaken provincial political institutions without resolving the country’s underlying governance problems.