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THEME
National integration encapsulates political, social, cultural and economic

integration. Ever since its creation, Pakistan has been beset with the problem of

national integration and competing regional demands within the context of nation state.

The relations between centre and the provinces have historically never been exemplary.

During last 75 years, constitutional and political upheavals have increased

misunderstanding among the provinces and an atmosphere of mistrust exists with the

centre. Various national political parties and leaders have been highlighting wide spread

dissatisfaction with the affairs of the state institutions, regional disparities, economic

exploitation, centralization of authority and finances in the country. Successive regimes,

because of vested agendas have never succeeded in achieving complete national

integration. Consequently, the threat to national integration from within remains not only

alive but has enhanced manifolds.

Carryout an in-depth analysis to the factors detrimental to our national integration

and suggest dynamic and viable measures to strengthen the federation and enhance
national integration.

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ABSTRACT
Pakistan since its creation has been facing serious obstructions in establishing a

genuine federal political setup as envisaged by the founding father of the country.

According to the Objectives Resolution as incorporated in the preamble of 1973

Constitution, “Pakistan shall form a federation wherein the units will be autonomous

with such boundaries and limitation on their powers and authority as may be

prescribed”. During the last 75 years constitutional and political upheavals have

weakened the federation and increased the inter- provincial discontent. Various

national political parties and leaders have been highlighting wide spread

dissatisfaction with the affairs of the state institutions, regional disparities, economic

exploitations, centralization of authority and finances in the country. The tragedy of

1971 was the pinnacle of failure of federal principles propagated by the government of

the time.

The paper has been completed in four parts. The part 1 deals with the

historical perspective of creation of Pakistan. Constitutional matters which are

affecting national integration are given in parts 2 of the paper. Part 3 of the paper also

dwells upon the matters other than constitution and their implication on Pakistan’s

integrity. Part 4 recommends certain measures to improve inter provincial harmony.

Some of the important recommendations are implementation of constitution, removal

of mistrust among the provinces and centre, true implementation of NFC awards and

resolving the water disputes.

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Introduction
1. The nation is referred to an entity that has cultural
and social foundations instead of legalistic insinuations 1. National Integration is
the fortitude of the people who intend to live collectively while sharing traditions,
ideals, culture, history, religion, language and customs2. It is a process of
achieving national cohesion, stability, prosperity, strength and feelings of being
united as a nation3.
2. Pakistan since its creation has been facing serious obstruction in
establishing a genuine federal setup as envisaged by the Muslim League
leadership in the beginning of the 20th Century. The creation of Pakistan was an
explicit proof of the indomitable will of the Muslims of the subcontinent. The
country was created in the name of Islam and was envisaged to be an ideological
state where constitution, democracy and rule of law shall reign supreme 4.
Looking back at the dream like euphoria of nationalism, which accompanied
millions of people during summer of 1947 to their new homeland, one wonders
as to what happened to that dream. Pakistan was meant to mark beginning of the
fulfilment of the dream which had enthralled a whole generation of Muslims living
in the Indian Subcontinent.
3. The past 75 years have seen Pakistan's social and cultural fragmentation,
schisms and provincial cleavages on one hand and social disparities on the
other. It saw the emergence of ethnic and regional forces which gave rise to a
culture of hatred and intolerance5. Pakistan has been smacked by the imbalance
1
Paddison Ronan. The Fragmented State the Political Geography of Power. (Oxford:
Blackwell, 1983): 215.
2
Liddle R. William. Ethnicity, Party and National Integration (New Haven and London:
Yale University Press, 1970).

3
Mirza Muhammad Saleem, “National Integration”, published in ‘Advance Contemporary Affairs’ by
Imtiaz Shahid, Book. 58, 6thIssue (2008), p424.

4
Hussain, I. (2009). The dilemma of national integration in Pakistan: Challenges and
prospects. ISSRA Papers, 43-60.

5
Qadeer, M. (2006). Pakistan-social and cultural transformations in a Muslim Nation. Routledge.
 2

in economic, political and socio-cultural fields. Sadly so, “Pakistan has come to
be known as a nation of constant crises, abiding transition and perennial
militarism”. Provincial discontent is one of those problems which has
continuously damaged Pakistan and has hampered its progress in many fields.
Dismemberment of the country in 1971 was due to nothing else but the same
cancer, which even today persists in our society. The divisive forces seemed to
have been activated, creating hindrances in our much desired and already
delayed national progress.
4. It is, therefore, incumbent on us to reach to the consensus to solve the
problem of discontent. Concrete measures are required to grant all constitutional
rights to the federating units, and enable them to be architects of their future and
involve themselves in the national development process. At the same time, it is of
paramount importance to accede constitutional powers to the provinces and their
further devolution to the gross-root level.
Aim
5. To carryout an in-depth analysis of the factors detrimental to our national
integration and suggest dynamic and viable measures to strengthen the
federation and enhance national integration.
Sequence
6. The subject will be dealt in the sequence as shown below:-
a. Part 1. Historical perspective.
b. Part 2. Constitutional Perspective.
c. Part 3. Divisive Issues and Implications for Pakistan.
d. Part 4. Recommendations.
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PART I
HISTORICAL PERSPECTIVE
Spirit of creation
7. If the creative spirit of Pakistan has to be summarized in few words, then
these words can be “Two Nation Theory”. The undaunted obsession of Muslims
of sub continent to get a separate motherland where they could live as per the
principles of Islam and their own wishes. Initially Quaid-i-Azam was not in the
favour of a totally independent Muslim state but he wanted withdrawal of British
and equal rights for all communities living in India. However, the attitude of
Congress which was a predominantly Hindu party made it amply clear to Quaid-i-
Azam that the rights of Muslim community can only be protected and ensured in
an independent Muslim country. Thus, the desire for Pakistan became a passion
of every Muslim.
Factors of National integration at the Time of Independence
8. The Spirit of Islam. The single most factor responsible for integrating
such a diverse nation, having multi-lingual and ethnic identities as one entity was
the true spirit of Islam. Today it can be argued by many, with even references
from Quaid’s speeches that the spirit of Islam had been mobilized for creation of
Pakistan only because the founding father had envisioned a moderate, social
democratic republic.
9. Spirit of Independence. The first generation of the Pakistan was the
one who had struggled for making Pakistan a reality. In this struggle they had
offered innumerable sacrifices. Such was the joy and spirit of the independence
that this country was every thing for them. This unparalleled spirit of
independence was also responsible for national integration during early years of
this country.
10. Hope for Prosperous Future. The long exploitation of Muslim
community of India in the hands of British and Hindu made them believe that they
can enjoy equal economic opportunities only in a separate homeland. So, beside
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PART II
CONSTITUTIONAL PERSPECTIVE OF PROVINCIAL AUTONOMY
Federalism
11. Concept of Federalism. Federalism provides an organizational
mechanism to achieve a degree of political unity within a population whose
characteristics demonstrate diversity and variety. Under this system, separate
regional political units are combined in such a way that the government of each
separate regional unit maintains its integrity and substantial autonomy.
Federalism is a combination of Self Rule and Shared Rule. Federalism has
been adopted by many nations as a way to balance the interests of different
ethnic and linguistic groups.
12. Conditions of Federalism. Federalism is the recognition of a need
to balance the centrifugal force of diversity with the centripetal pulls of unity in a
plural society. Federal state can not be created without two conditions: -
a. There must be a sense of unity among the peoples of the units
desiring federation.
b. People though desiring union, do not desire unity.
13. Principles of Federalism. The universally recognized principles of
federalism are as under: -
a. Political autonomy in consonance with the national objectives and
integrity.
b. Administrative and financial autonomy to federating units.
c. A system of conflict resolution and consensus building on national
issues.
d. Involvement of federating units in the national decision-making
process.
14. Fiscal Relations in Federal System. Fiscal relations are of great
concern in federal systems, especially on matters such as how income is raised
through taxation and revenues and by whom and how such resources are shared
and distributed.
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PART III
DIVISIVE ISSUES
15. Centre - Provinces Relations. Historically the relations between the
centre and provinces have remained far from cordial. There has been a
continuous tussle during the period when different parties ruled in the centre and
provinces. Consequently, all energies, resources and strategies are being
directed towards each other's removal with scant regard to the verdict of the
electorate. This bipolar conflict is detrimental to the progress and economy of the
country, as well as a source of divisiveness. Main causes of the weak relations
are as under: -
a. Political Intolerance. Lack of tolerance, which is the essence
of democracy. Irrespective of the government policies, the
opposition confronts the ruling party for the sake of assuming
power.
b. Implementation of Constitution. Centre remains reluctant
in granting the quantum of autonomy guaranteed in the constitution
to the provinces.
c. Weak Democratic Institutions. The prolonged suspension of
political process has weakened democratic institutions in the
country.
d. Subdued Judiciary. Abuse of judiciary by the Centre as well
as provinces. Every province interprets the constitution in its own
way and the role of independent judiciary in giving decisions on
contentious matters has been missing.
e. Centralizing Development Projects. Central governments have
been initiating and supervising Works Programmes through federal
budget in the provinces, thus circumventing the provincial
governments.
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PART IV
RECOMMENDATIONS
16. Confidence Building. The most important issue to be handled before
trying anything else is the issue of mistrust between the provinces. It appears
that any move made by centre or any province is seen with suspicion. Therefore,
the first priority of the federal and the provincial governments should be to
minimize or, if possible, totally remove this mistrust. For this; provinces must
carryout confidence building measures like giving own share of water to each
other etcetera. In addition to this frequent exchange of delegations comprising
opinion makers, intellectuals and politicians should take place.
17. Revival of Ideological Orientation. Desire of separate, Islamic and
sovereign state united the Muslims of united India. Over the period, this spirit is
dampened. This should be reinvigorated through education system, media and
involvement of masses in the state affairs.
18. Implementation of the 1973 Constitution. The 1973 constitution
reflected a broad national consensus but it has almost never been fully
implemented. Soon after its enactment, its fundamental rights portion was
suspended under a state of emergency. The provincial autonomy sections of the
constitution have hardly been implemented. The military regimes have held the
constitution in abeyance, and restored it only with major amendments. Reversion
to the original constitution, with the willingness of all concerned (including the
military and the elected executive) to submit themselves to the constitution can
change the nature of Pakistan’s politics, which at present is a power play without
any rules.
19. Revision of Legislative Lists. For establishment of true federal
system, division of powers between various tiers of government is important. The
present division of powers between centre and provinces is not in accordance
with norms of true federal structure. It is time that more administrative, financial
and legislative autonomy is provided to the provinces. Only those subjects should
be retained at centre, which are essential to maintain national integration. In
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17.