Pakistan’s debate over new provinces is back, with a familiar argument: our provinces are simply too large to govern effectively. Supporters believe smaller provinces would bring government closer to the people, improve representation, and give neglected regions a stronger political voice. Opponents fear that new provinces could deepen ethnic and political divisions without fixing the problems that prompted the demand. Both concerns are legitimate. But perhaps we are asking the wrong question. The issue is not simply how many provinces Pakistan should have. It is how close government is to the people and how much power people actually have over the government that affects their daily lives.

Pakistan has already taken an important step towards decentralisation. The 18th Amendment shifted substantial powers from Islamabad to the provinces, while the 7th National Finance Commission Award increased their share of federally collected revenues. But power moved from Islamabad to provincial capitals and often stopped there. It did not consistently move from provincial capitals to cities, districts, and neighbourhoods. That is one of the great unfinished tasks of Pakistan’s federal system.

Provinces understandably fought for autonomy from the federation. But they have often been far less willing to give comparable authority to elected local governments. Article 140A requires provinces to establish local governments and devolve political, administrative, and financial authority to elected representatives. Yet, in much of Pakistan, local governments remain weak, short-lived, and dependent on provincial governments for money and authority. This matters because citizens do not experience the state through constitutional amendments. They experience it when the water does not arrive, the road is broken, the hospital has no medicines, the garbage is not collected, or a police complaint goes nowhere. For them, the........

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