Pakistan Could Be Divided Into 16, 25 or More Administrative Units, WEF Analysis Suggests

ISLAMABAD: Proposals to increase the number of provinces or create new administrative units in Pakistan are gaining attention amid the country’s growing population and governance challenges, according to an analysis published by the World Economic Forum (WEF) on October 9, 2026.

The analysis examines several possible administrative models for Pakistan, including 16 units, 23 to 25 units, and more than 30 units based on existing civil divisions.

According to the WEF analysis, Pakistan’s population has grown more than sevenfold since 1951, while the country continues to operate under a four-province administrative structure. This can make it difficult for residents in some areas to access provincial capitals and obtain government services.

The analysis argues that the objective of creating additional provinces or administrative units should not simply be to increase their number, but to bring decision-making closer to citizens, improve public services and strengthen financial and political accountability.

What would a 16-unit model look like?

One proposal examined in the analysis would divide each of Pakistan’s four existing provinces into four administrative units, creating 16 units nationwide.

Under this model, each unit would have an average population of approximately 15 million, compared with an average of around 60 million for each of the country’s existing provinces.

Another option would create 23 to 25 administrative units, taking population balance and geographical considerations into account. A further proposal would use existing civil divisions as a basis for establishing more than 30 units.

These are alternative administrative models discussed in the analysis, not a final government decision to establish new provinces.

How could smaller administrative units help?

The analysis suggests that smaller administrative units could bring government decision-making, budget allocation and political authority closer to local communities.

Such a structure could help authorities plan education, healthcare, infrastructure and other public services according to local needs.

Pakistan’s provinces also differ significantly in population and geography, creating distinct administrative challenges. Punjab has a population of approximately 128 million, while Balochistan has fewer than 15 million residents spread across a much larger geographical area.

These differences mean that the provinces face varying demands in public service delivery, infrastructure development and resource allocation.

Education challenges highlight governance gaps

The analysis also highlights Pakistan’s education challenges, noting that approximately 28% of children aged five to 16 are out of school.

The situation varies across provinces, reflecting differences in access to educational facilities and the delivery of public services.

However, changing administrative boundaries alone would not resolve these problems. The analysis emphasises that fairer resource distribution and improvements in the performance of public institutions would also be necessary.

Funding and authority would be crucial

According to the WEF analysis, new administrative units would need reliable financial resources, taxation powers, administrative capacity and clearly defined responsibilities to function effectively.

Without adequate funding and capable institutions, creating additional units could increase government expenditure without guaranteeing better public services.

A larger number of administrative units would also require effective systems for transferring funds, building institutional capacity and monitoring performance.

The central argument of the analysis is that Pakistan’s debate over administrative restructuring should go beyond the number of provinces. It should also focus on how government can improve public services, mobilise resources and ensure accountability to citizens.