There is a crisis of national integration in Pakistan since its creation.

What measures do you suggest for promotion of national integration?

(CSS 2018)

Introduction

National integration is the pursuit for harmony within the State. Irrespective of religion,
race, creed, ethnic background and language, national integration binds every segment of
society for a unified cause of serving and development of a nation state. Since its creation,
Pakistan is facing an extremely challenging environment demanding enormous struggle for
consolidation and survival. The task of nation building remained relegated and later on,
driven by evolving circumstances, proved to be a very difficult process. Early deaths of the
central leadership, financial and administrative difficulties in the 1950s, political instability
and crises pulling the military in power, Indian aggressions of 1948 and 1965 and finally
the dismemberment of the country in 1971 and on the internal front, sub-nationalist
tendencies sponsored by foreign powers, socio-economic disparities, and rising trends of
terrorism extremism are also additional deviators affecting the national integration in
Pakistan. To mitigate the issue, it is pertinent to adopt a holistic approach by moving
towards political stability to overcoming the governance issues.

a. National Integration

National Integration is the determination of the people aimed at living together sharing
traditions, ideals, culture, history, religion, language and customs etc. National integration
can, therefore, be summarized as a sea containing rivers of diverse cultures and
backgrounds blended together for a supreme cause of national harmony, unity and pride.

Factors Affecting National Integration in Pakistan since its Creation

Here is a brief analysis on the problems that have plagued Pakistan with the crisis of
national integration.

1. Overdeveloped state structure and crisis of Democracy

This means the structural roots of dominance of non-political forces in the state system.
The perpetuation of this overdeveloped state structure obstructed the civilian supremacy.
It has been the main culprit in the case of East Pakistan’s separation and yet it is prevailing.
Democracy is not only a system but it inculcates traditions such as decision-making
through consensus, public opinion, public accountability through electoral exercises, a
tolerant culture and a spirit of sacrifice for national interests. The absence of democracy
leads to a negative growth of political culture which means people become indifferent
when the political system is confronted with a systemic crisis. So, in a multi-ethnic state
like Pakistan, there is no other feasible alternative to involve the stakes of smaller
provinces in the federation.

2. Absence of provincial autonomy and highly-centralized fiscal authority

All of Pakistan’s constitutions have failed to provide and guarantee a substantial degree of
provincial autonomy, which was at last installed after the 18 th amendment. The previous 2
constitutions failed miserably to address this problem. For instance, there was a
conspicuous absence of a bicameral legislature in the Constitution of 1956 – though it was
touted as parliamentary in nature. For a long time, fiscal authority was mostly in the hands
of central government and this factor generates high degree of imbalance between the
federation and the provinces. This vertical fiscal imbalance was so pronounced that in
order to perform their duties and functions, the provinces depend upon the transfer of
resources from federal government or foreign assistance.

3. Diverse structures of the federating units

Shahid Javed Burki opines that Pakistan’s problem of federalism stems from the arbitral
way in which we tried to resolve it by ignoring the diversified structures of governance of
our federating units. For instance, Punjab was one of the six provinces of undivided India
till 1901, NWFP (now Khyber Pakhtunkhwa) became province in 1901 but it was accorded
provincial status in the real sense in 1937. Sindh was separated from Bombay in 1935.
Balochistan province was formed in 1970. Punjab was more settled, educated and
developed, and political institutions were already present there. On the other hand, Khyber
Pakhtunkhwa was divided in the settled areas and tribal belt. Sindh was part of Bombay till
1935; Balochistan was under Governor-General’s (and later President’s) rule till 1970.
Therefore, there existed great diversity in the structures of governance of these provinces
and growth of political culture. These conditions affected the psyche of the people as well
as of political socialization and degrees of integration into federation. Unfortunately, our
policymakers ignored all these issues and tried to tackle this crisis through myopic
approach.

4. Language Riots

After promulgation of Urdu as a national language of then united Pakistan, East Pakistanis
strongly protested demanding Bengali as an official language for East Pakistan. This
eventually became a political movement in 1952; however, its subsequent handling led to
violent conflicts with security forces and ultimately triggered sequential events, which
resulted in the dismemberment of Pakistan in 1971.

5. Regional and Ideological Identities

Growing inclination towards regional identities instead of united Pakistan was another
challenge. Pushtonistan in erstwhile Frontier Province, Sindhu Desh in Sindh Province and
several sub-nationalist groups were operating in Balochistan. All such elements were
supported by India, Afghanistan and other international agencies with the aim of keeping
Pakistan in perpetual state of destabilization.

One of the most pressing issues, this nation has faced is in the form of an identity crisis.
Unfortunately, the historical precedence empirically proves that Islamic ideology as
founding father’s vision, socialism during era of 1970s, Islamization during 1980s and
moderate Islam during years 1999 onwards have kept us debating on the very
fundamentals of our identity. As per Stephen P Cohen,

“The most significant struggle in Pakistan is not a civilizational clash between Muslims and
non-Muslims but a clatter between diverse conceptions and interpretations of Islam,
predominantly how Pakistan should implement Islamic identity in State’s outlook”.

6. Governance and Economic Development

Weak governance in Pakistan is reflected in precarious law and order situation, social
deficit, lack of equal opportunities for progress, development and disillusionment among
the people. Moreover, the disproportionate growth in population vis-à -vis national
resources has unfavorable effects for economic development and gives rise to a number of
social ills. The following chart shows the disparity among some nations of the World.

Source: World Bank - Worldwide Governance Indicators

 7. International Dimensions

India has consistently sought to fan separatist tendencies and overt support to secessionist
elements in Pakistan. The capture of Kalbhushan Yadev from Balochistan and asylum
request by Baramdagh Bugti and Harbiyar Murri for stay in India is testimony to Indian
involvement in fueling sub nationalist propensities in Pakistan. The ongoing sectarian
fissures in Islamic World are also casting negative aberrations affecting Pakistan’s religious
harmony.

Measures for promotion of National Integration

Short Term Measures

1. National Identity and Nationalism

There is no denying that Pakistan was created on the basis of Islam and Pakistani
constitution respects religious freedom for all communities living here. The debate of form
of Islam appropriate for the country should be discouraged and more focus should be given
to development and socioeconomic prosperity instead of embroiling into endless
discussions. The relevant departments need to evolve a religious narrative against the
sectarian and extremist interpretations.

2. Religious Harmony

Religious scholars should present Islam in true spirit and discourage sectarian sentiments.
The relevant departments need to evolve a religious narrative against the sectarian and
extremist interpretations. It is also recommended that extensive media programs should be
organized, where religious scholars from across all sects and backgrounds should educate
on religious harmony, tolerance and instill integration rather than division on religious
lines.

3. Political Stability

Democracy is the best from of governance and best type of the government for Pakistan.
Political stability must continue at all costs. While the distribution of resources and the
share in federal governance is presently tilted in favour of Punjab due to obvious reason of
60 % of population, however, the likely political impact has to be evaluated correctly by
keeping the interests of smaller provinces at par. Though 18th Amendment has taken care
of this issue to a greater satisfaction, yet it requires magnanimity and pragmatism on part
of Punjab for the sake of national cohesion to sacrifice for under developed federating
units. Extraordinary focus on Balochistan and Tribal Areas is required for poverty
alleviation and removing past injustices to the people by granting special developmental
packages. The most important aspect here is political reconciliation through two pronged
approach i.e., dialogue and development. Substantial special development programs are to
be started (despite NFC award, CPEC and Aghaz-e-Haqooq Balochistan) to uplift people’s
standards. Quota of Balochistan in Civil Service ensures a sense of participation in decision
making but it has also proved to be a problem as the number of officers needed in
Balochistan is not available on the basis of quota. Lateral entry on merit may be allowed to
fill vacancies by the local residents.

4. Governance Issues

The Government working should include results oriented, incentivization of behaviour,

development of guidelines for performance, ongoing accountability of all departments,
devolved and decentralize powers, capacity building and changing the culture of
bureaucracy. Further emphasis should be on delivery of basic services, provision of justice,
and increasing efficiency. Many Reform Commissions reports on good governance are
available; however, the overarching issues of political will and capacity to implement
reforms need to be addressed. It is also felt that the judicial system especially the lower
judiciary should be revamped as provision of justice is fundamental pillar of national
integration. Relegated and deprived segments of society should be given especial
incentives for their eventual mainstreaming aimed at enhancing national integration of
state. Social action programs for women empowerment, population control, health etc. are
need of the hour. Problems of rising unemployment need to be tackled prudently and at
priority.

5. Economic Development

Economic development eventually creates all sorts of prosperity for the nation. The
consistent rise in GDP growth rate not only boosts trade etc, but also creates job markets,
which ultimately absorb every segment of society through respectable employment
opportunities. Mega projects like CPEC should instead enhance national integration
provided they are managed through pragmatic way. Secondly, the present taxation system
needs complete overhauling. It has to be just, progressive, transparent and simple. And
lastly, the tax to GDP ratio has to be increased by all international standards by
implementation of friendly policies instead of regressive regime.

6. Reviving the Role of Media

Media should play more enhanced and effective role in cultural amalgamation. A strong
counter sectarian and terrorism narratives have to be broadcasted. It may promote
communal peace; counter the foreign media influence and promote the real soft image of
Pakistan. Media code of conduct is in the right direction, but we should move towards legal
framework to make it more accountable.

7. Balance between the Cultural and National Allegiance

Developing societies don’t discriminate between political and cultural commitments but it
has been seen that cultural loyalties mostly overcome political loyalties. There is
domination of particular segment in our system where the cultural and traditional loyalties
are given more preference than national loyalties. For national integration it is important
to merge all segments with national loyalties

Long Term Measures

8. National Integration Model (Federalism, Unity with Diversity)

Pakistan must look forward to the implementation of Federalism model in true sense
because this is the model system which appreciates diversity within the federal structure of
state and the federating units. The governments of federating units and the central
government are acknowledged as legitimate and supreme establishments within respective
jurisdictions.

Conclusion

There are some serious challenges like sectarianism and governance issues. We need to
give immediate attention to our education system and madrassa reforms. Balochistan is
another weak area and needs dialogue and development to bring it back completely in the
mainstream. However, despite many challenges, the centrifugal forces are weakening. We
have taken a number of steps for provincial autonomy and economic development. We
don’t hear slogans of ‘Sindhu Desh’ and ‘Pashtunistan’ any more. We are moving in the right
direction and hopeful for a better Pakistan. National Integration is not a one-time exercise,
rather it is a continuous slow process and achieved over a long period of time. Dedicated
efforts towards prosperity, sense of pride, harmony and national integration is the need of
time, which must be pursued vigorously as a supreme national cause.