The Limitations of Non-consociational Federalism: The Example of Pakistan

Pakistan is a federation with a chequered democratic history, but this should not prevent us from analysing the ways in which its federal form has influenced identity formation and articulation. The form of Pakistan's federation has changed radically and Pakistan has experienced several severe ethno-linguistic conflicts. Interestingly however, the community most often associated with nationalist demands, Pashtuns in North-West Frontier Province (NWFP), have been remarkably quiescent. Pashtuns in NWFP possess a strong sense of identity, but they have not seen this as incompatible with their membership of Pakistan. One reason for this is their co-option in the core institutions of state. Can this be replicated elsewhere in Pakistan? This paper will contend that it is the absence of consociational mechanisms that has caused much of the conflict in Pakistan even in the absence of democracy.