In a historic move that has sparked reflection and national discourse, the Government of Pakistan has posthumously conferred the Nishan-e-Pakistan, the country’s highest civilian award, upon Zulfikar Ali Bhutto — a leader whose imprint on Pakistan’s political, social, and strategic trajectory is both profound and enduring.
The question arises: Why does Bhutto deserve this prestigious honour? This article delves into the remarkable legacy that justifies this long-overdue tribute.
Rebuilding a Shattered Nation After 1971
When Bhutto took charge of Pakistan in December 1971, the country was in ruins – politically, militarily, and psychologically. The secession of East Pakistan (Bangladesh) after a brutal civil war had left the remaining Pakistan reeling. Bhutto, as the new president, faced the colossal task of picking up the pieces of a broken nation. In a heartfelt radio address, he acknowledged “the worst crisis in our country’s life” and vowed to “make a new Pakistan – a prosperous and progressive Pakistan, a Pakistan free of exploitation”. Backed by a popular mandate, Bhutto moved swiftly on multiple fronts to rehabilitate the country. Internationally, he scored a diplomatic victory through the Simla Agreement of 1972 with India. Bhutto’s deft negotiations persuaded Indian Prime Minister Indira Gandhi to release over 93,000 Pakistani prisoners of war and return some 5,000 square miles of Pakistani territory captured during the 1971 conflict. He achieved this without compromising on Pakistan’s stance over Kashmir or formally recognizing Bangladesh at the time – a remarkable feat that restored a measure of national honor. Domestically, Bhutto worked to restore morale and order. He rehabilitated the Pakistan Army’s image by appointing new military leadership and launching the Hamoodur Rahman Commission to probe the 1971 debacle. Through bold leadership and personal charisma, Bhutto managed to stabilize Pakistan during 1972-73, steering it from the brink of disintegration towards a path of national recovery. Those tumultuous years earned him acclaim as a leader who rescued Pakistan in its darkest hour, laying the groundwork for a more resilient state.
Architect of the 1973 Constitution
One of Bhutto’s crowning achievements was spearheading the drafting of Pakistan’s 1973 Constitution – a milestone in the country’s democratic development. Bhutto is widely regarded as the main architect of this consensus-based constitution, which was Pakistan’s first under a truly representative assembly. He supervised its promulgation in April 1973, transforming Pakistan from a presidential regime into a federal parliamentary democracy. The new constitution enshrined an “Islamic Republic” with a robust parliamentary system, separation of powers, and a codified bill of rights. Crucially, it gave previously marginalized groups a voice in governance, reflecting Bhutto’s politics “wedded to the emancipation of the downtrodden masses”. Under Bhutto’s guidance, the constitution introduced radical changes to empower ordinary citizens – for example, by reserving seats for minorities and institutionalizing social justice principles. It even included a clause requiring military officers to swear off political involvement, an attempt to guard against future coups. Bhutto’s hand in crafting the 1973 Constitution demonstrated his foresight in nation-building: he understood that a strong constitutional framework was essential for Pakistan’s unity and democratic continuity after the trauma of 1971. Today, despite numerous amendments, the 1973 Constitution remains the bedrock of Pakistani democracy – a living testament to Bhutto’s statesmanship.
Pioneering Pakistan’s Nuclear Programme
Perhaps no part of Bhutto’s legacy is as consequential as his role in launching Pakistan’s quest for the atomic bomb. He grasped early on that nuclear capability would be a strategic game-changer for Pakistan’s security, especially after India’s nuclear advances. As early as 1965, Bhutto presciently warned, “If India builds the bomb, we will eat grass or leaves, even go hungry, but we will get one of our own. We have no alternative”. Once in power, he moved decisively to turn that vision into reality. In January 1972, just weeks after taking office, President Bhutto convened Pakistan’s top scientists in Multan in a now-famous meeting that set the country on the path to developing nuclear weapons. Over the following years, Bhutto’s government provided secret funding and political cover to the nascent weapons programme – code named Project-706 – bringing in nuclear experts and initiating uranium enrichment efforts. At the same time, Bhutto pursued civilian nuclear technology to meet energy needs. His administration oversaw the commissioning of Pakistan’s first nuclear power plant, the Karachi Nuclear Power Plant (KANUPP), which went online on 28 November 1972. This achievement made Pakistan the first Muslim-majority country to operate a nuclear power station, a point of pride Bhutto often highlighted. Internationally, Bhutto defended Pakistan’s nuclear ambitions with characteristic candor. He famously dubbed the atomic bomb an “Islamic bomb,” framing it as a matter of Islamic world prestige and Pakistan’s survival. Despite facing pressure and even sanctions from Western powers, Bhutto remained unapologetic. "We will eat grass, even go hungry, but we will have our own [atom bomb]," he reiterated, galvanizing popular support for the program. Though Pakistan would test its nuclear device years after Bhutto’s era (in 1998), it was Zulfikar Ali Bhutto’s political will and strategic foresight in the 1970s that truly laid the foundation of Pakistan’s nuclear deterrent. The country’s emergence as a nuclear-armed nation stands as a monumental part of Bhutto’s legacy.
A Dynamic Foreign Policy and Global Stature
As a statesman, Bhutto deftly steered Pakistan’s foreign policy in a new, self-assured direction. Breaking from Pakistan’s earlier reliance on Western alliances, he championed an independent, non-aligned foreign policy. Under Bhutto’s leadership, Pakistan withdrew from U.S.-led military pacts CENTO and SEATO, signaling a move away from Cold War bloc politics. Instead, Bhutto pursued a broad range of global partnerships driven by Pakistan’s own interests. He cemented a lasting friendship with China at a time when Beijing was diplomatically isolated in the early 1970s. This included high-profile visits to China and robust military and economic cooperation, laying the groundwork for the “all-weather” Pakistan-China alliance that endures today. In the Muslim world, Bhutto emerged as a unifying figure. He was the chief architect of the landmark 1974 Islamic Summit in Lahore, which brought together over 30 heads of state from across the Muslim world – an unprecedented display of Muslim solidarity on Pakistani soil. Bhutto used his diplomatic skills to rally support for causes like Palestinian rights and to heal rifts among Muslim nations, dramatically raising Pakistan’s profile in the Organisation of Islamic Conference (OIC). By 1976, these efforts had elevated Bhutto to a position of preeminence in the developing world; he was seen as a leader of the Third World, advocating Afro-Asian unity and the Non-Aligned Movement’s principles. Despite his pivot towards the East and the Global South, Bhutto maintained pragmatic relations with the West. He cultivated a personal rapport with U.S. President Richard Nixon in the early 1970s, seeking aid and support in Pakistan’s post-war recovery. At the same time, he did not shy away from critiquing U.S. policies when they clashed with Pakistan’s interests – a balancing act that demonstrated Bhutto’s independent streak on the world stage. Whether in Washington, Beijing, or within the halls of the United Nations, Zulfikar Ali Bhutto’s eloquence and forceful advocacy made Pakistan’s voice heard. His tenure saw Pakistan reemerge from international isolation after 1971 to become an active, respected player in global diplomacy.
Champion of Democracy and Mass Mobilization
Zulfikar Ali Bhutto’s rise also heralded a new era of mass politics and democratic consciousness in Pakistan. He built the Pakistan Peoples Party into a vehicle of populist mobilization that shook the country’s elite-dominated status quo. In the late 1960s, Bhutto traversed the country with fiery speeches in Urdu and Sindhi, energizing students, peasants and industrial workers with promises of “Roti, Kapra aur Makaan” – the basic rights of every citizen. This catchy slogan of Islamic socialism gave ordinary people a political voice like never before. Starting from a core of urban intellectuals and leftist student activists, Bhutto’s PPP rapidly grew into a mass movement cutting across class and regional lines. Even traditional power-brokers – local feudal lords and clan leaders – flocked to his side as they sensed the tide of public opinion shifting. The result was an electoral landslide in West Pakistan’s 1970 election, and by 1971 Bhutto stood as the most popular politician in what remained of Pakistan. During his years in power (1971–1977), Bhutto cultivated democratic norms in a country long ruled by generals. He ended 13 years of military dictatorship and restored civilian rule, albeit under emergency conditions initially. Bhutto frequently traveled nationwide to directly engage with crowds, making the people feel connected to the policymaking process. He also encouraged the proliferation of political discourse – for instance, state media gave coverage to opposition viewpoints, and intellectuals were included in national debates. The overarching narrative of the Bhutto era is one of democratic awakening: the common Pakistani’s political awareness and participation reached unprecedented levels. The PPP dominated Pakistan’s politics through the 1970s, embedding a two-party tradition. Bhutto’s ability to mobilize the masses – earning him the moniker “Quaid-e-Awam” (Leader of the People) – transformed Pakistan’s political culture from one confined to elites to one that resonated in every village and town. His legacy in this realm is evident each time Pakistanis vote in a general election or rally around populist causes, echoing the participatory spirit that Bhutto ignited.
Transformative Domestic Reforms: Land, Labor and Industry
Upon assuming power in the early 1970s, Bhutto launched bold domestic reforms aimed at social justice and equity. He initiated sweeping land reforms, moving to break the centuries-old feudal structure. In 1972, his government capped individual land ownership at 150 acres of irrigated land (down from 500) and seized surplus holdings without compensation for redistribution to landless farmers. This effort sought to “destroy the feudal landowners” and empower tenant farmers, reflecting Bhutto’s populist commitment to the rural poor. Simultaneously, Bhutto pursued an ambitious economic nationalization agenda. Within days of taking office, he nationalized 30 major industrial enterprises in key sectors like steel, chemicals and cement. By 1974, all banks and insurance companies had been brought under state control as well. These socialist-oriented policies were designed to wrest economic dominance from a narrow elite – the infamous “22 families” – and extend opportunity to the masses. Alongside nationalization came extensive labour reforms that greatly expanded workers’ rights. Bhutto’s government set up labour courts for swift grievance redressal and ensured workers could not be arbitrarily dismissed. Trade unions flourished under his watch, and measures like worker participation in management and old-age benefit schemes improved the lot of labourers. Bhutto’s domestic reforms fundamentally altered Pakistan’s economic and social power structures in favour of working classes and peasants.
Architect of National Institutions
Zulfikar Ali Bhutto was not merely a politician; he was a nation-builder. As Prime Minister, he laid the structural foundation of numerous national institutions and departments that are pillars of governance and development today. Among these are:
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Pakistan Steel Mills, a landmark industrial project to make the country self-sufficient in steel production.
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Port Qasim Authority, to expand maritime trade infrastructure.
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Heavy Mechanical Complex (HMC) in Taxila to drive industrialization.
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Atomic Energy Commission's expansion, giving Pakistan a technological edge.
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Sui Northern and Sui Southern Gas Pipelines, ensuring the spread of natural gas to urban and rural areas.
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Pakistan International Airlines (PIA) was modernized to become one of the best airlines in the region during his tenure.
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Health and education reforms, with new medical colleges and schools established nationwide.
These departments were not just projects - they were symbols of national pride, self-reliance, and strategic foresight.
Enduring Legacy and Contemporary Relevance
Over four decades since his tragic demise, Zulfikar Ali Bhutto’s imprint on Pakistan remains indelible and deeply interwoven with the country’s identity. Many of the institutions, policies, and alliances he established continue to define Pakistan’s path. The 1973 Constitution he fathered still underpins Pakistan’s governance. The nuclear weapons program he set in motion has become the bedrock of the nation’s defense strategy. His foreign policy realignments – from the China friendship to leadership in the Muslim world – are now pillars of Pakistan’s international relations. Bhutto’s political party, the PPP, has outlasted its founder to govern the country multiple times and remains a major force in parliament, carrying forward his ideals of social justice and federalism. Equally significant is Bhutto’s enduring emotional connection with the Pakistani people. He is venerated as a martyr for democracy after his ouster and execution in 1979, and his charisma still inspires new generations of leaders. His daughter, the late Benazir Bhutto, herself became Pakistan’s prime minister – the first woman to lead a Muslim nation – drawing on her father’s legacy. Today, Bhutto’s name is invoked in debates on economic inequality, provincial rights, foreign policy independence, and more, proving the contemporary relevance of his vision.
In bestowing the award posthumously, Pakistan is not only correcting a historical omission, but also reaffirming its commitment to the ideals of sovereignty, social justice, and democracy that Bhutto championed. It is a moment of recognition that Pakistan’s journey towards democracy, self-reliance, and social welfare was profoundly shaped by Bhutto’s leadership. Zulfikar Ali Bhutto does not merely deserve the Nishan-e-Pakistan. He earned it - in blood, in legacy, and in the enduring heartbeat of a nation he helped reshape.
As the country faces new challenges, the lessons from Bhutto’s era – courage in adversity, faith in the people, and an unyielding pursuit of sovereignty – continue to guide and inspire. In honoring him with the highest civilian award, Pakistan reaffirms that Zulfikar Ali Bhutto’s legacy is not a relic of the past, but a living force driving the nation’s future aspirations.