In Hesiod’s myth, Zeus ordered the gods to create Pandora after Prometheus gave fire to humans. The act of giving fire angered Zeus because it challenged his control over a power he had withheld from humanity.
Hesiod presents Pandora’s creation as part of Zeus’s punishment of both Prometheus and humankind. Hephaestus shaped the figure, while other gods supplied qualities and adornments. Zeus then arranged for Pandora to enter the human world through Epimetheus, despite Prometheus’s warning about accepting gifts from Zeus.
This question concerns the myth’s creation episode, not the separate question of which gift Prometheus stole or gave. Different retellings change details, but Zeus’s role as the authority directing Pandora’s creation is consistent in Hesiod’s narrative. Zeus is also the ruler whose decisions frame the connected stories of Prometheus, fire, and the jar.