Zeus directed the creation of Pandora as punishment for Prometheus’s theft of fire.
In Hesiod’s Works and Days, Prometheus tricks Zeus and later steals fire for humanity. Zeus responds by ordering the gods to create Pandora, a woman whose arrival brings a new source of suffering to mortals. He also keeps fire from humanity before Prometheus’s theft and imposes further punishment on Prometheus himself.
The myth is therefore part of a larger conflict between Zeus and Prometheus. Pandora is not created independently of that conflict; her arrival is presented as Zeus’s response to the theft of fire. The gods contribute individual qualities, but Zeus supplies the overall command and purpose.
This detail differs from the question of which god physically fashioned or shaped Pandora in a particular passage. Greek myths can vary between texts, especially between Hesiod’s Works and Days and Theogony. For the punishment narrative in Works and Days, Zeus is the directing authority.