Pakistan weighs 12 provinces, nationwide referendum ahead of possible 28th Amendment

ISLAMABAD: A proposal to redraw Pakistan’s administrative map by creating 12 provinces is under consideration, with a nationwide referendum envisaged before a possible 28th Constitutional Amendment, sources familiar with the discussions said on Sunday.

Under the proposed arrangement, Punjab would be divided into four provinces, Khyber Pakhtunkhwa and Balochistan into three each, and Sindh into two, taking the total to 12.

The constitutional amendment could be taken up in the first half of 2027, with preparatory steps possibly beginning in the first quarter, according to the report in The News. The proposal, however, remains at the consideration stage. No final decision has been taken on the boundaries, administrative structures or the constitutional process needed for such a major restructuring.

Why a referendum first

A key element of the approach is a nationwide referendum before the amendment process begins. The aim, sources said, is to gauge public opinion on the broader question of creating new provinces and to establish a popular mandate for restructuring, rather than leaving the issue to political negotiation and partisan considerations.

Sources stressed that the exercise is not intended to target any particular province or weaken the political or administrative standing of any existing unit. The argument, they said, is that Pakistan’s growing population, administrative challenges and uneven development call for a fresh approach to governance.

The stated objective

Bringing government closer to ordinary citizens, improving access to public services, making administration more responsive and ensuring that development projects and resources reach people across all regions. Proponents believe smaller administrative units would make it easier for governments to identify local priorities, monitor public-sector performance, close gaps in service delivery and respond more effectively to citizens’ everyday problems.

Constitutional questions remain

Any such restructuring would raise significant constitutional questions, including changes to the existing provincial framework and to representation, financial and administrative arrangements. It would therefore require broader political engagement and constitutional consensus before it could become a reality. The creation of new provinces has historically provoked strong reactions, with parties and regional stakeholders often viewing the issue through the lens of electoral interests, provincial identity and the distribution of power.

The debate is not new. In May 2026, Law Minister Azam Nazeer Tarar said he saw no indications of a 28th Amendment materialising imminently, while confirming consultations with coalition partners were under way and naming Hazara and a Saraiki province as two specific proposals under discussion.