Pakistan considers 12-province plan, referendum ahead of possible constitutional amendment

A proposal to reorganise Pakistan into 12 provinces is under consideration, with a nationwide referendum envisaged ahead of a possible 28th Constitutional Amendment, according to a report published on Sunday.

A proposal to reorganise Pakistan into 12 provinces is under consideration, with a nationwide referendum envisaged ahead of a possible 28th Constitutional Amendment, according to a report published on Sunday.

The proposal could be taken up during the first half of 2027, with preliminary steps potentially beginning in the first quarter, The News reported, citing sources familiar with the discussions.

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

The proposal remains at the consideration stage, with no final decisions taken on provincial boundaries, administrative structures or the constitutional process required to implement the changes.

A nationwide referendum is being considered as a means of gauging public opinion on the creation of additional provinces before the constitutional amendment process begins, the report said.

Supporters of the proposal argue that smaller provinces could bring government closer to citizens, improve access to public services and help address uneven development. They also say smaller administrative units could make it easier to identify local priorities, monitor public-sector performance and respond to residents’ needs.

The proposal is not intended to target any particular province or weaken the status of existing provincial units, the sources told The News.

However, creating additional provinces would raise significant constitutional, political and administrative challenges, including the division of resources, representation and government responsibilities.

Under Article 239 of Pakistan’s Constitution, an amendment altering the boundaries of a province requires approval by at least two-thirds of the total membership of the provincial assembly concerned, in addition to the required parliamentary majorities. A referendum, if held, would not by itself replace this constitutional process.

The proposal would therefore require extensive consultations and political agreement before it could be implemented.