DNA
ISLAMABAD: A proposal to reorganise Pakistan’s administrative structure by creating 12 provinces through a constitutional amendment is under consideration, with a nationwide referendum being envisioned to seek public approval before the move is formally introduced.
According to sources, the plan could form the basis of a proposed 28th Constitutional Amendment and may be taken up during the first half of 2027. Preparatory work and consultations are expected to begin much earlier if the proposal gains political traction.
Under the proposed framework, Punjab would be divided into four provinces, Khyber Pakhtunkhwa and Balochistan into three provinces each, while Sindh would be split into two administrative units. The move would increase the total number of provinces from four to 12.
Supporters of the proposal argue that Pakistan’s growing population, governance challenges and uneven distribution of development resources require a fresh administrative model. They maintain that smaller provinces could improve service delivery, strengthen local governance and bring decision-making closer to citizens.
Sources familiar with the deliberations said a nationwide referendum is being considered as a way to secure a public mandate for restructuring before the matter enters the parliamentary arena. Proponents believe the issue should be decided by the people rather than becoming solely a matter of political bargaining among parties.
The proposal, however, is already showing signs of becoming politically contentious, with several major political parties historically expressing reservations about the creation of new provinces and changes to provincial boundaries.
The Pakistan Peoples Party (PPP), which has traditionally positioned itself as a defender of provincial autonomy under the 18th Amendment, is expected to closely scrutinise any plan that could alter Sindh’s existing boundaries. Party leaders have consistently opposed measures they believe could weaken provincial powers or undermine the federation’s balance.
Similarly, the Pakistan Muslim League-Nawaz (PML-N), despite previously supporting the idea of a separate South Punjab province, may approach a broader nationwide restructuring plan with caution. Political observers note that large-scale changes to provincial boundaries could trigger fresh debates over resource distribution, representation and administrative control.
Meanwhile, Jamiat Ulema-e-Islam-Fazl (JUI-F), which is already engaged in political disagreements with the federal government on several issues, is also expected to raise questions regarding the timing, constitutional implications and political consensus surrounding the proposal. Analysts believe securing support from religious and regional parties would be essential for any constitutional amendment of such magnitude.
Supporters insist the proposal is not intended to target any province or reduce the political significance of existing federating units. Instead, they argue the objective is to improve governance, accelerate development and ensure resources reach underserved regions more effectively.
They contend that smaller administrative units would allow governments to better identify local needs, monitor public-sector performance and respond more quickly to citizen concerns. Advocates also argue that reducing the size of provinces could help address long-standing disparities in infrastructure, education, healthcare and economic opportunities.
However, constitutional experts warn that any such restructuring would involve complex legal, financial and political challenges. Beyond amending the Constitution, authorities would need to address issues related to provincial assemblies, representation in parliament, revenue sharing mechanisms, bureaucracy and administrative assets.
The referendum proposal is also being viewed as an attempt to build broader national consensus before launching what would be one of the most significant constitutional reforms in Pakistan’s history.
While no final decision has been taken and details regarding boundaries and administrative structures remain undecided, the proposal has already sparked debate within political circles. With major parties likely to take differing positions and questions over constitutional viability expected to dominate discussions, the road towards creating 12 provinces appears set to be politically challenging even before the issue reaches parliament.
