Referendum proposed ahead of plan to create 12 provinces

The country could be reorganised into 12 provinces under a proposal reportedly being considered ahead of a possible 28th Constitutional Amendment, with a nationwide referendum envisaged to seek public opinion on the creation of new administrative units, according to a report.

Citing sources familiar with the proposal, the report said that the amendment could be taken up in the first half of 2027, while preparatory work may begin in the first quarter of the year.

The proposed plan envisages dividing Punjab into four provinces, Khyber Pakhtunkhwa and Balochistan into three each, and Sindh into two. This would bring the total number of provinces to 12.

However, the proposal is still under consideration, with no decisions taken on provincial boundaries, administrative arrangements or the constitutional procedure required for such a restructuring.

A nationwide referendum is being considered as an initial step to assess public support for creating new provinces. The idea is to establish a public mandate before the constitutional process begins, rather than leaving the matter solely to political negotiations.

Those backing the proposal argue that the country's growing population, administrative pressures and uneven development require changes to the existing governance structure. They say the plan is not aimed at weakening any province or undermining the political and administrative status of existing units.

The proposed restructuring is intended to bring government institutions closer to citizens, improve access to public services and ensure a more even distribution of development resources. Supporters believe smaller provinces could help administrations identify local needs, monitor public-sector performance and respond more effectively to people's concerns.

The referendum is also being viewed as a way to take the debate beyond party politics. Previous discussions on creating new provinces have often been shaped by electoral interests, regional identities and concerns over the distribution of political power.