ISLAMABAD – Pakistan’s political map could be heading for major shake-up amid discussions over nationwide referendum to expand four provinces into 12. The ambitious proposal, reportedly linked to a possible 28th Constitutional Amendment, could redraw provincial boundaries and reshape governance, although no official decision has been announced.
The reported initiative, which could become one of the most key administrative reforms in recent history, is aimed at addressing longstanding governance challenges, improving public service delivery and ensuring a more balanced distribution of resources. So far, the proposal is still being explored and is yet to mature.
12-Province Formula
The arrangement under discussion would dramatically redraw Pakistan’s administrative map by creating additional provincial units from the four existing provinces. Under the reported proposal, Punjab would be divided into four provinces, Khyber Pakhtunkhwa into three, Balochistan into three and Sindh into two, bringing the total number to 12.
While the formula has generated fresh political interest, officials have not announced any proposed boundaries, provincial capitals or administrative structures. The reports also suggest that public opinion could be sought through a nationwide referendum before the government considers introducing a 28th Constitutional Amendment.
Preliminary preparations have reportedly been discussed for the first quarter of 2027, with a possible constitutional process during the first half of the year. However, these dates remain speculative, and neither a referendum nor a constitutional amendment has been officially scheduled.
The latest reports have brought renewed attention to Federal Planning Minister Ahsan Iqbal’s earlier remarks about restructuring Pakistan’s administrative system. Earlier this year, Ahsan Iqbal suggested that the country should openly debate the possibility of establishing 12 to 15 provinces to make governance more effective and responsive to local needs.
He called for a committee to examine different restructuring options, emphasizing that changes of such magnitude could only move forward through national political consensus. The planning minister also suggested an alternative to creating provinces: empowering approximately 160 district-level local governments.
Under that approach, stronger local administrations could take responsibility for public services and development, reducing dependence on provincial governments.
However, in a clarification on October 30, Iqbal stated that the government was not drafting a 28th Constitutional Amendment to create additional provinces. He instead emphasized strengthening local government institutions as a more immediate route toward improved governance.
28th Constitutional Amendment: A Look at Key Changes Under Discussion
Referendum Requirements
PM’s aide on Political Affairs Rana Sanaullah also weighed in on the debate, making it clear that any decision involving new provinces must pass through Parliament. He maintained that a nationwide referendum cannot be arranged independently of the required parliamentary process.
Sanaullah stressed that constitutional restructuring is a matter for elected representatives and requires proper legislative consideration rather than decisions based on political statements or informal proposals. His remarks hinted that discussions about new provinces remain far from any final decision.
Not so Easy Task to Divide Existing Provinces
Even if political leaders agree on a new administrative map, implementing it would require clearing several constitutional hurdles. Under Article 239(4) of Pakistan’s Constitution, an amendment changing the boundaries of an existing province cannot proceed without approval from at least two-thirds of the total membership of the affected provincial assembly.
The amendment must also secure the constitutionally required two-thirds majority in both the National Assembly and Senate. Meanwhile, Article 48(6) provides for a referendum on a matter of national importance after the necessary parliamentary approval.
Public endorsement through a referendum would not, by itself, authorize the creation of new provinces, making constitutional amendments and provincial consent indispensable.
The proposed division of Sindh into two provinces could trigger some of the strongest resistance to the initiative. Sindh Assembly this year passed a resolution opposing any attempt to divide the province, citing its historical identity, territorial integrity and constitutional position.
Pakistan Peoples Party (PPP), a major political stakeholder in Sindh, has repeatedly rejected proposals to split the province. Its opposition could make it particularly difficult to secure the provincial approval required for any change to Sindh’s boundaries. The wider proposal would also require negotiations among other political parties, provincial governments and federal coalition partners.
The idea of creating additional provinces is not new, but the debate gained momentum during 2026 amid concerns about population growth, administrative inefficiency and uneven development. Interior Minister Mohsin Naqvi’s remarks during the year also contributed to discussions about whether Pakistan’s existing provincial structure could effectively manage its growing population and governance needs.
Over recent months, various proposals have surfaced, ranging from 12 provinces to more ambitious suggestions involving 20 or even 32 administrative units. Demands for separate South Punjab, Saraiki and Hazara provinces have also remained part of political discussions.
Financial implications could prove just as challenging as constitutional approval. Creating additional provinces would involve setting up new provincial assemblies, governor houses, chief minister offices, cabinets, secretariats and other administrative institutions. Independent economic assessments, including analyses associated with the PRIME institute, have raised concerns that such restructuring could impose substantial additional annual expenditure.
Depending on the model adopted, estimates have ranged from tens to hundreds of billions of rupees. There are also concerns that smaller provinces with limited revenue-generating capacity could become more dependent on federal funding. Supporters argue that decentralization could improve administrative accountability, help underserved areas receive greater attention and bring government decision-making closer to communities.
28th Constitutional Amendment
Speculation surrounding the proposed 28th Constitutional Amendment has extended beyond provincial restructuring. Some sources linked the discussions to broader governance reforms, decentralization and possible changes involving the distribution of powers under the 18th Constitutional Amendment.
Other speculative accounts suggest that major restructuring could be postponed until after the 2029 general elections if political consensus proves difficult to achieve. Nevertheless, no official constitutional amendment bill has been introduced, no nationwide referendum has been approved and no provincial boundaries have been finalized.
