28th Constitutional Amendment: Pakistan Weighs Major Provincial Changes

ISLAMABAD: Pakistan is reportedly considering a major restructuring of its administrative system that could increase the number of provinces from four to 12, with a nationwide referendum being discussed before a possible 28th Constitutional Amendment.

According to reports citing sources familiar with the discussions, the proposed plan envisages dividing Punjab into four provinces, Khyber Pakhtunkhwa into three, Balochistan into three and Sindh into two.

If implemented, the proposal would significantly change Pakistan’s existing administrative structure.

The proposed restructuring aims to improve governance, strengthen administrative efficiency and ensure a more balanced distribution of development resources. It also seeks to bring government institutions and public services closer to citizens, particularly in less-developed regions.

Sources suggest that preliminary preparations could begin in the first quarter of 2027, while the proposed constitutional amendment may be considered during the first half of the year.

A nationwide referendum is also being discussed to obtain public opinion on the creation of additional provinces. The proposed exercise would allow citizens to express their views on administrative restructuring before the matter proceeds through the constitutional process.

However, the proposal remains at an early stage. Provincial boundaries, administrative arrangements, proposed capitals and the distribution of financial resources have not been finalised.

There are also important constitutional requirements. Under Article 239 of Pakistan’s Constitution, a constitutional amendment requires approval by at least two-thirds of the total membership of both houses of Parliament. Any amendment changing the boundaries of a province must also receive approval from at least two-thirds of the total membership of the affected provincial assembly.

The proposal also comes amid an ongoing political debate about creating smaller administrative units and strengthening local governments.

Planning Minister Ahsan Iqbal said on October 30 that the government was not drafting a 28th Constitutional Amendment for creating new provinces. He instead emphasised the importance of effective local government institutions for improving public service delivery.

This highlights the need for further political consultation before any comprehensive restructuring plan can move forward.

Supporters of smaller provinces argue that they could improve administrative access, strengthen regional development and make government departments more responsive to local needs.

However, the proposal could also raise complex questions about provincial autonomy, political representation, financial allocations, public-sector employment and the transfer of administrative institutions.

The debate is therefore likely to extend beyond the number of provinces to include the future structure of governance and federal-provincial relations.

For now, no official approval has been announced for the proposed 12-province arrangement. Its future will depend on political consensus, public support and the constitutional process.