Even if constitutional amendments are approved in 2027, the proposed restructuring of Pakistan’s four provinces into 12 administrative units could be implemented only after the 2029 general elections, according to sources.
ISLAMABAD: Pakistan’s proposed plan to increase the number of provinces from four to 12 could face a lengthy implementation process, with the new administrative structure unlikely to take effect before the 2029 general elections.
According to reports citing sources familiar with the proposal, even if the required constitutional amendments are passed next year, the existing provincial governments and assemblies would continue functioning until the next general elections.
The proposed restructuring would then be introduced following the electoral process scheduled for 2029, allowing time to address constitutional, financial and administrative challenges.
The proposal, which remains under consideration, could bring significant changes to Pakistan’s administrative structure and the distribution of resources among provinces.
How Would Pakistan Be Divided Into 12 Provinces?
Under the reported proposal, Pakistan’s existing four provinces could be reorganized into 12 separate administrative units.
Punjab, the country’s most populous province, could be divided into four provinces, while Khyber Pakhtunkhwa and Balochistan could each be reorganized into three provinces.
Sindh, meanwhile, could be divided into two provinces.
If implemented, the plan would increase the total number of provinces from four to 12, creating eight additional provincial units.
However, the proposed boundaries, administrative arrangements and legal framework have not been finalized.
No official confirmation of an approved constitutional amendment establishing the proposed provinces has been provided in the reported information.
NFC Award Could Become a Major Challenge
One of the most significant obstacles to the proposed restructuring would be the redistribution of financial resources under the National Finance Commission (NFC) Award.
Pakistan currently distributes the provincial share of federal divisible revenues among its four provinces according to an established formula.
The creation of eight additional provinces would require policymakers to address how these financial resources should be allocated among 12 provincial governments.
This could involve complex negotiations over provincial entitlements, population-based allocations, revenue distribution and other economic considerations.
Sources indicated that protecting the financial interests of existing provinces while determining the rights of newly established units would be among the most sensitive issues.
Any proposed changes would also need to comply with the country’s constitutional framework.
Water Distribution Another Major Concern
The allocation of water resources is expected to present another major challenge if the proposal moves forward.
Water sharing is already a sensitive issue in Pakistan, particularly in agricultural regions where irrigation systems and farming activities depend heavily on river water.
Creating new provincial boundaries could raise questions about existing water-sharing arrangements and the rights of newly formed administrative units.
Authorities would need to determine how irrigation requirements, water availability and related provincial responsibilities should be managed under a revised structure.
Sources suggested that reaching an agreement on water distribution would be essential to avoiding disputes between existing provinces and their proposed successor units.
Financial Liabilities and Administrative Restructuring
Beyond revenue and water distribution, the proposed plan would require decisions regarding financial liabilities and administrative responsibilities.
Existing provincial obligations would need to be addressed, including how financial commitments and economic rights should be handled following any division.
The establishment of additional provinces would also require new administrative arrangements, including provincial institutions and government structures.
Such changes could involve substantial planning, coordination and legal procedures before the new units become operational.
These challenges are among the reasons why the proposed restructuring could require an extended transition period.
Why Could Implementation Be Delayed Until 2029?
According to sources, approval of the necessary constitutional amendments in 2027 would not automatically result in the immediate establishment of the new provinces.
Instead, the existing provincial assemblies and governments would reportedly continue operating until the next general elections.
The proposed administrative changes could then be implemented after the 2029 electoral process.
This arrangement would provide time to resolve financial, legal and administrative matters before introducing the new provincial system.
However, the implementation timeline remains part of the reported proposal rather than a finalized government decision.
Constitutional Approval and Political Consensus Required
The creation of new provinces would require significant constitutional and political consideration.
Under Article 239(4) of Pakistan’s Constitution, a constitutional amendment altering the limits of a province must also be approved by at least a two-thirds majority of the total membership of that province’s assembly.
This means that the proposed restructuring would require more than a decision at the federal level.
Political agreement, constitutional approval and arrangements for resource distribution would all be essential before the plan could move forward.
For now, the reported proposal to create 12 provinces remains under discussion, with no confirmed implementation decision.
Further developments will depend on whether the government formally introduces constitutional amendments and whether the necessary political and institutional support can be secured.