Prior to the referendum, the governing National Party had lost three by-elections since announcing negotiations to end apartheid two years earlier, and its position was opposed by the Conservative Party which opposed the negotiations and boycotted the Convention for a Democratic South Africa (CODESA). On 24 January 1992, President F.W. de Klerk opened parliament and suggested that a referendum would be held, in which the vote of each race group would be counted separately. When the National Party was defeated in the Potchefstroom by-election on 19 February, after calling it a test vote, its credibility was placed in doubt.
In the meantime, negotiations between the government and the African National Congress were making slow progress. Violence was increasing in the South African townships, different white right wing groups were becoming more prominent, and there was growing dissatisfaction within the white community. The government was thus under domestic and international pressure to make progress in the negotiations.
While the Conservative Party claimed that the government did not have the mandate to negotiate with the ANC after its defeat in Potchefstroom, State President F.W. de Klerk announced 20 February, that a national referendum for the white electorate would be held to test the government's — and his own — support: if the referendum's outcome had been negative, de Klerk would have resigned and general elections held.