The State of

CHILDREN
in Pakistan 2024
National Commission on the
Rights of Child (NCRC)
 The State of
CHILDREN
in Pakistan 2024
National Commission on the
Rights of Child (NCRC)
 National Commission on the Rights of Child (NCRC) is a statutory body
established by the Government of Pakistan for the promotion, protection,
and fulfilment of children’s rights in Pakistan. NCRC has the mandate to
examine and review policies, laws, practices, and proposals, inquire into
violations of child rights, sponsor research, raise awareness, build
capacities, provide technical support, and advise the Government on
legislative and policy matters by virtue of the National Commission on the
Rights of Child Act, 2017.

Acknowledgments:
 The State of Children in Pakistan 2024

Table of Content
Acronyms 3
Message from the Chairperson 9
Introduction to The State of Children in Pakistan 2024 11
1. Pakistan’s Profile 13
1.1 Children's Population 14
1.2 Child Rights Governance 14
1.3 Social Determinants and their Impact on Children 15
2. Pakistan's International Commitments: Human Rights of Children 17
2.1 Compliance with UN Treaties 19
2.2 Conclusion 21
3. Children's Right to Development 23
3.1 Access to Education and Participation 23
3.2 Learning Environment 31
3.3 Learning Outcomes 33
3.4 Inclusion and Equity in Education 34
3.5 Education Financing 37
3.6 Legal Framework 39
3.7 Children's Right to Play 41
3.8 Recommendations 43
4. Children's Right to Survival 47
4.1 Child Survival Indicators 47
4.2 Childhood Immunisation Coverage 48
4.3 Malnutrition among Children 50
4.4 Childhood Diseases 54
4.5 WASH (Water, Sanitation, and Hygiene) 56

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The State of Children in Pakistan 2024

4.6 Disability among Children Aged 24-59 Months 58

4.7 Adolescent Health and Nutrition 59
4.8 Resource Allocation for Health 64
4.9 Legal Framework Supporting the Children's Right to Survival 65
4.10 Healthcare Infrastructure and Service Delivery Mechanisms 66
4.11 Climate Change and Children 67
4.12 Recommendations 69
5. Children's Right to Protection 73
5.1 Birth Registration 73
5.2 Violence against Children 78
5.3 Economic Exploitation of Children 98
5.4 Street-Connected Children 105
5.5 Child Trafficking 109
5.6 Juvenile Justice 114
5.7 Internally Displaced People (IDPs) 120
5.8 Refugee Children 123
5.9 Alternative Care 128
6. Children's Right to Participation 133
6.1 Situation in Pakistan 133
6.2 Legal Framework for Child Participation 138
6.3 Recommendations to Enhance Children's Participation in Pakistan 138

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 The State of Children in Pakistan 2024

Acronyms
AI Artificial Intelligence
ALPs Accelerated Learning Programmes
APFTU All Pakistan Federation of Trade Unions
ASER Annual Status of Education Report
BCG Bacille Calmette-Guérin (Tuberculosis Vaccine)
BECS Basic Education Community Schools
BHUs Basic Health Units
BISP Benazir Income Support Programme
BMI Body Mass Index
BNP Benazir Nashunoma Programme
CAR Commissionerate for Afghan Refugees
CAT Convention Against Torture
CAP Child Advisory Panel
CCRI Children's Climate Risk Index
CCW Cyber Crime Wing
CEDAW Convention on the Elimination of All Forms of Discrimination Against Women
CEACR Committee of Experts on the Application of Conventions and Recommendations
CESCR International Covenant on Economic, Social and Cultural Rights
CH4 Methane
CHH Child-Headed Household
CMRA Child Marriage Restraint Act
COP Child Online Protection
CPDI Centre for Peace and Development Initiatives
CPIs Child Protection Institutes
CPUs Child Protection Units
CP&WB Child Protection and Welfare Bureau
CRIN Child Rights International Network
CRPD Convention on the Rights of Persons with Disabilities
CRVS Civil Registration and Vital Statistics
CSA Child Sexual Abuse
SAM Child Sexual Abuse Material

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The State of Children in Pakistan 2024

CSE Child Sexual Exploitation

CrPC Criminal Procedure Code
CSV Child Sexual Violence
DCPU District Child Protection Unit
DDMAs District Disaster Management Authorities
DEPIx District Education Performance Index
DNA Deoxyribonucleic Acid
DRAP Drug Regulatory Authority of Pakistan
DRF Digital Rights Foundation
DTP Diphtheria, Tetanus, and Pertussis
DTP3 Diphtheria, Tetanus, Pertussis (Third Dose)
DVC District Vigilance Committee
DVCs District Vigilance Committees
ECD Early Childhood Development
ECE Early Childhood Education
ECP Election Commission of Pakistan
ECPAT End Child Prostitution, Child Pornography and Trafficking of Children for Sexual
Purposes
ESP Education Sector Plans
FATA Federally Administered Tribal Areas
FCTC Framework Convention on Tobacco Control
FDE Federal Directorate of Education
FIA Federal Investigation Agency
FIR First Information Report
FSC Federal Shariat Court
GAVI Global Alliance for Vaccines and Immunization
GBV Gender-Based Violence
GU Generation Unlimited
GDI Gender Development Index
GDP Gross Domestic Product
GSP+ Generalised Scheme of Preferences Plus
GHG Greenhouse Gas
HDI Human Development Index
HepB Hepatitis B
HepB3 Hepatitis B (Third Dose)

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 The State of Children in Pakistan 2024

Hib Haemophilus Influenzae Type B

Hib3 Haemophilus Influenzae Type B (Third Dose)
HIV Human Immunodeficiency Virus
HRCP Human Rights Commission of Pakistan
ICT Islamabad Capital Territory
ICCMC International Catholic Migration Commission
ICCPR International Covenant on Civil and Political Rights
ICESCR International Covenant on Economic, Social and Cultural Rights
ICSE International Child Sexual Exploitation
IDMC Internal Displacement Monitoring Centre
IDPs Internally Displaced Persons
ILO International Labour Organization
ILC International Labour Conference
IMR Infant Mortality Rate
IPCC Intergovernmental Panel on Climate Change
IRC International Rescue Committee
IHDI Inequality-adjusted Human Development Index
ISPs Internet Service Providers
ITA Idara-e-Taleem-o-Aagahi
JJCs Juvenile Justice Committees
JJSA Juvenile Justice System Act
KAP Knowledge, Attitudes and Practices
KP Khyber Pakhtunkhwa
KPCLS Khyber Pakhtunkhwa Child Labour Survey
KPCPWC Khyber Pakhtunkhwa Child Protection and Welfare Commission
LAJA Legal Aid and Justice Authority
MCV Measles-Containing Vaccine
MCV1/MCV2 Measles-Containing Vaccine (First/Second Dose)
MICS Multiple Indicator Cluster Survey
MoHR Ministry of Human Rights
MoFEPT Ministry of Federal Education and Professional Training
MoNHSR&C Ministry of National Health Services, Regulations & Coordination
MoPD&SI Ministry of Planning, Development & Special Initiatives
MPI Multidimensional Poverty Index
NADRA National Database and Registration Authority

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The State of Children in Pakistan 2024

NCC National Curriculum Council

NCHD National Commission for Human Development
NCHR National Commission for Human Rights
NCMEC National Centre for Missing & Exploited Children
NCRC National Commission on the Rights of Child
NDMA National Disaster Management Authority
NEF National Education Foundation
NFE Non-Formal Education
NHRI National Human Rights Institution
NISP National Immunisation Support Programme
NMR Neonatal Mortality Rate
NNS National Nutrition Survey
OCSEA Online Child Sexual Exploitation and Abuse
OHCHR Office of the High Commissioner for Human Rights
OOSC Out-of-School-Children
OOSR Out-of-School-Rate
PAB Protection at Birth
PBS Pakistan Bureau of Statistics
PES Pakistan Education Statistics
PCV Pneumococcal Conjugate Vaccine
PCV3 Pneumococcal Conjugate Vaccine (Third Dose)
PCLS Punjab Child Labour Survey
PECA Prevention of Electronic Crimes Act
PIE Pakistan Institute of Education
PKR Pakistani Rupee
PMCID PubMed Central Identifier
PMDU Pakistan Citizen's Portal Management and Delivery Unit
PMID PubMed Identifier
PMWF Pakistan Mine Workers Federation
PMYP Prime Minister's Youth Programme
PPC Pakistan Penal Code
PTR Pupil-Teacher Ratio
PVC Provincial Vigilance Committee
RHCs Rural Health Centres
SAFRON Ministry of States and Frontier Regions

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 The State of Children in Pakistan 2024

SCPA Sindh Child Protection Authority

SDGs Sustainable Development Goals
SDPI Sustainable Development Policy Institute
SHRC Sindh Human Rights Commission
SOGA State of Global Air
SOS Save Our Souls (Children's Villages)
SPARC Society for the Protection of the Rights of the Child
SRH Sexual and Reproductive Health
STIs Sexually Transmitted Infections
TB Tuberculosis
Tevta Technical Education & Vocational Training Authority
THQs Tehsil Headquarters Hospitals
TIP Trafficking in Persons
TVET Technical and Vocational Education and Training
TVPA Trafficking Victims Protection Act
U5MR Under-5 Mortality Rate
UASC Unaccompanied or Separated Children
UN United Nations
UNCRC United Nations Convention on the Rights of the Child
UNDP United Nations Development Programme
UNESCO United Nations Educational, Scientific and Cultural Organization
UNFCCC United Nations Framework Convention on Climate Change
UNFPA United Nations Population Fund
UNHCR United Nations High Commissioner for Refugees
UNICEF United Nations Children's Fund
UNODC United Nations Office on Drugs and Crime
UNTOC United Nations Convention against Transnational Organized Crime
UPR Universal Periodic Review
VAC Violence against Children
WASH Water, Sanitation, and Hygiene
WHO World Health Organization

National Commission on the Rights of Child | 7

 Message from the
Chairperson
The State of Children in Pakistan Report 2024 for instance, while there are initiatives to
presents a clear and evidence-based picture expand access to education and accelerate
of the situation of children across the country. learning, over 26 million children aged 5 to 16
It brings together data from a range of are still out of school, and less than half of 5th
national and international sources to assess grade students can read or perform basic
how Pakistan is meeting its obligations arithmetic. In health, despite progress in
towards children under the Constitution and immunization, high mortality rates among
international treaties, especially the UN newborns and children under five reflect
Convention on the Rights of the Child critical gaps in maternal and child health care.
(UNCRC). The findings are both timely and In the area of child protection, alarming rates
critical, highlighting where progress has been of violent discipline and the continued
made and where significant challenges prevalence of child marriage highlight the
remain. deep-rooted cultural and legal challenges we
More than 40% of Pakistan’s population is must confront. Importantly, the report also
under the age of 18 - a staggering 112 million identifies practical recommendations for
children. This demographic reality represents change. These include strengthening early
not only our greatest opportunity, but also our childhood development, investing in basic
gravest responsibility. Yet too many children education and nutrition, strengthening Civil
continue to be denied the basic rights Registration and Vital Statistics (CRVS),
essential for a life of dignity, opportunity and expanding child protection services and
protection. Millions of them do not go to ensuring that legal reforms are
school. One in two children under the age of complemented by effective enforcement and
five is still affected by malnutrition. Severe awareness raising initiatives. Children’s
forms of violence, including corporal voices and meaningful participation must
punishment and sexual abuse of children, remain central to these efforts, particularly as
continue to occur at home, in schools and we strive to create inclusive systems that
online spaces. For children with disabilities, reflect the realities of every child in Pakistan.
transgender children and children of minority As the Chairperson of the National
communities, the barriers to inclusion and Commission on the Rights of Child (NCRC), I
safety are often even greater. reaffirm our commitment to working in
The findings of this report are based on partnership with government institutions, civil
extensive evidence and a child rights-based society and development partners,
framework. They highlight both promising policymakers, parents, teachers and
progress and persistent gaps. In education, community to act on the findings and

National Commission on the Rights of Child | 9

The State of Children in Pakistan 2024

recommendations of this report and drive advocacy tool for policymakers, academics,
meaningful change for children across researchers, and all those working to advance
Pakistan. The NCRC acknowledges the the rights and well-being of children.
support of UNICEF Pakistan, the Government Let this report serve as a mirror and a guide.
of the United Kingdom, and their Awaz II We must see this document not merely as a
programme in making this report possible. We stocktaking exercise, but also as a basis for
also extend appreciation to Mr. Qindeel measuring and accelerating progress in the
Shujaat for compiling the report, and to the years to come.
dedicated team at NCRC for their hard work.
The State of Children in Pakistan 2024 is the
first-ever report of its kind published by the
NCRC. It draws on data collected through a
comprehensive exercise conducted in
collaboration with provincial and federal Ayesha Raza Farooq
departments. While the data may not be Chairperson
perfect, it represents an ongoing and evolving National Commission on the Rights of Child
effort to capture the realities faced by children (NCRC)
across Pakistan. This report will be widely
disseminated and is intended to serve as a

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Introduction to
The State of Children in Pakistan 2024
The State of Children in Pakistan 2024 report has been prepared in compliance with Sections 15
and 17 of the National Commission on the Rights of Child (NCRC) Act, 2017, providing an evidence-
based assessment of the status of children across the country. As part of its statutory mandate to
monitor and report on progress in realising children’s rights, the NCRC has developed this report
using disaggregated data and analytical evidence to evaluate Pakistan’s compliance with
national legal frameworks and international obligations, particularly the UN Convention on the
Rights of the Child (UNCRC).
The scope and thematic priorities of the report were identified in line with the NCRC’s Strategic
Plan 2023-26, ensuring alignment with its mandate and national child rights agenda. Structured
around systemic factors affecting children’s rights and well-being, the report begins with a child-
centred demographic and socio-economic profile of Pakistan. The report discusses Pakistan’s
international obligations and Pakistan’s engagement with international human rights
mechanisms and frameworks. On this basis, the report adopts a thematic approach and examines
children’s rights across the four core pillars of the UNCRC: development, survival, protection, and
participation. Each section examines emerging trends, legal frameworks, institutional responses,
and disparities. The report also seeks to draw attention to emerging issues such as climate-
related vulnerabilities, child online protection and the situation of marginalised groups. The
report concludes each thematic area with targeted recommendations for policymakers, civil
society organisations, and development partners to inform the design of responsive and
effective child-focused policies and programmes in Pakistan.
A multi-stage, evidence-based methodology was employed, combining a comprehensive
literature review, secondary data analysis, and stakeholder engagement. The literature review
examined existing laws, policies, administrative records, and national and provincial datasets
relevant to children’s rights in Pakistan. Based on this research, analytical tools and data
templates were developed and shared with federal and provincial duty bearers to promote
consistency and inclusivity in data collection. These templates specifically requested
disaggregated data by gender, disability status, and minority identity in order to identify
disparities affecting marginalised children. Additionally, meetings and consultations with key
stakeholders provided supplementary insights and validation of findings.
Recognising the importance of up-to-date and context-specific information, the NCRC placed
primary reliance on collecting data directly from duty bearers, rather than depending solely on
secondary sources. Where responses were limited or unavailable, secondary data and existing
research were used to fill gaps, support analysis, and validate findings. The draft report was also
reviewed by technical experts to ensure accuracy, relevance, and alignment with the report’s
objectives.

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The State of Children in Pakistan 2024

The NCRC encountered several challenges in data collection. This was likely due, in part, to the
fact that relevant departments across provinces monitor and compile data using different
systems and indicators. In many cases, existing data frameworks do not adequately capture the
identities and specific needs of marginalised children, including transgender children, children
with disabilities, and those from minority groups. Even where data was provided, it was often
incomplete, lacked disaggregation, or was not submitted using the standard templates shared by
the NCRC. The overall response process was also delayed, requiring repeated follow-ups. These
challenges highlight the urgent need for systemic reforms in data collection, standardisation, and
coordination across all relevant sectors and jurisdictions.
As the first national assessment of children’s rights led by the NCRC, this report represents a
critical milestone in institutionalising evidence-based monitoring and accountability in Pakistan. It
also provides a baseline to track progress over time. Beyond its role as a diagnostic tool, the
report serves as a strategic platform for advocacy, policy reform, and targeted action to advance
the rights of every child in Pakistan.

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 Pakistan's
Profile

Pakistan, a federal parliamentary republic, is the fifth most populous country in the world with 241
million inhabitants.1 This is a substantial increase from the 2017 population of 207 million,
representing an annual growth rate of approximately 2.55%. The majority of the population is
Muslim (96.4%), followed by Hindus (1.6%) and Christians (1.4%), with smaller communities of other
2
faiths. Approximately 3% of Pakistan's population is reported to be living with a disability,
according to the Census 2023.3
241.5
Population 207.7
(in Millions)

132.4

84.3
65.3
42.9
33.7

1951 1961 1972 1981 1998 2017 2023

Population Growth Over Years
Source: Pakistan Bureau of Statistics4

1
Announcement of results of 7th Population and Housing Census-2023 'The Digital Census' | Pakistan Bureau of Statistics. (n.d.).
https://www.pbs.gov.pk/content/announcement-results-7th-population-and-housing-census-2023-digital-census
2
Announcement of results of 7th Population and Housing Census-2023 'The Digital Census' | Pakistan Bureau of Statistics. (n.d.).
https://www.pbs.gov.pk/content/announcement-results-7th-population-and-housing-census-2023-digital-census
3
Note: While this figure reflects official government estimates from Census, it is important to acknowledge that it is significantly lower than
the global average. Many experts consider disability prevalence in Pakistan to be under-reported, suggesting that the actual percentage
may be considerably higher due to under-diagnosis, stigma, and data collection challenges.
4
7th Population & Housing Census: Key Findings Report. (n.d.). Pakistan Bureau of Statistics.
https://www.pbs.gov.pk/sites/default/files/population/2023/Key_Findings_Report.pdf

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The State of Children in Pakistan 2024

1.1 Children's Population

The country has a large youth demographic, with 47% of its population under the age of 18,
comprising 51.6% male and 48.3% female. Half of Pakistan's children population reside in Punjab
province.

Population
under 18
Total % Male Female Transgender

Pakistan 112,472,700 100 58,099,978 54,370,121 2,601

Punjab 56,320,353 50 28,853,198 27,465,596 1,559

Sindh 26,710,708 24 13,922,057 12,788,106 545

Khyber
Pakhtunkhwa 20,321,058 18 10,502,857 9,817,981 220

Balochistan 8,247,599 7 4,361,822 3,885,515 262

ICT 872,982 0.8 460,044 412,923 15

Source: Census 2023

The youngest age group, 0-4 years (under 5 years), has the highest population among the
different age groups of children in Pakistan. The high number of children in this age group
contributes to problems such as malnutrition, hinders early childhood development and
increasing child poverty, and puts immense pressure on the country's health, education and
social infrastructure.

Age Group 0-04 05-09 10-14 15-17 (under 18)

36,471,421 32,272,136 28,790,182 14,938,961
32.42% 28.69% 25.59% 13.28%
Source: Census 2023

1.2 Child Rights Governance

Pakistan's governance operates under a federal structure, with power divided among the federal
government, four provincial governments (Punjab, Sindh, KP, and Balochistan), and autonomous
regions (Gilgit Baltistan and Azad Jammu and Kashmir).5 Federal and Provincial Responsibilities in
Pakistan are defined under the Constitution of Pakistan, 1973, establishing a division of powers to
6
enable both national unity and regional autonomy.
5
Government of Pakistan. Pakistan's federal structure and governance. Retrieved from https://www.pakistan.gov.pk
6
Government of Pakistan. The Constitution of the Islamic Republic of Pakistan. Retrieved from https://www.pakistan.gov.pk

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 The State of Children in Pakistan 2024

th
The 18 Constitutional Amendment in 2010 fundamentally reshaped governance in Pakistan,
particularly in the domain of child rights, by devolving legislative powers from the federal
government to the provinces. This devolution abolished the Concurrent Legislative List,
transferring authority over key areas such as education, health, labour, and social welfare to the
provinces. Criminal law, in particular, operates as a shared domain between federal and
provincial governments. However, international commitments, including reporting obligations,
interprovincial coordination and matters concerning federally administered territories, are the
responsibility of the federal government.
In Pakistan, international laws and treaties that the country has ratified are not directly applicable
or enforceable within the domestic legal system unless they are incorporated into national
legislation. The Constitution of Pakistan follows a dualist approach, which means that
international obligations must be translated into domestic laws through appropriate legislative
measures before they can be legally binding.

1.3 Social Determinants and their Impact on Children

The social determinants shed light on various indicators such as education, health, income and
gender equality, which determine the quality of life and human development in a society.
Pakistan's social determinants paint a challenging picture especially for children.
Pakistan lags behind its regional counterparts in almost all social determinants for example it has
7 8
an adult literacy rate of just 58%. Countries like Sri Lanka, India, and Bangladesh have achieved
9
much higher literacy levels, while Pakistan surpasses only Afghanistan in South Asia. Low
literacy rates hinder socio-economic development, perpetuate poverty and limit opportunities for
individual and national progress. According to the World Bank, 77% of children in Pakistan are
classified as "learning poor," meaning they are unable to read and comprehend a simple text by
10
age 10. This rate is approximately 19 percentage points worse than the average for lower- and
middle-income countries.
Literacy Rates (Adult Literacy %)

Maldives Sri Lanka Iran India Bangladesh Nepal Bhutan Pakistan Afghanistan
98 92 89 76 75 71 71 58 37
Source: PES 2022-23

Pakistan ranks 164th globally in the Human Development Index (HDI) with a value of 0.540,
categorising it among countries with low human development.11 The Inequality-adjusted HDI
(IHDI) for Pakistan is 0.360,12 reveals a 33% loss in potential development due to disparities in
health, education, and income. Gender inequality is a serious issue in Pakistan, as reflected in
13
Pakistan's Gender Development Index (GDI) score of 0.834.
7
Literacy rates refer to the percentage of the population, aged 15 and above, who can read and write with understanding in any language.
8
Pakistan Institute of Education (PIE). (2024). Pakistan Education Statistics 2022-23. https://pie.gov.pk/Publications
9
Pakistan Institute of Education (PIE). (2024). Pakistan Education Statistics 2022-23.
10
World Bank. (2024). Learning poverty in Pakistan. World Bank. https://datatopics.worldbank.org/dataviz/girls-education-pakistan/
11
United Nations Development Programme (UNDP). (2023). Human Development Report 2023-2024: Breaking the gridlock: Reimagining
cooperation in a polarized world.
12
United Nations Development Programme (UNDP). (2023). Human Development Report 2023-2024: Breaking the gridlock:
Reimagining cooperation in a polarized world.
13
United Nations Development Programme (UNDP). (2023). Human Development Report 2023-2024: Breaking the gridlock:
Reimagining cooperation in a polarized world.

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The State of Children in Pakistan 2024

Source: UNDP

The Multidimensional Poverty Index (MPI) scores of 0.198 reveal severe deprivations in Pakistan
across health, education, and living standards, while 40.5% of the population lives below the
poverty line according to World Bank.14 The report also suggests that children in low-income
households bear the brunt of malnutrition, school dropouts, and preventable diseases—a
consequence of broader structural challenges such as inequitable resource distribution, weak
governance, and underinvestment in social sectors.
Economic growth in 2024 remained modest at 2.5%, with inflation averaging 23.4%, eroding real
incomes. High public debt at 72.4% of GDP15 constrains spending on essential services like health,
education and social protection, perpetuating poor infrastructure and underfunded education
and healthcare systems.
The labour force is estimated at approximately 75 million, comprising mostly young people, with
an unemployment rate of 6.9%.16 Female labour force participation remains alarmingly low,
limiting household income and resources available for children's development. Job creation has
also not kept pace with population growth, further burdening families and increasing reliance on
child labour to supplement income.

The Case for Investment in Children

High population growth is a significant strain on Pakistan's limited resources and economic
stability and highlights the urgent need to prioritise investment in children. Without
expanding public spending on health, education and child protection, the future holds
limited opportunities for children and Pakistan risks perpetuating the cycle of poverty and
inequality. Investment is critical for managing population pressures by expanding access
to family planning and reproductive health services, but more importantly, for fostering a
healthier, better-educated generation equipped to lead their communities and drive
sustainable development. Strong investments in children's health, nutrition, education, and
social protection are fundamental to building future leaders, enhancing Pakistan's role in
the global community, and securing long-term national prosperity.

14
World Bank report shows increase in Pakistan's poverty rate | Dialogue Pakistan. (n.d.-b). DialoguePakistan.
https://dialoguepakistan.com/en/business/world-bank-reports-shows-increase-in-pakistan-s-poverty-rate
15
Government of Pakistan, Ministry of Finance. (2024). Economic Survey of Pakistan 2023-2024. Islamabad: Government of Pakistan.
16
Government of Pakistan, Ministry of Finance. (2024). Economic Survey of Pakistan 2023-2024. Islamabad: Government of Pakistan.

16 | National Commission on the Rights of Child

2. Pakistan's International Commitments:
Human Rights of Children
Human rights are the fundamental freedoms and protections to which every human being is
entitled to regardless of gender, nationality, ethnicity or any other status. These rights encompass
civil, political, economic, social and cultural dimensions and ensure that all people, including
children, can live with dignity, equality and justice. Children, as a particularly vulnerable group,
have special rights under international law aimed at protecting their well-being, development and
safety. These international laws and treaties set standards to which any signatory country
including Pakistan is obliged to uphold and form the basis for its national policies, laws and
practices to promote the human rights of children within its territory.
Pakistan has ratified several key UN human rights treaties that provide a broad framework for the
protection of children's rights (See Table 1). Among these, the UN Convention on the Rights of the
Child (UNCRC), 1989 stands out as a core treaty that addresses various aspects of children's
rights holistically. Pakistan ratified the UNCRC on 12 November 1990 and has also ratified two of
its optional protocols on the involvement of children in armed conflict, and on the sale of children,
child prostitution and child pornography.
Pakistan has not ratified any treaties or protocols that allow for individual complaints, including
the Optional Protocol to the UNCRC on a Communications Procedure and similar mechanisms
under the CRPD, CAT, ICCPR and CEDAW. Additionally, Pakistan has not accepted inquiry
procedures under key UN human rights treaties. If accepted, these mechanisms could play an
important role in strengthening accountability and advancing the protection of human rights.
In addition to its treaty obligations, Pakistan is also part of a broader international framework that
is consistent with its human rights commitments. The Sustainable Development Goals (SDGs),
adopted in September 2015 as part of the 2030 Agenda for Sustainable Development, include
several goals that are directly linked to children's rights, as ensuring quality education (SDG 4),
eliminating child labour in all its forms (SDG 8.7), eradicating harmful practices (SDG 5.3), and
ending all forms of malnutrition (SDG 2.2). Pakistan also benefits from the Generalised Scheme of
Preferences Plus (GSP+), a trade arrangement with the European Union that grants preferential
access to EU markets. In return, Pakistan commits to implementation of 27 international
17
conventions on human rights, labour rights, environmental standards and good governance.
These include key frameworks such as the UNCRC, ILO Conventions, and other international
agreements aimed at promoting sustainable development and social progress. Pakistan was first
awarded GSP+ status on 1st January 2014, and the current GSP+ scheme has been extended until
31st December, 2027 allowing Pakistan to continue enjoying trade benefits .

17
Monitoring missions and priorities in Pakistan. (n.d.). https://gsphub.eu/country-info/Pakistan

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 The State of Children in Pakistan 2024

2.1 Compliance with UN Treaties

The international compliance process for State Party reports and UN Committee observations
involves several key steps. First, the government must submit periodic reports to the relevant UN
treaty bodies outlining its compliance with international obligations. These reports are typically
submitted every four to five years, depending on the specific treaty. These reports are reviewed
by the relevant committees, which also engage in dialogues with state representatives and
consider inputs from civil society organisations. The reviews are then followed by concluding
observations that the committees' issue, which highlight areas of concern and make
recommendations to the country for improvement. The government is then expected to
implement these recommendations and submit follow-up periodic reports to demonstrate
progress.18
Similarly, compliance with ILO reporting mechanisms requires States to periodically submit
progress reports on the implementation of ratified labour standards, including standards for
engaging children in labour. These reports are reviewed by the Committee of Experts on the
Application of Conventions and Recommendations (CEACR).
The Universal Periodic Review (UPR) is a unique process within the UN Human Rights Council that
reviews the human rights records of all UN member states every four to five years. It is a peer-
driven mechanism in which member states review and assess each other's performance and
compliance with agreed standards, rather than being assessed by an external body.
In 2023 and 2024 Pakistan continued to participate in international human rights mechanisms
and processes, including:
Fourth Universal Periodic Review (UPR) of Pakistan (January 2023)
Pakistan underwent its fourth UPR by the Human Rights Council in January 2023, during the UPR
19
Working Group's 42nd session. Pakistan received a total of 340 recommendations, of which it
20
supported 253 and noted 87. Among the recommendations, several focused specifically on
children's rights. Some of the key recommendations related to children concerned the issue of
child labour and urged Pakistan to strengthen its efforts to eliminate child labour, especially in
hazardous industries, and ensure strict enforcement of existing laws. Member states emphasised
the need to improve access to quality education for all children, particularly addressing gender
and socio-economic inequalities. Concerns were also raised about child marriage and calls were
made to strengthen preventative measures, enforce minimum age laws and raise awareness of
the harmful effects of early marriage. Violence against children, including corporal punishment
and abuse, was another key focus. Improving the health and nutrition outcomes for children was
also emphasised, particularly tackling malnutrition and ensuring improved access to healthcare
services.
Sixth and Seventh Periodic reports submitted by Pakistan on UNCRC (August 2023)
Pakistan submitted its combined sixth and seventh periodic report on 3rd August 2023, with the
21
report becoming publicly available in 2024. Originally due in 2021, the government's submission
was delayed by two years. The report covers the period from June 2016 to June 2021 and
18
United Nations. (n.d.). Reporting to the treaty bodies: Overview. Retrieved from https://www.ohchr.org/en/treaty-bodies/reporting-
treaty-bodies
19
Universal Periodic Review - Pakistan. (n.d.). UNITED NATIONS HUMAN RIGHTS COUNCIL. https://www.ohchr.org/en/hr-bodies/upr/pk-
index
20
"Supported" means the country agrees with the recommendation and commits to take action. "Noted" means the country does not
commit to implementing the recommendation but acknowledges that it was made.
21
UN Treaties Compliance – The State of Children in Pakistan. (n.d.). https://stateofchildren.com/un-treaties-compliance/

National Commission on the Rights of Child | 19

The State of Children in Pakistan 2024

provides a comprehensive review of Pakistan's progress on child rights, highlighting legislative

and policy reforms, and programmatic measures aimed at child protection, education, health, and
welfare.
The NCRC has submitted feedback in response to the Committee on the Rights of the Child's
(CRC) request for additional information on Pakistan.
The final report to the CRC is currently being prepared by the Ministry of Human Rights (MoHR).
The Government of Pakistan is scheduled to meet with the Committee in May 2025, and the
Concluding Observations will be shared shortly afterward.
International Covenant on Economic, Social and Cultural Rights (ICESCR) – List of Issues
(March 2024)
The Committee on Economic, Social and Cultural Rights issued a “List of Issues” regarding
22
Pakistan's compliance with the ICESCR in March 2024. The focus was on the rights to education,
health, and an adequate standard of living. Pakistan is expected to provide response on how
ICESCR rights are being incorporated into its legislative and policy frameworks, the
independence of the judiciary, and the training of law enforcement officials on the Covenant
provisions. The Committee also requested updates on coordination mechanisms between
federal and provincial authorities to ensure equitable access to these rights, particularly in areas
such as employment, social security, housing, and healthcare. The list includes issues such as
birth registration, child labour, access to education, especially for girls, school infrastructure,
harassment of minority students, the burden of childhood diseases, mental health services,
measures for disadvantaged children and the protection of Afghan refugee children.
The Committee's review of Pakistan is scheduled to take place from February 9, 2026, to March 6,
2026.
Convention on the Rights of Persons with Disabilities (CRPD) – List of Issues (March 2024)
The Committee on the Rights of Persons with Disabilities issued a “List of Issues” on Pakistan's
initial report on the implementation of the CRPD. On the issues raised in relation to children with
disabilities, the Committee requested updates on revising child policies for children with
disabilities and concrete plans to make them inclusive. It also sought information on the steps
taken to establish mechanisms that protect their best interests, enable their participation and
safeguard them from domestic violence. The Committee has also asked for details on inclusive
education policies, the provision of support to meet the needs of students with disabilities and
accessibility of disabled children to vocational and higher education. Pakistan was also asked to
report on the measures employed to ensure disability-friendly healthcare facilities, ease of birth
registration and provision of support for families with children with disabilities, as well as
Pakistan's plans to de-institutionalise children with disabilities and promote community-based
care for those in need of alternative care.
International Covenant on Civil and Political Rights (ICCPR) – Concluding Observations
(November 2024)
The Human Rights Committee reviewed Pakistan's second periodic report under the ICCPR and
issued Concluding Observations in November 2024.23 While commending some legislative
measures taken such as the Transgender Persons (Protection of Rights) Act, 2018 the Committee
raised concerns over discrimination, restrictions on religious freedom, and limitations on freedom
of expression by the state. The Committee recommended improvement of the protection of
22
UN Treaties Compliance – The State of Children in Pakistan. (n.d.). https://stateofchildren.com/un-treaties-compliance/
23
UN Treaties Compliance – The State of Children in Pakistan. (n.d.). https://stateofchildren.com/un-treaties-compliance/

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 The State of Children in Pakistan 2024

minority groups, strengthening the independence of the judiciary and ensuring that the National
Commission for Human Rights (NCHR) is adequately resourced to investigate human rights
violations. The Committee urged Pakistan to implement further reforms to better fulfil its
obligations under the ICCPR.
Observation (CEACR) – Adopted 2023, Published at the 112th ILC Session (2024) on Minimum
Age Convention, 1973 (No. 138)
The CEACR Committee's observations on the Minimum Age Convention, 1973 (No. 138)
highlighted several critical issues relating to child labour and employment regulations.24 The
Committee took note of the observations of the All-Pakistan Federation of Trade Unions (APFTU)
submitted on 31 August 2023 and called for a response from the Government, stressing the need
for stakeholder participation in policy formulation. The Committee appreciated the passage of
the Balochistan Employment of Children (Prohibition and Regulation) Act, 2021, which prohibits
employment of children below 14 years of age and bans hazardous labour for all children below 18
years of age. The Committee also noted the ongoing efforts of the ICT administration, supported
by the ILO, to amend the Employment of Children Act, 1991 and introduce a minimum employment
age of 14 years. The Committee also commended the initiatives in Punjab and Sindh to
consolidate labour laws into comprehensive labour codes, acknowledging efforts to strengthen
regulatory frameworks and labour protections.
Observation (CEACR) – Adopted 2023, Published at the 112th ILC Session (2024) on Worst
Forms of Child Labour Convention, 1999 (No. 182)
The CEACR Committee's observations on the Worst Forms of Child Labour Convention, 1999 (No.
182) highlighted key gaps in legislation and implementation.25 Observations submitted by the
APFTU and the Pakistan Mine Workers Federation (PMWF) raised concerns about legislative
enforcement and implementation gaps addressing the worst forms of child labour. The
Committee emphasised the importance of District and Provincial Vigilance Committees (DVCs
and PVCs) in enforcing bonded labour laws, facilitating victim rehabilitation, and assisting local
administrations. It commended the adoption of the Balochistan Forced and Bonded Labour
System (Abolition) Act, 2021, and the formulation of relevant rules under the act. Additionally, the
Committee noted ongoing monitoring efforts through the Provincial and District Anti-Human
Trafficking and Anti-Bonded Labour Monitoring Committees in Balochistan and the
establishment of DVCs in KP. With no reports of bonded labour in KP in 2022, the Committee
highlighted the effectiveness of these mechanisms and urged their expansion to ensure
comprehensive enforcement and protection for vulnerable populations in Pakistan.

2.2 Conclusion
NCRC notes that there have been persistent delays in submitting periodic reports by the
Government of Pakistan, including the practice of combining several overdue reports. While the
government tracks progress in fulfilling its treaty obligations through designated ministries and
treaty implementation cells, delays weaken the effectiveness of these mechanisms and hinder
timely engagement with treaty bodies and implementation of recommendations. Equally
important is the dissemination of Concluding Observations which is carried out through
government agencies and civil society; however, gaps in systematic follow-up and enforcement.

24
Compliance of ILO Conventions by Pakistan – The State of Children in Pakistan. (n.d.). https://stateofchildren.com/compliance-of-ilo-
conventions-by-pakistan/
25
Compliance of ILO Conventions by Pakistan – The State of Children in Pakistan. (n.d.). https://stateofchildren.com/compliance-of-ilo-
conventions-by-pakistan/ibid.

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The State of Children in Pakistan 2024

To strengthen accountability, the government must institutionalise and prioritise timely reporting,
enhance coordination and establish monitoring mechanisms to track and implement the
recommendations.
The treaty bodies' observations and recommendations provide a framework for Pakistan to
address gaps in policy, legislation and implementation, particularly in relation to children's rights
and related issues. Aligning national and provincial laws and policies with international standards
is crucial for Pakistan to fulfil its international obligations and commitments, but more importantly,
such legislative harmonisation will also help improve the situation of protection rights for children
in the country and the realisation to uphold their rights in all aspects by the Government.

Table 1: UN Treaties Ratified by Pakistan on Children's Rights

Instrument Ratification by Pakistan

International Convention on the Elimination of All Forms of Racial 21 Sep 1966

Discrimination
UN Convention on the Rights of the Child 12 Nov 1990
Convention on the Elimination of All Forms of Discrimination against 12 Mar 1996
Women
ILO Worst Forms of Child Labour Convention, 1999 (No. 182) 11 Oct 2001
ILO Minimum Age Convention, 1973 (No. 138) 06 Jul 2006
International Covenant on Economic, Social and Cultural Rights 17 Apr 2008
International Covenant on Civil and Political Rights 23 Jun 2010
Convention against Torture and Other Cruel, Inhuman or Degrading 23 Jun 2010
Treatment or Punishment
Convention on the Rights of Persons with Disabilities 05 Jul 2011
Optional Protocol to the Convention on the Rights of the Child on the 05 Jul 2011
Sale of Children, Child Prostitution and Child Pornography
Optional Protocol to the Convention on the Rights of the Child on the 17 Nov 2016
Involvement of Children in Armed Conflict
Source: OHCHR Treaty Body Database

22 | National Commission on the Rights of Child

3.Children's Right to Development
The right to development is a foundational principle that guarantees every child the opportunity
to realise their full potential including physical, emotional, cognitive, social, and cultural
development. Article 6 of the UNCRC obliges States to support the holistic development of
children. This chapter examines the right to development through the lens of education,
emphasising critical elements such as access, quality, learning outcomes, equity, financing, and
the indispensable role of play in nurturing a child's overall growth.

3.1 Access to Education and Participation

Education System and Student Enrolments
Pakistan's education system includes various stages: pre-primary, primary, middle, high, and
higher secondary, collectively forming elementary and secondary education. Beyond these,
post-secondary education includes colleges, technical, and tertiary institutions. Education is
delivered by a variety of providers, including public and private sectors, civil society organisations
(CSOs), religious institutions (madrassas), and non-formal education programmes. In the
2022–23 academic year, the system comprised 349,909 institutions (including universities) and
a teacher workforce of 2.57 million, serving over 56 million students.26

Enrolment by Gender (%) in Pakistan (PES 2022-23)

Total Boys (%) Girls (%)

ICT 634,678 50.49 49.51

Balochistan 1,513,342 59.89 40.11

Khyber 8,970,541 59.67 40.33

Pakhtunkhwa

Punjab 23,750,702 50.71 49.29

Sindh 9,299,480 57.44 42.56

Source: PES 2022-23

26
Pakistan Institute of Education (2024). Pakistan Education Statistics 2022-23. Government of Pakistan.

National Commission on the Rights of Child | 23

The State of Children in Pakistan 2024

Pakistan has a total enrolment of 45.67 million students in 2022-23 from pre-primary to higher
27
education, of which 54% are boys and 46% are girls. While gender parity is nearly maintained at
early education levels (54% boys, 46% girls from pre-primary to middle school), the gap widens
slightly in higher grades—56% boys vs. 44% girls in high school and 53% vs. 47%). The majority of
students, 61%, are enrolled in rural areas. However, enrolment rates are higher in urban areas at
higher secondary and degree college levels. In Pakistan, more than half of all students are
enrolled in the Punjab province.

Table 2: Enrolment by Educational Level in Pakistan (%)

Levels ICT Balochistan KP Punjab Sindh

Total 634,678 1,513,342 8,970,541 23,750,702 9,299,480

Pre-Primary 17.73 17.95 21.29 20.98 21.49
Primary 39.55 52.69 45.68 45.08 45.00
Middle 20.65 15.27 18.14 18.72 16.99
High 10.33 7.45 8.55 9.00 9.91
Higher Secondary 10.68 5.31 4.79 4.74 5.62
Degree College 1.06 1.33 1.54 1.48 1.00
Source: PES 2022-23

Deeni madaris or madrassas provides education to over 3.34 million students from low-income
families, of whom 39% are female. The participation of female teachers in these institutions
28
remains low at 11%. Despite their widespread presence, many madrassas operate outside the
formal education system and mostly focus on religious subjects, with limited integration of
contemporary academic disciplines. This restricts students' access to a broader curriculum and
affects their prospects for higher education and diverse career opportunities.
Enrolment and Staffing in Deeni Madaris

3,346,923

2,048,903

1,298,020

297,394
32,733

Total Students Male Students Female Students Total Teachers Female Teachers

Source: PES 2022-23

27
This includes AJK and GB also
28
Pakistan Institute of Education (2024). Pakistan Education Statistics 2022-23. Government of Pakistan.

24 | National Commission on the Rights of Child

 The State of Children in Pakistan 2024

Recent legislative reforms, notably the Societies Registration (Amendment) Act passed in
December 2024, aim to enhance the oversight and registration of madrassa and promote a more
harmonised curriculum. While these reforms signal a shift toward curricular diversification and
greater accountability, their impact is yet to be seen, given the early stage of implementation.
Ensuring that madrassas can serve as bridges to broader educational and economic
opportunities will require policy coherence and sustained engagement with community leaders
and religious authorities.
Non-Formal Education (NFE) employs flexible models and complements formal education by
targeting out-of-school children (OOSC) and adults through 31,522 centres and enrolling over 1
million learners, 57% of whom are girls. Regional disparities persist in NFE sector, with Sindh and
Balochistan reporting lower participation rates, while Punjab accounts for 57% of the total
enrolments in the country.
However, given the enormous number of 26 million OOSC, the current scale of NFE is not
29
sufficient to close the education gap. Systemic challenges continue to limit the scalability and
effectiveness of NFE. Standardisation remains a key concern, as only 40% of NFE centres align
with provincial curricula, thus restricting opportunities for transition into formal education
streams.30 Funding shortfalls further constrain quality, with NFE receiving only 2.3% of total
education budgets, resulting in a shortage of trained facilitators, learning materials, and
31
assessment tools.
Nonetheless, there are emerging success stories. UNICEF, in collaboration with provincial non-
formal education departments, has developed a comprehensive Accelerated Learning
Programme (ALP), aligned with provincial curricula and incorporating teacher training, textbooks,
assessments, and accreditation mechanisms. As of 2024, over 93,986 children - including
52,378 girls — were enrolled under this initiative, which operates at both primary and middle
levels to provide alternative pathways to learning. Punjab's Taleem Ghar initiative (2020–23)
similarly transitioned 68% of graduates into formal schooling.32 Similarly, the Advancing Quality
Alternative Learning (AQAL) project has also improved foundational learning outcomes by
promoting culturally relevant curricula, enhanced teacher support, and community engagement
33
mechanisms.
Technical and Vocational Education and Training (TVET) institutions offer skill-building
opportunities, with 453,957 students enrolled across 4,406 institutions (1,644 public and 2,762
34
private), of whom 33% are female. TVET is ideally suited for older children and youth who cannot
be mainstreamed into formal schooling, providing them with practical skills and training that
enable decent earning opportunities and better integration into the workforce. Despite its
potential, Pakistan's TVET sector struggles with limited access for OOSC, outdated curricula,
weak industry ties, gender gaps, underfunding, and societal perceptions that undervalue
35
vocational education.

29
Pakistan Institute of Education (2024). Pakistan Education Statistics 2022-23. Government of Pakistan.
30
Pakistan Institute of Education. (2024). Non-formal education quality assessment report. Government of Pakistan.
https://www.pie.gov.pk/reports
31
Centre for Peace & Development Initiatives. (2023). Education budget analysis: Non-formal education in Pakistan (Report No. 17).
https://www.cpdi-pakistan.org
32
UNICEF Pakistan. (2023). Taleem Ghar initiative: Transition outcomes in Punjab [Case study]. https://www.unicef.org/pakistan/reports
33
Japan International Cooperation Agency. (2024). Joint Mid-term Review Report for the Advancing Quality Alternative Learning Project
Phase 2 (AQAL2) in Islamic Republic of Pakistan. https://openjicareport.jica.go.jp/pdf/1000051753.pdf
34
Pakistan Institute of Education (2024). Pakistan Education Statistics 2022-23. Government of Pakistan.
35
Khan, A., & Ali, M. (2023). Who demands technical and vocational education in Pakistan? A socio-economic analysis. Pakistan Journal of
Social Sciences, 43(2), 251–270.

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The State of Children in Pakistan 2024

Public and Private Schools

Pakistan's education system is witnessing a steady decline in the share of public sector
institutions, raising concerns about the state's diminishing role in ensuring universal education.
The number of public institutions has dropped from 56% in 2021-22 to 53% in 2022-23, while the
36
private sector has expanded to accommodate nearly half (46%) of student enrolments. The
teaching workforce is now predominantly concentrated in private institutions (61%), further
indicating a shift towards private education.

Table 3: Percentage of Institutions, Enrolment, and Teachers by Sector

2021-22 2022-23
Category
Public Private Public Private
Teachers 42 58 39 61
Enrolment 54 46 54 46
Institutions 56 44 53 47
Source: PES 2022-23

Public schools remain overwhelmingly focused on primary education (77%), with a sharp decline
in availability at the middle (11%), high (10%), and higher secondary (2%) levels. This restricts
pathways for students seeking higher education in government schools, leaving many with no
choice but to turn to private institutions. While the private sector has stepped in to fill these gaps,
particularly in urban areas, its rapid expansion raises concerns about affordability, equity, and
quality control. Many low-cost private schools operate with untrained teachers, inadequate
infrastructure, and weak regulation, making the assumption of consistently superior education
questionable. Public-Private Partnerships (PPPs) have emerged as a viable strategy adopted by
various provinces to expand educational access and improve quality; however, their long-term
sustainability remains a concern.
Intake and Enrolment Indicators in Pakistan
The Gross Intake Ratio (GIR), Gross Enrolment Ratio (GER), and Net Enrolment Ratio (NER)
highlight major challenges in access to education in Pakistan. The GIR for primary education is
91% (97% for males and 84% for females), reflects gender disparities that persist throughout the
education system.37 Progression and retention remain problematic, with only 68% of students
reaching the last grade of primary and 49% completing middle school. GERs decline from 78% at
38
the primary level to 22% at higher secondary, while NERs mirror this trend. At the primary level,
the NER is 64.6%, improving slightly to 71.5% at middle school but dropping sharply to 58.7% in
high school and 40.9% at higher secondary.

36
Pakistan Institute of Education (2024). Pakistan Education Statistics 2022-23. Government of Pakistan.
37
Pakistan Institute of Education (2024). Pakistan Education Statistics 2022-23. Government of Pakistan.
38
Pakistan Institute of Education (2024). Pakistan Education Statistics 2022-23. Government of Pakistan.

26 | National Commission on the Rights of Child

 The State of Children in Pakistan 2024

Table 4: Gross Enrolment Ratio (GER) % - 2022-23

Level Total Male Female

Pre-Primary 76.30 82.50 69.80

Primary Classes: 1-5 77.90 83.10 72.30
Middle Classes: 6-8 53.70 55.90 51.30
High Classes: 9-10 42.80 45.00 40.50
Higher Secondary Classes: 11-12 22.00 22.40 21.60

Source: PES 2022-23

Table 5: Net Enrolment Ratio (NER) % - 2022-23

Classes Total Male Female

Primary Classes: 1-5 64.60 67.90 61.20

Middle Classes: 6-8 71.50 76.70 66.00
High Classes: 9-10 58.70 59.80 57.50
Higher Secondary Classes: 11-12 40.90 43.40 38.20
Source: PES 2022-23

Provincial trends reveal disparities in access and retention. The ICT consistently outperforms
other regions, with the highest GIR (137% at primary) and GER (74% at higher secondary).39 Punjab
also exceeds the national average across most indicators. Conversely, Balochistan faces serious
challenges, with the lowest GIR (43%) at primary level and GER (12%) at higher secondary level.
The gender gap is most pronounced in Balochistan and Sindh, where female enrolment lags
behind male enrolment at all levels. These disparities reflects structural inequities beyond
population distribution. ICT and Punjab's relative advantage stems from higher urbanisation,
better road connectivity to schools and historically prioritised education spending.
Pakistan has a national average of 63% overage children in primary school and 65% in middle
40
school. It means delayed school entry or grade repetition, and requires attention from education
planners, as high rates of overage children can impact learning outcomes and academic
achievement. Balochistan reports the highest percentages (71% in primary and 81% in middle
school) overage children, while ICT has the lowest (55% in primary and 52% in middle school).
School Attendance Rates
School attendance rates vary among children aged 5-17 across provinces. In Punjab, 80.7% boys
and 77.7% girls attend schools, although a notable decline in attendance is observed between
41
ages 11 and 12. The primary reason cited for non-attendance is lack of interest, particularly
among older children. Similarly, in KP, approximately 79.3% boys and 60.6% girls attend school,
with attendance peaking at age 9 and declining thereafter.42 Economic constraints, such as

39
Pakistan Institute of Education (2024). Pakistan Education Statistics 2022-23. Government of Pakistan.
40
Pakistan Institute of Education (2024). Pakistan Education Statistics 2022-23. Government of Pakistan.
41
Government of the Punjab. (Oct 2022). Punjab Child Labour Survey 2019–2020: Key Findings Report. Labour & Human Resource
Department.
42
Directorate of Labour, Government of Khyber Pakhtunkhwa. (January 2024). Khyber Pakhtunkhwa Child Labour Survey Report 2022.

National Commission on the Rights of Child | 27

The State of Children in Pakistan 2024

inability to afford schooling and lack of available facilities, contribute to non-attendance,

especially among older children.
Effective Transition Rates (ETR)
The Effective Transition Rate (ETR) highlights students' ability to progress between educational
levels, providing insights into access, retention, and equity. Nationally, the data reflects relatively
steady progression, with a strong transition from middle to high school (92%) compared to
primary to middle (83%).43 While gender disparities are minimal overall, they do fluctuate at
specific levels, with females slightly outpacing males in primary-to-middle transitions but falling
behind in middle-to-high transitions. The moderate survival rate to Grade 5 highlights the need to
strengthen retention efforts at the foundational levels of education.
Effective Transition Rates in Pakistan

100%

75%

50%

25%

0%
Primary to Middle Middle to High Survival Rate
Transition Transition to Grade-5
National Average Male Female
Source: PES 2022-23

Provincial trends highlight deep inequalities in education progression and student retention
across Pakistan. While ICT leads with a 100% transition rate from primary to middle school and a
97% survival rate to Grade 5, such high retention levels remain an exception rather than the norm.
Sindh shows some positive outcomes, particularly in middle-to-high school transitions and
female survival rates, but the situation is far more alarming in Balochistan, which records the
lowest figures across all metrics. The transition rate from primary to middle school stands at just
72-75%, transition to high school at 84%, and survival to Grade 5 at a critically low 52%.44
A closer look at gender disparities reveals even deeper challenges. The high dropout rates
between primary and middle school point to structural deficiencies, primarily the unavailability of
middle and secondary schools in the public sector. According to PES 2022–23, primary schools
account for nearly 66% of all public schools, while middle and high schools together represent
less than 30%. The wide gap between the number of primary and post-primary institutions forces
students to travel long distances, discouraging many, especially girls, from continuing their
education. This longstanding issue has been repeatedly documented in education research,
reinforcing that access to schools beyond the primary level remains a major factor in low
retention and persistent gender inequalities.

43
Pakistan Institute of Education (2024). Pakistan Education Statistics 2022-23. Government of Pakistan.
44
Pakistan Institute of Education (2024). Pakistan Education Statistics 2022-23. Government of Pakistan.

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 The State of Children in Pakistan 2024

Once children drop out, re-entry into the education system is rarely facilitated, making dropout
effectively permanent for both boys and girls. In rural areas, girls often face heightened socio-
cultural constraints and the pressures of early marriage or household responsibilities, while boys
are typically absorbed into agricultural labour or informal work to support household income. In
both cases, the opportunity cost of returning to school increases over time, and without
structured reintegration frameworks or second-chance education models, early dropout
frequently marks the end of formal learning opportunities.
Out-of-School Children
Out-of-School Children (OOSC) is a serious challenge for Pakistan's education system, with
26.089 million children aged 5-16 years currently out of school.45 This represents a staggering
38% of the total school-age population. The drop-outs among girls (52%) are higher than boys.
ASER 2023 reveals that 33% of the poorest girls in rural areas are out of school, compared to 19%
46
of the richest girls. It highlights that poverty disproportionately restricts educational access for
girls. While boys are also affected, the impact is significantly higher on girls.

Out-of-School Children in Pakistan by Education Level

35% 28% 41% 59%

Primary Level Middle Level High Level Higher Secondary Level

Source: PES 2022-23

Among the provinces, Punjab has the highest absolute number of OOSC, with 10.96 million
children OOSC and an out-of-school rate (OOSR) of 32%. Sindh follows with 7.63 million OOSC
and a higher OOSR of 47.5%. While KP accounts for 3.65 million OOSC, and a relatively lower
OOSR of 29.8%, Balochistan, despite having 3.13 million OOSC, exhibits a significantly higher
proportion, with an OOSR of 69.1%. In contrast, the ICT has only 78,000 OOSC, corresponding to
an OOSR of 13%.
A comparison of Census 2023 and PES 2022–23 data shows minor differences in the total
number of OOSC nationally, but provincial discrepancies are notable, with KP showing the largest
gap (4.92 million OOSC in the Census vs. 3.64 million in PES) and Punjab reporting 9.6 million in
the Census, 1.36 million fewer than PES 2022-23.
Never Attended Schools
The Census 2023 shows that out of the total OOSC in Pakistan, 79% children (36% boys, 43% girls)
aged 5–16 years have never attended school. This highlights a critical problem: while dropout
rates are already very high at various levels.47

45
ibid.
46
Idara-e-Taleem-o-Aagahi (ITA). (2024). Annual Status of Education Report: ASER Pakistan 2023. Lahore
47
Census 2023 data reports 25,373,350 OOSC in Pakistan, comprising 11,964,533 boys, 13,407,069 girls, and 1,402 transgender children.

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The State of Children in Pakistan 2024

Table 6: Never Attended Schools (5-16 Years)

Region Total Male Female Transgender

Pakistan 20,033,448 9,141,561 10,890,485 1,402

ICT 40,477 19,944 20,531 2
Balochistan 2,674,108 1,269,979 1,403,960 169
KP 4,259,321 1,686,502 2,572,716 103
Punjab 6,443,194 3,056,948 3,385,403 843
Sindh 6,616,348 3,108,188 3,507,875 285
Source: Census 2023
The absence of a systematic mechanism to report and track children who drop out hinders timely
interventions, such as retention strategies through case management or addressing the
underlying causes of dropouts. The fact that 79% of OOSC aged 5–16 have never attended
school underscores deep-rooted structural and socio-cultural barriers to educational access.
Poverty is a critical driver—according to the Pakistan Social and Living Standards Measurement
Survey, 68% of never-enrolled children belong to households in the bottom wealth quintile,
where even 'free' education involves prohibitive hidden costs such as uniforms and
transportation.48 The perceived quality and relevance of education also significantly influence
enrolment decisions; when families believe that schooling will translate into better economic
opportunities, they are more likely to prioritise education. Cultural norms further constrain
49
access; for instance, 41% of parents in KP's tribal districts view girls' education as 'non-essential'.
Governance failures compound these issues: in Sindh, only 12% of villages have functional school
50
management committees to promote and monitor enrolment. To overcome this challenge,
targeted strategies are needed to ensure initial access to schooling, especially for marginalised
population groups.
School Closures
Prolonged school closures caused by floods, smog, heatwaves, and security challenges have
deepened learning losses across the country (See Chapter "Children's Right to Survival": Climate
Change and Children and Children's Right to Protection: IDPs for further discussion). The impact
of such disruptions is twofold: first, learning losses accumulate over time as students face
difficulties covering new content within compressed timelines. Second, these closures deepen
educational inequalities, as students from privileged backgrounds benefit from access to
alternative learning resources, while marginalised groups are left further behind.51 Existing school
infrastructure and emergency response systems remain critically inadequate to address these
challenges, exposing children to both immediate disruptions and long-term educational losses.
To address these challenges, it is critical to strengthen existing distance learning programmes by
leveraging available technologies across the spectrum, expanding outreach to girls and
vulnerable children from low-income and rural households with limited access to digital tools, and
developing context-specific content tailored to diverse platforms, modalities, subjects, and grade
levels.
48
Pakistan Bureau of Statistics. (2023). Pakistan social and living standards measurement survey (PSLM) 2022-23: Provincial report.
Government of Pakistan. https://www.pbs.gov.pk
49
Human Rights Commission of Pakistan. (2024). State of girls' education in Khyber Pakhtunkhwa's tribal districts. https://www.hrcp-
web.org
50
Government of Sindh. (2022). Sindh education sector plan 2021-2025: Implementation review. https://www.sindheducation.gov.pk
51
UNICEF (2020). Situation Analysis Update: Children in Pakistan.

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 The State of Children in Pakistan 2024

3.2 Learning Environment

A conducive learning environment is required for quality education and improving student
retention. Schools that offer safe, inclusive, and well-resourced environments promote greater
student engagement, enhanced learning outcomes, and improved overall well-being. Such
settings encourage consistent attendance and contribute to reducing dropout rates.
Pupil-Teacher and Teacher-School Ratios
Pakistan's average pupil-teacher ratio (PTR) of 32 students per teacher reflects challenges in
maintaining manageable class sizes.52 Punjab faces the highest strain at the primary level, with a
pupil-teacher ratio (PTR) of 42, while Sindh struggles at the higher secondary level with a PTR of
40. In contrast, KP demonstrates more favourable PTRs, especially at the middle school level. The
teacher-school ratio further highlights inequities, with the ICT averaging 13 teachers per school
compared to only three in Balochistan. These disparities reveal acute shortages in under-
resourced provinces, notably Balochistan, where teacher recruitment and distribution require
urgent attention.

Table 7: Pupil Teacher Ratio

Total Primary Middle High Higher
Secondary
Pakistan 32 38 24 28 31
ICT 33 29 31 34 40
Balochistan 21 26 18 20 22
KP 30 38 13 21 23
Punjab 36 42 30 33 37
Sindh 32 36 22 25 40
Source: PES 2022-23

The gender distribution of teachers across education levels in Pakistan shows a strong
predominance of female teachers, especially at higher education levels. At the national level,
female teachers constitute 54% of the workforce at the primary level, rising to 74% at the middle
53
school level, 65% at the high school level, and 54% at the higher secondary level. However,
notable provincial disparities exist. In Balochistan and KP, male teachers continue to constitute
the majority at the primary and middle levels, reflecting persistent gender gaps in the teaching
workforce in these regions.

52
Pakistan Institute of Education (2024). Pakistan Education Statistics 2022-23. Government of Pakistan
53
Pakistan Institute of Education (2024). Girls' Education in Pakistan: STATISTICS & TRENDS FOR 2022-23. Islamabad

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The State of Children in Pakistan 2024

Table 8: Female Teachers in Pakistan (Pre-Primary to Higher Secondary Level)

Teachers Pakistan ICT Balochistan KP Punjab Sindh

Total Teachers 1,805,166 26,768 63,790 330,999 1,000,745 382,864

Total Female (%) 63.86 84.04 41.7 43.42 73.46 58.78
Pre-Primary (%) 97.46 96.43 88.5 98.56 97.91 97.88
Primary (%) 54 93.76 36.69 39.8 71.85 37.2
Middle (%) 74 91.04 45.27 51.53 80.59 61.74
High (%) 65 85.3 40.87 43.59 69.56 70.02
Higher Secondary (%) 54 71.27 53.11 42.14 62.26 55.89
Source: PES 2022-23

Availability to Basic Infrastructure

The availability of adequate basic infrastructure in schools is a serious issue in Pakistan, mainly at
the primary level. Nationally, only 62% of primary schools have access to electricity, with Sindh
(27%) and Balochistan (15%) showing alarmingly inadequate facilities.54 In comparison, higher
secondary schools fare much better, with 95% coverage, reflecting a prioritisation of resources
for advanced education levels. Access to clean drinking water is similarly inequitable, with only
23% of primary schools in Sindh and Balochistan providing this essential facility. Toilet availability
55
is also lacking, with 74% of primary schools equipped nationwide, but only 40% in Balochistan.
These deficits directly impact student attendance and retention, particularly for girls, who are
disproportionately affected by the absence of safe and hygienic facilities.

Table 9: Availability of Basic Facilities in Public School (%) 2022-23

Level Electricity Drinking Water Toilet for Students Boundary Wall

Primary 62 72 74 76
Middle 79 83 89 89
High 93 95 97 94
Higher Secondary 95 96 98 96
Total 67 76 78 79
Source: PES 2022-23

The deteriorating state of school infrastructure across Pakistan emerged as a critical concern in
56
2024, revealing systemic neglect. Reports from Swat, Mansehra, and Shangla documented
students forced to study in makeshift spaces - including rented shops, open-air settings, and
structurally compromised buildings - exposing them to extreme weather conditions and
fundamentally compromising educational quality. This crisis extends to urban centres, where
hundreds of public secondary schools in Karachi and Punjab lack functional computer

54
Pakistan Institute of Education (2024). Pakistan Education Statistics 2022-23. Government of Pakistan
55
Pakistan Institute of Education (2024). Pakistan Education Statistics 2022-23. Government of Pakistan
56
Education – the state of children in Pakistan. (n.d.) https://stateofchildren.com/category/child-rights/education-child-rights/

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 The State of Children in Pakistan 2024

laboratories. Particularly alarming are cases like Rahim Yar Khan, where hazardous school
buildings remained unaddressed for months despite official safety warnings.
Beyond basic amenities, schools urgently require climate-resilient infrastructure to withstand
disasters. Global models such as UNICEF's Climate-Smart Schools initiative provide replicable
blueprints for Pakistan, offering cost-effective and locally adaptable solutions. Solar panels could
guarantee uninterrupted power for classroom cooling and digital learning during outages – a
critical upgrade given schools' frequent load-shedding challenges.
The Punjab Child Labour Survey 2019–20 and the Khyber Pakhtunkhwa Child Labour Survey
2022 identified transportation barriers as a major factor contributing to school attrition,
particularly among rural secondary-level students. Long travel distances often force adolescents
to discontinue their education, with girls disproportionately affected due to parental safety
concerns and cultural norms that limit their mobility.
The issue of ghost teachers—educators who draw salaries without fulfilling their
duties—continues to undermine the education system, with cases reported in Sindh and
57
Balochistan in 2024. This practice diverts critical resources from already underfunded schools,
exacerbating existing challenges. Such corruption transcends financial damage, eroding public
confidence in education. It thrives due to politicised hiring, flawed biometric controls, and no legal
framework for wage recovery. Additionally, the lack of timely availability of textbooks, reported in
KP and Sindh in 2024, further hampers the quality of education.58 Moreover, the persistent
prevalence of corporal punishment in schools remains a significant barrier to creating a safe and
supportive learning environment. Addressing these interconnected systemic failures remains
critical for meaningful education reform in Pakistan.

3.3 Learning Outcomes

Learning outcomes refer to the essential knowledge, skills, and abilities that students are
expected to acquire at specific educational levels. They measure the effectiveness of education
systems, guide curriculum development, and inform policies to improve student performance,
retention, and long-term socio-economic opportunities.
Table 10: Class 5 Learning Levels by Province (%) (Rural)
Can Read Sentences Can Read Story in Can Do 2-Digit
Province
in English Urdu/Sindhi/Pashto Division
Balochistan 37 46 26
KP 48 44 49
Punjab 67 65 61
Sindh 22 39 27
Source: ASER 2023

Pakistan is facing a 'learning crisis,' as highlighted by the ASER 2023 report, which reveals
persistent challenges in foundational literacy and numeracy among children aged 5-16 in rural
areas. Nationally, 50% of Grade 5 students can read a story in Urdu or their local language,
showing modest improvement since 2014 (46.4%) but a significant decline from pre-pandemic
levels (59% in 2019). Similarly, 46% of Grade 5 students can perform two-digit division, reflecting a
57
Education – the state of children in Pakistan. (n.d.) https://stateofchildren.com/category/child-rights/education-child-rights/
58
Education – the state of children in Pakistan. (n.d.) https://stateofchildren.com/category/child-rights/education-child-rights/

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The State of Children in Pakistan 2024

drop from 57% in 2019. These declines illustrate the compounded impact of COVID-19
disruptions, systemic inequities, and climate-related challenges. Boys outperform girls across all
foundational competencies, and urban students demonstrate better outcomes than their rural
counterparts.
Punjab leads in learning outcomes, with 65% of Grade 5 students able to read a story in Urdu and
61% able to solve two-digit division problems. KP shows mixed results, with 44% able to read and
49% able to perform two-digit division. In Balochistan, 46% can read a story, but the province
records the weakest outcomes in two-digit division tasks, with only 26% able to solve basic
arithmetic problems. Sindh, despite showing recovery in enrolment, remains behind in learning,
with only 39% of children able to read a story and 27% able to perform two-digit division.
The foundational learning challenges in Pakistan are deeply rooted in systemic gaps. ASER 2023
reveals persistent inconsistencies in structured teacher training programmes, particularly in rural
schools, where outdated pedagogical methods continue to dominate. Overcrowded classrooms
and a shortage of learning materials further undermine instructional quality. Additionally, a
misalignment between curriculum content and student learning levels encourages rote
memorisation over meaningful learning, perpetuating poor outcomes across the system.
In a regional context, Pakistan lags behind neighbouring countries in foundational literacy and
numeracy. The World Bank's Learning Poverty indicator reveals that 77% of 10-year-olds in
Pakistan cannot read and understand a simple story, compared to 58% in India and 46% in Sri
Lanka. This highlights the urgency of investing in evidence-based solutions and improving
instructional delivery, especially at the primary level.
The DEPIx Report 2023 evaluated Learning performance across Pakistan through four
parameters: Grade 3 Proficiency, Grade 4 Proficiency, Passing Rate in Matric Examinations, and
Adult Literacy Levels. The federal capital, ICT, scored the highest among all regions. Among the
provinces, Punjab performed the best, followed closely by Sindh. In contrast, Balochistan and KP
trailed behind, showing lower performance levels compared to the other regions.

3.4 Inclusion and Equity in Education

Inclusion and equity in education emphasise ensuring that every child, irrespective of their
background, abilities, or circumstances, has access to quality learning opportunities tailored to
their needs. In Pakistan, this is especially critical for marginalised groups, including children with
disabilities, children from minority communities, girls, and transgender children, who face
systemic barriers to participation and achievement in education.
Children with Disabilities
Children with disabilities in Pakistan face barriers to accessing quality education. A key challenge
is the lack of comprehensive data on children with disabilities, which is critical for understanding
the scale of their needs and determining the level of support required to address these
challenges effectively. According to a World Bank study, among employed individuals with
disabilities (aged 18 to 65), only 27% have completed primary education, compared to 42% of
59
employed individuals without disabilities. The absence of inclusive infrastructure and
specialised support severely limits educational opportunities for children with disabilities,
perpetuating their marginalisation.

59
The Economist Intelligence Unit Limited, Roman, S., Bartels-Ellis, F., & Upton, P. (2014). Moving from the margins: Mainstreaming persons
with disabilities in Pakistan. https://www.britishcouncil.pk/sites/default/files/moving_from_the_margins_final.pdf

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 The State of Children in Pakistan 2024

The ASER 2023 report provides some important insights into the number and facilities for
60
children with disabilities in Pakistan. At the national level (rural), 11% of surveyed government
schools and 11% of private schools reported having children with disabilities.61

Table 11: Percentage of Schools Enrolling Children with Disabilities by Education Level

Levels Govt. Schools Private Schools

Primary 9 6
Elementary 18 12
Secondary 15 16
Other - 12
Overall 11 11
Source: ASER 2023

The survey reveals that physical accessibility remains inadequate in schools, with only 23% of
government schools and 55% of private schools equipped with ramps, while accessible toilets
are available in 51% of government and 57% of private schools. Critical support services, such as
hearing assistive devices and specialised staff, remain scarce and available in only 21% of private
schools and virtually non-existent in government institutions. Disabilities related to vision and
mobility are the most commonly observed; however, even these cases average fewer than one
child per school, highlighting gaps in identification and inclusion.

Table 12: Facilities for Children with Disabilities in Schools (% Schools)

Facilities in Government Schools Private Schools
Schools Primary Elementary Secondary Overall Primary Elementary Secondary Other Overall

Ramps 19 28 41 23 51 47 57 65 55
Accessible 49 51 64 51 53 62 54 61 57
Toilets
Health and 7 15 25 10 12 12 16 12 12
Nutrition Officer
Other Facilities* 0 0 0 0 18 21 22 22 21
(Special staff, hearing
assistive devices,
Transport)

Source: ASER 2023

Children from Minority Backgrounds

Children from minority backgrounds in Pakistan face challenges in accessing inclusive and
equitable education. Systemic biases in curricula, teaching practices, and institutional attitudes
perpetuate marginalisation. The intersectionality of vulnerabilities faced by minority children
stemming from religion, caste, gender, and geographic location restricts their access to
education. Neither the Pakistan Education Statistics 2022–23 report nor the Census 2023
provide enrolment data or the number of OOSC belonging to a minority group. This lack of
60
Idara-e-Taleem-o-Aagahi (ITA). (2024). Annual Status of Education Report: ASER Pakistan 2023. Lahore
61
The disabilities were assessed using the Washington Group/UNICEF Module on Child Functioning, which examines six areas: visual,
hearing, physical, intellectual, self-care, and communication.

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The State of Children in Pakistan 2024

disaggregated data hinders efforts to understand and address the educational problems of
minority communities.
Different studies reveal that 60% of non-Muslim students report experiencing disrespect or
prejudice in schools, while 72% of parents believe their children are discriminated against due to
their faith.62 Textbooks in public schools and madrassas often portray minorities, including
Hindus, Christians, and Sikhs, in negative terms, fostering prejudice and violating constitutional
principles.63 There is also under-representation of non-Muslims in the teaching workforce. The
Punjab Commission on the Status of Women reveals that literacy rates among women from
64
minority groups lagging 28% behind those of the majority community.
Transgender Children
Transgender children in Pakistan also face challenges in accessing education due to societal
stigma, discrimination, and systemic barriers. A study published in the Journal of Peace,
Development and Communication highlights that approximately 57% of transgender students
have experienced bullying or harassment in educational institutions.65 Despite these adversities,
a substantial majority (96%) believe that their school experiences contribute positively to
achieving their long-term goals. However, concerns persist regarding governmental efforts and
institutional funding, with 65% expressing dissatisfaction with state initiatives and 91% deeming
current financial support inadequate.
A 2021 study by the Centre for Gender and Policy Studies in Pakistan found that only a small
percentage of transgender children are enrolled in schools, and those who do attend often face
66
severe discrimination. According to a 2020 report by the HRCP, many transgender children are
forced to leave school early due to pressure from peers, teachers, and even family members, who
may not accept their gender identity.67 The ASER 2023 revealed that the learning levels of
transgender children aged 3–16 years in rural areas of Pakistan are lower than those of girls and
68
boys.
Effective Transition Rates in Pakistan
59 58
55 54 54 53

38 39
35

Male
Female
Transgender

Urdu (Story) English (Sentence) Math (Division)

Source: ASER 2023
62
Human Rights Commission of Pakistan, & Institute of Development Research and Corresponding Capabilities. (2019). Education and
inequality: Discerning the foundation of citizenry. Human Rights Commission of Pakistan
63
U.S. Commission on International Religious Freedom. (2011). Connecting the dots: Education and religious discrimination in Pakistan.
U.S. Commission on International Religious Freedom.
64
Punjab Commission on the Status of Women. (2024). Social and economic well-being of women in Punjab. Punjab Commission on the
Status of Women
65
Munir, S., Kiran, S. and Ibrahim, S. 2024. Barriers Faced by Transgender Community in Educational Institutions. Journal of Policy
Research. 10, 2 (Jun. 2024), 627–632.
66
Centre for Gender and Policy Studies. (2021). Education access and challenges for transgender children in Pakistan. Islamabad,
Pakistan
67
Human Rights Commission of Pakistan. (2020). State of transgender rights in Pakistan. Lahore, Pakistan
68
Idara-e-Taleem-o-Aagahi (ITA). (2024). Annual Status of Education Report: ASER Pakistan 2023. Lahore

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 The State of Children in Pakistan 2024

In recent years, there has been some progress in addressing the challenges faced by
transgender children, including the establishment of dedicated schools in Punjab. However,
sustained and more comprehensive efforts are required to create fully inclusive and supportive
educational environments that genuinely accommodate and welcome transgender individuals

3.5 Education Financing

Pakistan's expenditure on education remains one of the lowest in the region and globally, with a
declining share of GDP dedicated to the sector. In 2024, the allocation for education has dropped
69 70
to 1.7% of GDP, a sharp decline from 2.1% in 2020. It is lower than the global average of 4.3% and
the South Asian average of 2.9%. This underinvestment highlights a key challenge for the country
in prioritising education funding, impacting overall educational outcomes and sectoral
development.

Percentage Share of Education Budget in Education Budget Allocations (million)

Total Provincial Budget
120,000
12.0
100,000
10.0
80,000
8.0
60,000
6.0
4.0 40,000

2.0 20,000
0.0 0
2021-22 2022-23 2023-24 2024-25 2021-22 2022-23 2023-24 2024-25
Current Budget Development Budget
Source: CPDI- Pakistan

Federal and Provincial Budget Trends

While education budgets have increased in absolute terms at both federal and provincial levels,
their share within overall government spending has consistently declined. For instance, the
federal education budget fell from 1.09% of the total federal budget in 2021-22 to 0.60% in 2024-
71
25. Provincial trends exhibit mixed performance: Sindh maintained a consistent allocation of
20–22% of its total budget for education, while Punjab saw a decline from 4.95% to 3.26% over
the same period. Sindh and Balochistan have allocated a larger share of their development
budgets to primary and secondary education.

69
Centre for Peace and Development Initiatives Pakistan (2024). EVALUATING TRENDS IN EDUCATION BUDGET ALLOCATION IN
PAKISTAN. In BRIEFING PAPER. https://cpdi-pakistan.org/wp-content/uploads/2024/10/Briefing-Paper-Education-Budget-Allocation-in-
Pakistan.pdf
70
Idara-e-Taleem-o-Aagahi (ITA). (2024). Annual Status of Education Report: ASER Pakistan 2023. Lahore
71
Centre for Peace and Development Initiatives Pakistan (2024). EVALUATING TRENDS IN EDUCATION BUDGET ALLOCATION IN
PAKISTAN. In BRIEFING PAPER. https://cpdi-pakistan.org/wp-content/uploads/2024/10/Briefing-Paper-Education-Budget-Allocation-in-
Pakistan.pdf

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The State of Children in Pakistan 2024

Percentage Share of Education Budget in Total Provincial Budget

Balochistan Khyber Pakhtunkhwa
25.0 10.0

20.0 8.0

15.0 6.0

10.0 4.0

5.0 2.0

0.0 0.0
2021-22 2022-23 2023-24 2024-25 2021-22 2022-23 2023-24 2024-25

Punjab Sindh
8.0 25.0

6.0 20.0

15.0
4.0
10.0
2.0
5.0
0.0 0.0
2021-22 2022-23 2023-24 2024-25 2021-22 2022-23 2023-24 2024-25
Current Budget Development Budget
Source: CPDI- Pakistan

Sector-Wise Allocation
A major portion of education budgets is directed towards tertiary education, particularly at the
federal level, where 76% of the current budget and 90% of the development budget are allocated
to this sector. Similar trends are evident in KP, where tertiary education receives 73% of the
72
current budget. This disproportionate allocation limits investment in primary and secondary
education, which are crucial for improving literacy and foundational learning outcomes. In
contrast, Sindh adopts a more balanced approach, allocating 33% of its current budget to
secondary education and 29% to primary and pre-primary education, prioritising foundational
learning infrastructure.
Education Financing Inefficiencies, Inequities and the Need for Reform
Despite absolute increases in funding, the declining share of education within total government
expenditure at both federal and provincial levels reflects a lack of prioritisation of educational
sector. Pakistan needs to spend more and better on education. The country's low allocation is
contributing to high dropout rates, learning poverty, reduced human capital, and stunted
economic growth.
Pakistan's education financing not only suffers from low GDP allocation but also from
inefficiencies in fund utilisation. A significant proportion of funds remain underutilised which has a
direct impact on educational outcomes. The underutilisation of funds has direct consequences

72
Centre for Peace and Development Initiatives Pakistan (2024). EVALUATING TRENDS IN EDUCATION BUDGET ALLOCATION IN
PAKISTAN. In BRIEFING PAPER. https://cpdi-pakistan.org/wp-content/uploads/2024/10/Briefing-Paper-Education-Budget-Allocation-in-
Pakistan.pdf

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 The State of Children in Pakistan 2024

for school infrastructure, learning conditions, and student retention. Many schools, especially in
rural areas, lack basic facilities such as classrooms, toilets, and electricity, contributing to high
dropout rates and poor educational outcomes. A major concern is the high proportion of
recurrent expenditure, estimates indicate that around 70% of the education budget continues to
be allocated to salaries, with approximately 10% directed towards development
expenditures—which often remain unspent. This imbalance restricts investment in essential
infrastructure, teacher training, and learning materials, particularly in rural areas. Financial
leakages, including ghost teachers and bureaucratic inefficiencies, further undermine the
system's effectiveness.
Beyond inefficiencies, Pakistan's education spending is also inequitable, disproportionately
affecting marginalised communities, including low-income families, rural populations, girls,
children with disabilities, and minorities. The combination of low and inefficient spending results
in stark regional disparities in enrolment, progression, and learning outcomes. Pakistan needs to
prioritise equity-driven budgeting, and ensure that disadvantaged regions and populations
receive targeted interventions. Addressing these challenges requires stronger financial
oversight, improved budget execution, and enhanced transparency mechanisms to ensure that
allocated funds are efficiently utilised.

3.6 Legal Framework

The 18th Amendment to the Constitution (2010) devolved education to the provinces, making
them responsible for implementing Article 25-A, which guarantees free and compulsory
education for children aged 5–16. Consequently, ICT and every province enacted its own Right to
Free and Compulsory Education Acts, including ICT (2012), Sindh (2013), Punjab (2014),
Balochistan (2014), and KP (2017). Despite these legal frameworks, enforcement remains
inconsistent and hampered by a lack of effective coordination among the various departments
responsible for education governance. For instance, these laws mandate school attendance for
children, yet there are no robust mechanisms to hold parents, education officials, or local
authorities accountable when children are not admitted or do not attend school.

Education Acts in Pakistan

Balochistan
Balochistan Compulsory
Sindh Education Act, 2014 Punjab
Sindh Right to Free and Punjab Free and
Compulsory Education Compulsory Education
Act, 2013 Act, 2014

ICT KP
Khyber Pakhtunkhwa
Right to Free and
Free Compulsory
Compulsory Education
Primary and Secondary
Act, 2012
Education Act, 2017

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The State of Children in Pakistan 2024

All provincial governments developed Education Sector Plans (ESPs) to comply with Article 25-A
of the Constitution, including the Punjab Education Sector Plan (2019/20–2023/24), Sindh
Education Sector Plan (2019–2024), Khyber Pakhtunkhwa Education Sector Plan
(2020/21–2024/25), and Balochistan Education Sector Plan (2020–2025). These plans focus on
infrastructure development, teacher training, governance reforms, and addressing province-
specific challenges. However, budgetary constraints, inadequate school expansion, and teacher
73
shortages remain major challenges in achieving these plans' objectives. For instance, Punjab
faces 115,000 vacant teaching positions, while flood damage in Sindh and KP has left many
schools without basic facilities.
The Transgender Persons (Protection of Rights) Act, 2018, explicitly prohibits discrimination in
education and mandates equal access to learning opportunities, including vocational training. In
December 2024, Pakistan enacted the Societies Registration (Amendment) Act, 2024, and
introduced new regulations for the registration and oversight of madrassas. While the impact of
this law remains uncertain, many children continue to enrol in madrassas not by choice, but due to
the absence of accessible public schooling options and the government's failure to provide
viable alternatives.
Pakistan imposed an "Education Emergency" in May 2024, recognising the scale of the country's
education crisis. However, the emergency has yet to translate into transformative changes. While
policy commitments exist, systemic barriers remain unaddressed. Without stronger enforcement
of education laws, sustained financial investment, and improved coordination among education
departments, the goal of universal education under Article 25-A remains distant and
unattainable.
Institutional Framework
The institutional framework for education in Pakistan operates under a decentralised system,
with responsibilities divided between federal and provincial authorities. At the federal level, the
Ministry of Federal Education and Professional Training (MoFEPT) oversees national policies,
standards, and international commitments, while the Higher Education Commission (HEC)
regulates higher education institutions, ensuring quality standards, funding, and research
initiatives. Various education-related bodies, such as the Pakistan Institute of Education (PIE) and
the National Curriculum Council (NCC), play a pivotal role in data collection, policy research, and
curriculum development. Following the 18th Amendment, provinces have autonomous control
over primary and secondary education, with each province maintaining its own education
department and policies and managing public schools, including curriculum delivery, teacher
recruitment, and budget allocation. District education offices oversee education delivery at the
grassroots level, addressing issues such as teacher deployment, school infrastructure, and
student enrolment.
The Non-Formal Basic Education (NFBE) framework in Pakistan provides second-chance
education for OOSC through federal, provincial, and private sector institutions. At the federal
level, NFBE is managed by NCHD, BECS, NEF, and FDE, while provinces oversee it through
dedicated Literacy & NFBE Departments or Directorates.

73
National Commission on the Rights of Child (2024). Policy Brief on Free and Compulsory Education

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 The State of Children in Pakistan 2024

Non-Formal Education Landscape in Pakistan

Federal/ICT Punjab Sindh Balochistan KP Private &

Development
Sector

NCHD, BECS, Literacy & Literacy & Literacy & ESEF, ESED NGOs/INGOs
NEF, FDE NFBE NFE NFE
Department Directorate Directorate

Special education operates under a separate institutional structure at both federal and provincial
levels, distinct from mainstream education. At the federal level, the MoFEPT has a Special
Education Wing, which is responsible for formulating policies, developing curricula, and
overseeing programmes for individuals with disabilities. Similarly, each province has its own
Special Education Department or Directorate of Special Education, tasked with policy
implementation, administration, and service delivery for children with disabilities. These
departments function independently from the regular school education departments.
Technical and Vocational Education and Training (TVET) institutions operate at both federal and
provincial levels, managing skills training and workforce development. However, TEVTAs do not
adequately cater to older children (14 years and above who cannot be mainstreamed into formal
education), leaving them at risk of hazardous labour. Expanding TVET and targeting this group
would enhance opportunities for decent work and economic empowerment.

3.7 Children's Right to Play

Article 31 of the UNCRC states that every child has the right to rest, leisure and age-appropriate
play and recreational activities. Play is not just a leisure activity; it is an essential part of learning
and creativity as well as a biological and cognitive necessity and absolutely essential for the
holistic development of children.
Children in Pakistan play in a variety of ways, such as in schools with playgrounds and sports
facilities, in informal neighbourhood games or open fields, and in recreational events during
cultural and religious festivals. Community parks and sports clubs also offer opportunities to play.
Pakistani children and youth spend the least amount of time playing during the school day when
74
compared to other countries in South Asia.
ASER 2023 reports a lack of playgrounds in schools. At the national level in rural areas, only 56%
of government schools and 62.3% of private schools have playgrounds, with disparities across
school types and education levels. For primary schools, only 48% of government schools and
55% of private schools provide playgrounds, while secondary schools fare better with 80.9%
(government) and 71.7% (private).

74
Ali Khayyam, (n.d.). Ensuring Every Child's Right to Play – The State of Children in Pakistan. https://stateofchildren.com/ensuring-every-
childs-right-to-play/

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The State of Children in Pakistan 2024

Table 13: National (Rural)

Playground Availability Govt. Schools (%) Private Schools (%)

Primary 48.0 55.0

Elementary 69.0 63.8
Secondary 80.9 71.7
Overall 56.0 62.3
Source: ASER 2023

Provincial data highlight significant inequities in access to playgrounds. Punjab leads among
government schools, with 83.7% of schools having playgrounds, while Balochistan lags behind at
39.8%. In KP, government schools report 45.6% playground availability, and Sindh shows even
75
lower access. Private schools generally perform better, but access remains constrained in
provinces like Sindh and Balochistan, particularly at the primary level. Where playgrounds exist in
public schools, they are often poorly maintained.

Table 14: Playground Availability in Rural Schools by Sector

Level Government Schools (Rural) % Private Schools (Rural) %

Balochistan KP Punjab Sindh Balochistan KP Punjab Sindh

Primary 33.0 44.4 78.5 49.5 53.9 78.5 56.1 50.0

Elementary 61.3 53.8 84.2 68.0 67.8 84.2 61.2 75.0
Secondary 73.7 63.3 91.8 59.1 73.8 91.8 71.6 65.6
Overall 39.8 45.6 83.7 51.6 61.2 83.7 63.2 64.8
Source: ASER 2023

In urban areas, many private schools, except for elite institutions, operate in buildings or homes
that are unsuitable for offering play areas. A survey conducted by the Children`s Global Network
Pakistan highlights that in many public schools, playtime is often neglected due to the
76
overemphasis on academic performance. In majority of schools, there are no Physical Education
(PE) teachers at the primary school level in Pakistan, despite this being a critical stage for
developing motor skills and healthy habits. At the secondary level, although PE teachers are often
appointed, there is little provision for structured physical education programmes.
For OOSC, the lack of access to parks, public recreational spaces and affordability limits their
opportunities to play. With many children engaged in labour or living in marginalised conditions,
their right to play remains largely ignored. Girls face social and logistical challenges, from
restrictive cultural norms to safety concerns while commuting.
A report by the World Bank in 2017 highlighted that green spaces in Karachi have shrunk due to
urban development between the 2000s and 2010s. while vacant spaces are underutilised or
underdeveloped for recreational purposes and lack recreational facilities for children (e.g.
playgrounds) in particular.77 Many sports fields and parks have been re-purposed for commercial
75
Idara-e-Taleem-o-Aagahi (ITA). (2024). Annual Status of Education Report: ASER Pakistan 2023. Lahore
76
Ali Khayyam, (n.d.). Ensuring Every Child's Right to Play – The State of Children in Pakistan. https://stateofchildren.com/ensuring-every-
childs-right-to-play/
77
Anni Gapihan, Jon Kher Kaw & Jaafar Sadok Friaa (2017), Why enhancing public urban spaces matters for Karachi - World Bank Blogs.

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 The State of Children in Pakistan 2024

use, restricting public access. Islamabad, the capital of Pakistan, has several family-friendly parks
such as Fatima Jinnah Park, Shakarparian National Park and Lake View Park. While these parks
offer recreational opportunities, they have limited accessibility for children and lower-income
families due to transport costs and other socio-economic barriers.
With changing lifestyles restricting physical activity, resulting in poor health outcomes, there is an
urgent need to ensure that children have adequate opportunities to play in different settings. This
must be prioritised by local governments, schools and urban planners as play is essential for
promoting children's physical, mental, and social development.

3.8 Recommendations
Despite the government's declaration of an education emergency in Pakistan in 2024,
subsequent actions have not adequately responded to the urgency of the crisis. To tackle the
country's pressing education challenges effectively, the government must move beyond
symbolic gestures and take substantial, demonstrable measures, supported by swift and
extraordinary actions at both federal and provincial levels. This requires implementing targeted
interventions to bridge critical gaps in access, quality, and equity, including:
Enhance Legal Enforcement
• Ensure that rules under relevant education laws (Free and Compulsory Education Acts) by
provinces are promptly notified and implemented, and penalise schools for non-
compliance and failing to adhere quota to underprivileged children as provided in the law.
• Introduce strong monitoring mechanisms to track compliance with these laws at the
provincial and district levels.
Review and Development of Future Education Sector Plans
• As existing Education Sector Plans in some provinces have concluded, while others are set
to end in 2025, there is an urgent need to assess their impact and develop new strategic
frameworks to guide the future of education in Pakistan. All provincial governments should
undertake a thorough and transparent review of their five-year Education Sector Plans,
assessing key achievements, shortfalls, and systemic challenges.
• Provincial governments must design and implement new, fully costed Education Sector
Plans, incorporating robust accountability mechanisms to track progress. These plans
should prioritise equity, quality, and inclusivity, ensuring that all children—regardless of
socio-economic background, gender, or location—have access to quality education.
Universalise Access to Education
• Provincial governments need to implement targeted enrolment drives for the 26 million
OOSC, with a particular focus on the 20 million children who have never attended school.
• Construct schools in remote and underserved areas, ensuring all children have access to a
nearby learning facility.
• Scale up Accelerated Learning Programmes (ALPs) to reintegrate dropouts and provide
alternative learning pathways.

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The State of Children in Pakistan 2024

Increase Education Financing

• Both federal and provincial government need to work collectively and raise education
spending to at least 4% of GDP, aligning with global and regional standards with
investments in underserved regions such as Balochistan and rural Sindh should be
prioritised.
• Rebalance budget priorities to allocate at least 20-25% of education funds toward
development projects, focusing on infrastructure, teacher training, and learning resources.
The current focus on tertiary education has limited the impact of spending on foundational
education, where literacy and learning outcomes are most critical.
• Increase budgetary allocations for special education to ensure adequate facilities,
assistive devices, and specialised teaching staff.
• Improve the planning, execution, and monitoring of development budgets to reduce
delays and underutilisation.
Improving the Quality of Education
• There is a strong need to invest in continuous professional development for teachers,
ensuring they are equipped with modern pedagogical skills. Establish comprehensive
training programmes to equip teachers with the skills required to address diverse learning
needs, including those of children with disabilities.
• Develop an inclusive curriculum that emphasises critical thinking, creativity, and practical
application of knowledge.
• Provide digital tools and internet connectivity to underserved schools, enabling access to
modern educational resources.
Promote Gender Equality
• Provincial governments should ensure gender-sensitive infrastructure in schools,
including boundary walls, separate toilets, and safe transportation.
• Conduct community outreach to address socio-cultural norms that hinder girls' education,
particularly in rural areas.
• Use gender-disaggregated data to identify and address gaps in enrolment, retention, and
learning outcomes.
Reduce Dropout Rates
• Federal and provincial governments need to create mechanisms to track dropouts, follow-
up with families and identify underlying causes.
• Implement case management systems to support at-risk students, including financial
incentives, counselling, and after-school programmes.
• Provide targeted support to re-enrol dropouts in formal or non-formal education, including
vocational training options.

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Promoting Inclusive and Equitable Education

• Expand educational opportunities for children from minority groups, low-income families,
and those with disabilities by addressing specific barriers.
• Conduct a survey to gather accurate data on OOSC with disabilities and those belonging to
minority groups to support informed policy-making and resource allocation.
• Implement inclusive education policies mandating the integration of children with mild
disabilities into mainstream schools. Ensure schools are equipped with ramps, assistive
devices, and accessible facilities for children with disabilities.
• Integrate multicultural and inclusive content into curricula to foster acceptance and
understanding.
• Set up at least one specialised education complex in every district to provide tailored
services, therapy, and inclusive recreational opportunities.
Special Schemes for Vulnerable Children
• Expand the scope of social protection initiatives, such as conditional cash transfer
programmes linked to school attendance (e.g., Taleemi Wazaif, Waseela Taleem), through
horizontal expansion to cover more beneficiaries across underserved areas and vertical
expansion to include children at the secondary education level. This would incentivise
enrolment and retention for both girls and boys.
• Introduce school meal programmes at the primary level to enhance enrolment, improve
retention, boost learning outcomes, and support the overall well-being of children,
particularly in rural and vulnerable communities.
• Develop targeted TVET programmes for out-of-school adolescents and older children,
equipping them with market-relevant skills and alternative learning pathways.
Reform Public-Private Collaboration
• Federal and provincial government should establish frameworks to monitor fees, teacher
wages, and learning outcomes in private schools to ensure equity and accountability.
• Leverage private sector expertise to manage schools, but with clear oversight to protect
public education goals.
Mitigate Impacts of Climate Change and Disasters
• Provincial governments need to reconstruct schools damaged by floods and other
disasters with climate-resilient designs.
• Provincial governments must mandate climate-resilient construction codes for all new
schools, with priority given to high-risk regions such as flood-prone areas and earthquake-
vulnerable zones.
• Climate adaptation requires cross-sector coordination. Provincial Education Departments
should map schools in climate-vulnerable zones, train staff in emergency response
protocols, and collaborate with the NDMA to develop and implement the Comprehensive
School Safety Framework.

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The State of Children in Pakistan 2024

• Develop contingency plans to ensure education continuity during emergencies, including

temporary learning spaces and digital solutions.
Play and Holistic Development of Children
• All schools should introduce a play policy which requires 30-45 minutes of daily play in
schools.
• Provincial governments should convert available vacant urban land into safe playgrounds
through local government-education department partnerships.

46 | National Commission on the Rights of Child

4. Children's Right to Survival
The right to survival is a foundational aspect of children's rights, recognising their inherent
entitlement to life and the conditions necessary to sustain it. This right obligates states to ensure
that every child has access to basic necessities that safeguard their well-being and enable them
to thrive. Children's survival entails access to quality healthcare, adequate nutrition, clean
drinking water, sanitation, and protection from environmental risks. This chapter explores the
multifaceted dimensions of children's survival in Pakistan, addressing health, nutrition, water,
sanitation, hygiene (WASH), and the interplay between climate change and child well-being.

4.1 Child Survival Indicators

Child mortality rates are essential indicators not only of the children but of the entire nation's
health status. They reflect the efficacy of healthcare systems and highlight deficiencies in the
system and the child survival strategies employed. Reducing child mortality remains a major
challenge for Pakistan given its link with poverty, inequity, inequality, quality of care, social
injustice and food insecurity.78

Table 15: Child Mortality Indicators of Pakistan (per 1,000 live births)

Child Mortality Indicators 1990 2000 2022

Neonatal Mortality Rate (NMR) 64 57 39

Infant Mortality Rate (IMR) 107 64 51
Under-5 Mortality Rate (U5MR) 140 108 61
Source: UNICEF 2024

Neonatal Mortality Rate (NMR)

Pakistan's Neonatal Mortality Rate (NMR) is high at 39 deaths per 1,000 live births,79 accounting for
64% of all under-five deaths. According to MICS findings, Punjab reports the highest NMRs at 3380
followed by Balochistan at 29.81 The high rates are attributed to critical gaps in maternal and
newborn health care, such as limited access to skilled birth attendants, inadequate facilities for
newborn care like incubators and insufficient health infrastructure.
Infant Mortality Rate (IMR)
82
The Infant Mortality Rate (IMR) in Pakistan is 51 deaths per 1,000 live births. This is an indication
that children are exposed to considerable risks in the first year of their lives. Punjab reports the
highest IMR at 49,83 followed by Balochistan with 48 IMR.84 Preventable causes such as infections,
78
UNICEF. (2020). Situation Analysis Update: Children in Pakistan.
79
UNICEF (2024). The State of the World's Children 2024: The Future of Childhood in Changing World. (2024).
80
Punjab MICS 2017-18
81
Balochistan MICS 2019-20
82
UNICEF (2024). The State of the World's Children 2024: The Future of Childhood in Changing World.
83
Punjab MICS 2017-18
84
Balochistan MICS 2019-20

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The State of Children in Pakistan 2024

respiratory diseases, diarrhoea, malnutrition and inadequate immunisation coverage remain key
contributors to the IMR indication the State's failure to provide basic health system support.
Under-5 Mortality Rate (U5MR)
85
Pakistan's under-five mortality rate (U5MR) is 61 deaths per 1,000 live births. In Punjab, the U5MR
is 55,86 followed by Balochistan with 53 U5MR.87 This indicates persistent barriers in accessing
healthcare in rural areas and the ineffectiveness of health programmes especially in the
aforementioned provinces.

Table 16: Mortality Indicators of Provinces (per 1,000 live births)

Neonatal Mortality Infant Mortality Under-5 Mortality
Region
Rate (NMR) Rate (IMR) Rate (U5MR)

Balochistan 29 48 53
KP 23 35 39
Punjab 33 49 55
Sindh 24 39 46
Source: MICS (Balochistan 2019-20, KP 2019, Punjab 2024, Sindh 2018-19)

The analysis of the data also reveals that childhood mortality rates decrease uniformly as the
mother's education increases.88 Also, the U5MR is higher when the interval between births is not
optimal – i.e. when a child is born less than two years after a previous birth, compared to children
born three years after a previous birth. The findings suggest importance of birth planning / family
planning in prevention of mortality rates.

4.2 Childhood Immunisation Coverage

Immunisation is a vital component of child health, shielding children from preventable diseases,
and contributing to reduced mortality and morbidity rates. It remains one of the most fundamental
competencies of public health programmes in Pakistan.
The immunisation coverage in Pakistan reflects progress in protecting children against vaccine-
preventable diseases. Over the course of 30 years from 1990 to 2020, Pakistan more than
doubled its immunisation coverage (an increase of 117.6%).89 During that period the proportion of
fully immunised children aged 12–23 months increased from 35% to 76%. There was no
noteworthy variation by gender in 2020, with 76.6% of female children and 76.2% of male children
90
fully vaccinated.

85
UNICEF (2024). The State of the World's Children 2024: The Future of Childhood in Changing World.
86
Punjab MICS 2017-18
87
Balochistan MICS 2019-20
88
National Institute of Population Studies, Pakistan Demographic and Health Survey (PDHS) 2017–18, NIPS, Islamabad.
89
Mahmud, I., & Kashif, A. (2021). Immunization for Pakistan's healthy future. World Bank Group.
90
Mahmud, I., & Kashif, A. (2021). Immunization for Pakistan's healthy future. World Bank Group.

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 The State of Children in Pakistan 2024

Percentage of fully immunised children (aged 12 to 23 months) in Pakistan

Source: World Bank (2021)

91
The proportion of fully immunised children varied among the four provinces, from 38% in
92
Balochistan to almost 90% in Punjab in 2020. Notable challenges to vaccine service delivery in
Balochistan are difficult terrain and security issues. Sindh demonstrates stable coverage in urban
cities like Karachi, but rural areas lag due to logistical barriers. In KP, districts such as Abbottabad
report over 90% coverage, yet many rural areas remain underserved.93 These challenges stem
from logistical failures, vaccine hesitancy, and weak follow-up mechanisms.
In 2023, coverage for BCG (96%) and the first dose of DTP (94%) indicates good initial uptake,
suggesting effective outreach for early-life immunisations.94 The relatively higher coverage of the
Rotavirus vaccine (90%) demonstrates progress in combating diarrhoeal diseases, a leading
cause of child mortality in Pakistan. Coverage for MCV1 (vaccine used against measels) (84%) and
MCV2 (80%) remains below optimal levels, raising concerns given the persistent threat of
measles outbreaks in vulnerable regions. Coverage declines for subsequent doses, such as
DTP3 and Polio3 (both at 86%), pointing to challenges in retaining children within immunisation
schedules as well as cold chain disruptions, lack of trained personnel, and insufficient community
mobilisation hinder effective vaccine delivery.

Table 17: Vaccines Coverage in Pakistan (%)

Vaccines Coverage

BCG (Tuberculosis) 96
DTP1 (Diphtheria, Tetanus, Pertussis - First Dose) 94
DTP3 (Diphtheria, Tetanus, Pertussis - Third Dose) 86
Polio3 (Polio - Third Dose) 86
MCV1 (Measles-Containing Vaccine - First Dose) 84
MCV2 (F) (Measles-Containing Vaccine - Second Dose) 80
91
To have received all basic vaccinations, a child must receive at least: 1 dose of BCG vaccine, which protects against tuberculosis; 3 doses
of DPT vaccine, which protects against diphtheria, pertussis (whooping cough), and tetanus; 3 doses of polio vaccine; and 1 dose of
measles vaccine
92
Mahmud, I., & Kashif, A. (2021). Immunization for Pakistan's healthy future. World Bank Group.
93
Mahmud, I., & Kashif, A. (2021). Immunization for Pakistan's healthy future. World Bank Group.
94
UNICEF (2024). The State of the World's Children 2024: The Future of Childhood in Changing World

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The State of Children in Pakistan 2024

Vaccines Coverage

HepB3 (Hepatitis B - Third Dose) 86

Hib3 (Haemophilus Influenzae Type B - Third Dose) 86
Rota (Rotavirus Vaccine) 90
PCV3 (Pneumococcal Conjugate Vaccine - Third Dose) 86
Protection at Birth (PAB) (Against Tetanus) 86
Source: UNICEF 2024
The coverage and quality gaps places substantial financial and systemic burdens on families and
the healthcare system. Resources that could be allocated to other critical health services are
diverted by the state to address preventable illnesses, compounding the challenges faced by
95
Pakistan's already strained healthcare infrastructure.

4.3 Malnutrition among Children

Malnutrition among children in Pakistan remain a public health issue, compromising growth,
development, and overall well-being especially among poor and rural households.
Nutritional status of Children Under-five
Children in Pakistan are facing triple burden of malnutrition: over 40% of children under the age of
five are stunted, 17.7% suffer from wasting and over 50% from suffering from micronutrient
deficiencies, while overweight/obesity and diet related non-communicable diseases are on the
rise. Over 22% of newborn babies are born with low birth weight.96 Pakistan is off course from
attaining the nutrition related SDGs targets, and demonstrating inadequate performance on
improving nutrition indicators, compared to other countries in the South Asia region.

Table 18: Malnutritional Indicators of Children Under-five (%)

Indicator Total Boys Girls

Stunting 40.0 40.9 39.4

Wasting 17.7 18.4 17.0
Underweight 29.0 29.3 28.4
Overweight 9.5 9.7 9.2
Source: NNS 2018
The pattern of malnutrition distribution among boys and girls remains the same, with boys being
more affected by all forms of malnutrition than girls. Wasting (low weight-for-height, indicating
acute undernutrition and recent weight loss), stunting (low height-for-age, reflecting chronic
malnutrition and long-term deprivation), and underweight (low weight-for-age, capturing both
acute and chronic malnutrition) are more prevalent among children living in rural areas than their
peers in urban areas. In contrast, being overweight affects all children equally across locations
97
and gender.
95
UNICEF (2024). The State of the World's Children 2024: The Future of Childhood in Changing World
96
Nutrition Wing, Ministry of National Health Services, Regulation and Coordination, United Nations Children's Fund, Aga Khan University,
and UK Aid (2019), National Nutrition Survey 2018, Government of Pakistan
97
Nutrition Wing, Ministry of National Health Services, Regulation and Coordination, United Nations Children's Fund, Aga Khan University,
and UK Aid (2019), National Nutrition Survey 2018, Government of Pakistan.

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 The State of Children in Pakistan 2024

Among provinces, Sindh and Balochistan have the highest rates of stunting, wasting, and
underweight children, which indicate severe nutritional deficiencies and systemic inequities.98
ICT and Punjab figures are comparatively lower but Punjab province still faces challenges, for
example the rising prevalence of overweight children. In KP, the indicators align with national
averages; yet they reveal nutritional disparities, with some districts experiencing more acute
vulnerabilities than others.
Table 19: Provincial/Regional Breakdown of Malnutrition Indicators (%)

Region Stunting Wasting Underweight Overweight

ICT 32.6 12.1 19.2 5.8

Balochistan 46.6 18.9 31.0 16.7
KP 40.0 15.0 23.1 12.9
Punjab 36.4 15.3 23.5 9.9
Sindh 45.5 23.3 41.3 5.2
Source: NNS 2018
The prevalence of childhood wasting among children in Balochistan and Sindh exceeds the
emergency threshold of 15%. Major predictors of wasting in Pakistan include poor maternal
nutrition and inadequate sanitation. The reasons for the high rates of stunting are manifold and
multifaceted. They are related to poor infant and young child feeding practices, low rates of
exclusive breastfeeding, insufficient awareness of good eating and care practices, affordability
issues and the impact of poverty and geographical location' accessibility (urban/rural).99
Micronutrient Deficiencies in Children (6-59 months)
Micronutrient deficiencies are widespread among children, with high prevalence rates of
anaemia, iron deficiency, vitamin A and D deficiencies, and zinc deficiency, especially among
100
children in Balochistan and Sindh. Punjab and KP fare slightly better, but still have worrying
levels of deficiency for anaemia and vitamin D. ICT has the lowest prevalence overall but faces the
problem of vitamin A and vitamin D deficiency.

Table 20: Micronutrient Deficiencies (%)

Region Anaemia Iron Vitamin A Vitamin D Zinc

Deficiency Deficiency Deficiency Deficiency
Pakistan 53.7 28.6 51.5 62.7 18.6
ICT 24.3 16.8 43.3 44.6 9.9
Balochistan 70.5 23.1 58.5 70.9 21.8
KP 60.8 20.3 46.7 77.0 18.6
Punjab 52.1 29.7 49.1 70.7 18.0
Sindh 51.1 32.4 57.8 37.0 19.2
Source: NNS 2018
98
Nutrition Wing, Ministry of National Health Services, Regulation and Coordination, United Nations Children's Fund, Aga Khan University,
and UK Aid (2019), National Nutrition Survey 2018, Government of Pakistan.
99
UNICEF (2020). Situation Analysis Update: Children in Pakistan.
100
Nutrition Wing, Ministry of National Health Services, Regulation and Coordination, United Nations Children's Fund, Aga Khan
University, and UK Aid (2019), National Nutrition Survey 2018, Government of Pakistan.

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The State of Children in Pakistan 2024

In Pakistan, 41.7% of mothers are affected by anaemia, one of the main causes of premature birth,
low birth weight and perinatal mortality.101 About 18.2% of women of reproductive age suffer from
iron deficiency anaemia, which is one of the main causes of anaemia in infants and young
children. This is a little more pronounced in women in rural areas (18.7%) than in urban areas
(17.4%).
Infant and Young Child Feeding Practices (Breastfeeding & Complementary Feeding)
Breastfeeding is vital for a child's survival, providing optimal nutrition, immunity, cognitive
development, emotional bonding, and long-term health benefits according to many research
studies. The World Health Organization (WHO) recommends that children should be exclusively
breastfed for the first six months of their lives, and that age-appropriate complementary and
supplementary feed should be introduced after this time period to prevent malnutrition.
Pakistan's strong culture of breastfeeding is challenged by various factors including the
aggressive and unregulated marketing of breast milk substitutes, where only less than half
(45.8%) of Pakistani babies start breastfeeding within the first hour of birth. Prevalence of the
practice of continued breastfeeding is highest at one year of age (68.4%) and thereafter
decreases to 56.5% at two years of age.102

Table 21: Breastfeeding in Pakistan (%)

Region Within the first Exclusive up to Continued at Continued at

hour of birth 6 months 1 year 2 years
Pakistan 45.8 48.4 68.4 56.5
ICT 91.3 57.6 74.1 55.2
Balochistan 61.1 43.9 69.5 57.3
KP 46.9 60.8 74.5 64.9
Punjab 43.7 44.3 62.9 51.2
Sindh 48.0 52.3 77.5 63.1
Source: NNS 2018

At the provincial/regional level, ICT leads with the highest rates of early initiation of breastfeeding
(91.3%) and exclusive breastfeeding (57.6%), while Punjab has the lowest rates. Sindh and KP lead
103
in continued breastfeeding at one year and two years.
The timely introduction of complementary feeding requires significant improvement in Pakistan
104
overall, especially in ICT (21.9%) and Balochistan (22.3%). Provincial MICS data shows similar
trends, identifying rates of exclusive breastfeeding among infants under 6 months in KP and
Punjab of 57.2% and 42.1%, respectively.
Although Pakistan has laws to promote and protect breastfeeding, gaps in their effective
implementation hinder their enforcement. Among the biggest challenges are inadequate

101
Nutrition Wing, Ministry of National Health Services, Regulation and Coordination, United Nations Children's Fund, Aga Khan University,
and UK Aid (2019), National Nutrition Survey 2018, Government of Pakistan.
102
Nutrition Wing, Ministry of National Health Services, Regulation and Coordination, United Nations Children's Fund, Aga Khan University,
and UK Aid (2019), National Nutrition Survey 2018, Government of Pakistan.
103
Nutrition Wing, Ministry of National Health Services, Regulation and Coordination, United Nations Children's Fund, Aga Khan University,
and UK Aid (2019), National Nutrition Survey 2018, Government of Pakistan.
104
Nutrition Wing, Ministry of National Health Services, Regulation and Coordination, United Nations Children's Fund, Aga Khan University,
and UK Aid (2019), National Nutrition Survey 2018, Government of Pakistan.

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 The State of Children in Pakistan 2024

monitoring and enforcement mechanisms, as provincial Infant Feeding Boards are not functional.
Studies show that violations, such as aggressive marketing of breast milk substitutes and
distribution of promotional materials, continue unabated due to weak monitoring and limited
penalties.105 Effective implementation of existing laws by the respective provinces would have
provided children with the protection necessary to exercise their right to adequate and safe
nutrition.
The quality of complementary foods is assessed on the basis of three indicators: minimum dietary
diversity, minimum meal frequency and minimum acceptable diet.106 Pakistan's performance on all
three indicators is below an acceptable level, lower than other countries in the region and
performance on these three complementary feeding indicators has declined rapidly over time.
Only 14.2% of children aged between 6 and 23 months receive meals that meet minimum
standards for dietary diversity, only 18.2% receive the minimum number of meals per day and
only 3.6% receive a minimum acceptable diet that ensures optimal growth.107
While national and provincial nutrition strategies exist, implementation suffers from limited
intersectoral coordination, inconsistent funding, and lack of localised action plans. Structural
factors contributing to poor nutrition indicators include limited coverage of nutrition services,
inadequate systems for monitoring and evaluation, and delays in the implementation of provincial
multi-sectoral nutrition strategies.108 Most nutrition initiatives in Pakistan have focused on treating
acutely malnourished children, which alleviates the symptoms of malnutrition without addressing
the underlying and basic causes. The nutrition sector receives relatively small, short-term and
109
unpredictable budget allocations and is therefore heavily dependent on donors.
Child Food Poverty and Development
In Pakistan, 38% of young children lives in severe food poverty and 47% in moderate food
poverty.110 This means that those children do not reach the minimum dietary diversity for healthy
growth and development. Child food poverty is harmful for children but is especially detrimental
in early childhood (6-23 months). This is the time where insufficient intake of essential nutrient
111
impact most physical growth, cognitive development and child survival. According to UNICEF,
over 54% of children under 5 years of age are the risk of poor developmental outcome due to
various factors including poor nutrition, inadequate health, protection and limited learning
opportunities.112 Parental engagement, particularly from fathers, is often limited in Pakistan, which
can adversely affect children's early development.

105
Dawn. (2016, July 25). 18 months on, KP govt yet to enforce breastfeeding law. DAWN.COM. https://www.dawn.com/news/1273063
106
World Health Organization. (n.d.). Indicator metadata registry details: Infant and young child feeding. Retrieved Dec 13, 2024, from
https://www.who.int/data/gho/indicator-metadata-registry/imr-details/7047
107
Nutrition Wing, Ministry of National Health Services, Regulation and Coordination, United Nations Children's Fund, Aga Khan University,
and UK Aid (2019), National Nutrition Survey 2018, Government of Pakistan.
108
UNICEF (2020). Situation Analysis Update: Children in Pakistan.
109
UNICEF (2020). Situation Analysis Update: Children in Pakistan.
110
UNICEF (2020). Situation Analysis Update: Children in Pakistan.
111
World Food Programme. (n.d.). Pakistan. https://www.wfp.org/countries/pakistan
112
UNICEF Pakistan. (2024, April 2). More than half of young children in Pakistan are at risk of poor developmental outcomes [Post].
LinkedIn. https://www.linkedin.com/posts/unicef-pakistan_in-pakistan-more-than-half-of-young-children-activity-
7298591773008756736-qgEs/

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4.4 Childhood Diseases

Burden of diseases continue to account for a high proportion of child mortality and morbidity in
Pakistan and put immense pressure on the health system. According to National Institute of
Health (NIH) and Provincial Health Department Punjab, the burden of preventable and infectious
diseases remains alarmingly high.
Province-wise data on suspected cases in Pakistan from 2022 to 2024 shows trends and disease
burdens among children across different regions.
• Measles remains a leading cause of death among children, with survivors often left with
life-long disabilities such as blindness, deafness or brain damage. Measles cases show a
consistent rise in KP and Punjab, with KP recording the highest number in 2024 (15,105
cases).
• Malaria continues to be a major problem in Pakistan, especially in Sindh which reported 2.9
million cases in 2023 and 2.7 million cases in 2024. Considerable amount of malaria cases
were also reported from Balochistan and KP.
• Acute Diarrhoeal Disease (AD), excluding cholera affect children and vulnerable
populations across Pakistan, with a notable rise in the number of suspected cases in
Punjab, Sindh and KP in 2024, highlighting the ongoing challenges related to water
sanitation and hygiene.
• Acute Lower Respiratory Infections (ALRI) in children under five years of age remain a
major cause of morbidity and mortality in Pakistan. Sindh reported over 495,000
suspected cases of ALRI in 2024 alone. The rise in these cases emphasises the need for
improved respiratory care and preventive health measures in the healthcare facilities.
• Tuberculosis (TB) is a serious health issue in Pakistan. More than 545,000 suspected TB
cases have been reported from Sindh in 2024, a sharp increase compared to previous
years.
• While all provinces continue to report cases of dengue fever, the number of dengue cases
in Punjab and Sindh has decreased in 2024 as compared with 2022 and 2023.
• KP has consistently reported the highest number of Acute Flaccid Paralysis (AFP) cases,
indicative of polio and other neurological diseases, with a significant number of suspected
cases recorded in 2024. Continuous efforts in immunisation campaigns and surveillance
are required to control the incidence of AFP.
The number of cases remains relatively low in ICT due to the smaller population and better access
to health services compared to provinces.

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Table 22: Burden of Diseases in Pakistan 2022-24113

Region Year Measles Malaria AD (Non ALRI <

-Cholera) 5 years Dengue AFP HIV/AIDS TB

2022 34 60 13,621 3,777 266 10 3 276

ICT 2023 44 266 18,572 218 449 10 0 615
2024 32 100 16,299 185 238 0 32 402
2022 712 117,346 110,740 24,247 908 37 120 2,086
Balochistan 2023 2,864 349,823 278,474 96,907 507 129 215 5,119
2024 1,642 237,726 297,182 78,536 2,506 106 78 5,550
2022 6,433 278,560 888,422 120,588 9,433 1,147 462 20,496

KP 2023 10,871 239,902 1,074,991 103,126 1,980 1,038 206 22,559

2024 15,105 257,720 1,016,961 75,850 5,172 1,112 245 20,568
2022 1,180 99,646 2,632,131 329,734 9,307
Punjab 2023 1,513 79,957 2,525,374 171,643 5,651
2024 13,790 30,626 1,912,640 81,638 5,543
2022 2,079 583,373 876,552 133,314 7,658 197 272 68,645

Sindh 2023 2,614 2,908,383 2,002,779 525,637 6,069 502 434 428,433
2024 5,567 2,789,543 2,087,720 495,900 5,671 486 294 545,272
Source: NIH, Primary and Secondary Healthcare Department Punjab

Polio
Polio, or poliomyelitis, is a highly infectious viral disease primarily affecting children under five
years of age. Transmitted through contaminated food and water, the virus attacks the nervous
system, sometimes causing irreversible paralysis. Despite global progress in eradication,
Pakistan is one of the few countries where polio remains prevalent.

Table 23: Polio Cases in Pakistan

Region 2020 2021 2022 2023 2024

ICT 0 0 0 0 1
Balochistan 26 1 0 0 27
KP 22 0 20 4 22
Punjab 14 0 0 0 1
Sindh 22 0 0 2 23
Total 84 1 20 6 74
Source: Pakistan Polio Eradication Programme
113
Reporting Period for all provinces except Punjab is 1 Jan 2022 to 10 December 2024. Reporting period for Punjab is 1 Jan 2022 to 20
December 2024.

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The State of Children in Pakistan 2024

Balochistan, Pakistan's largest and least developed province, reported 27 cases in 2024,
followed by Sindh and KP with 23 and 22 cases each. The geography of infection reveals a
widespread vulnerability in the country's immunisation infrastructure.114
The inability to vaccinate every child remains at the core of the problem. Approximately 60 % of
115
the children affected in 2024 had not received a single dose of the oral polio vaccine. The
Independent Monitoring Board revealed in September 2024 that over four million planned
vaccinations were missed in 2024.116 Misinformation and mistrust surrounding Polio vaccines
continue to pose obstacles and hamper eradication efforts. In Sindh over 43,000 cases of
vaccine refusal were reported in a single month. Adding to these challenges is the unrelenting
threats of violence against polio workers. Number of incidents occurred in 2024 where polio
workers and their police escort were targeted both by militants and families resulted in death and
injuries.117

4.5 WASH (Water, Sanitation, and Hygiene)

Access to clean water, sanitation, and hygiene (WASH) is a fundamental determinant of children's
health. Children are particularly vulnerable to the consequences of inadequate WASH services,
which often result in preventable illnesses, stunted growth, and missed educational
opportunities. Pakistan has yet to achieve universal and equitable access to safe and affordable
drinking water, especially in rural areas where improper water treatment practices are
widespread.
Access to Drinking Water
Approximately 91% of Pakistan's population has access to basic drinking water services118 (93%
urban, 89% rural). Another issue is the quality of the water. Only 35% have access to water that is
119
free from bacterial contamination. According to MICS findings, Punjab shows the highest access
to basic drinking water services (95.6%), followed by Sindh (90%) and KP (86.8%). Balochistan
lags behind with 79.8%, and only 51.6% people have access to drinking water in sufficient
quantities.

Table 24: Access to Improved, Basic, and Available Drinking Water by Province (%)

Province Use of improved drinking Use of basic drinking Availability of

water sources water services drinking water
Balochistan 85.6 79.6 51.6
KP 90.5 86.8 77.4
Punjab 99.4 95.6 N/A
Sindh 96.0 90.4 74.3
Source: MICS (Balochistan 2019-20, KP 2019, Punjab 2024, Sindh 2018-19)

114
Polio Cases in Provinces. https://www.endpolio.com.pk/polioin-pakistan/polio-cases-in-provinces
115
Khan, S. D. (2025, January 1). Pakistan's polio problem. DAWN.COM. https://www.dawn.com/news/1882454
116
Khan, S. D. (2025, January 1). Pakistan's polio problem. DAWN.COM. https://www.dawn.com/news/1882454
117
Khan, S. D. (2025, January 1). Pakistan's polio problem. DAWN.COM. https://www.dawn.com/news/1882454
118
UNICEF (2024). The State of the World's Children 2024: The Future of Childhood in Changing World
119
WHO & UNICEF, Joint Monitoring Programme for Water Supply, Sanitation and Hygiene, Estimates on the use of water, sanitation and
hygiene in Pakistan, June 2019.

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Awareness of water use, safety, maintenance and conservation is generally non-existent in

Pakistan and water that appears clean is considered safe. At the institutional level, there is no
accountability mechanism to curb inefficient water use. Key bottlenecks at the household and
community level include limited availability of water and soap for hand washing, which is highly
correlated with poverty. It is not uncommon for people in rural areas to spend a lot of time fetching
water as they have no water supply near their homes. This task is usually undertaken by women
and girls, who often have to walk more than 30 minutes through difficult terrain to fetch water for
120
their households.
Despite improvements in access in some provinces, the persistent disparities in availability,
quality, and equity of water supply, especially in Balochistan and rural areas, highlight a critical
need for targeted investments, community education, and strengthened accountability to ensure
safe and sufficient drinking water for all children.
Sanitation and Open Defecation
Approximately 71% of households have access to basic sanitation services in Pakistan (82%
121
urban, 63% rural). Open defecation remains a serious challenge, affecting an estimated 25
122
million people, primarily in rural areas. Open defecation intensifies contamination risks,
increasing the spread of waterborne pathogens and impacting children's health
disproportionately.

Table 25: Access to Sanitation Facilities by Province (%)

Province Use of improved Use of basic Open

sanitation facilities sanitation services defecation
Balochistan 65.5 62.8 14.6
KP 81.2 75.3 9.5
Punjab 87.3 73.2 6.3
Sindh 65.9 58.8 24
Source: MICS (Balochistan 2019-20, KP 2019, Punjab 2024, Sindh 2018-19)

In provinces, KP leads with 75.3% access to basic sanitation services, while Sindh has the lowest
access to sanitation services (58.8%). Sindh also has the highest rate of open defecation (24%).
Balochistan also shows a concerning rate of open defecation (14.6%). This reflects chronic
underinvestment in rural sanitation and weak implementation of provincial WASH plans.
Most people in Pakistan who do not have access to a toilet live in poor rural households or in
insecure, informal urban settlements, which are the hardest to reach. In poor rural areas, open
defecation is a cultural norm and accepted social behaviour. This not only poses serious health
risks but also constitutes a protection concern. Women and children, in particular, face increased
123
exposure to gender-based violence. Sanitation service inequalities are further exacerbated by
limited investments in hygiene promotion and a lack of climate-resilient sanitation infrastructure,
especially in disaster-prone or flood-affected areas.

120
UNICEF (2020). Situation Analysis Update: Children in Pakistan.
121
UNICEF (2024). The State of the World's Children 2024: The Future of Childhood in Changing World
122
UNICEF. (n.d.). The State of the World's Children: Statistical Tables. Retrieved December 11, 2024, from
https://www.unicef.org/rosa/media/11811/file
123
UNICEF (2020). Situation Analysis Update: Children in Pakistan.

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The State of Children in Pakistan 2024

Hygiene Practices
Poor hygiene practices, such as not washing hands, directly contribute to the spread of infectious
diseases, disproportionately affecting children. According to NNS 2018, 93.4% of women
reported washing hands before eating and around 85.7% of households were observed to have
soap available at the place designated for washing hands. According to MICS data, access to
basic hygiene facilities varies across provinces. Punjab reports the highest access (92.1%), while
Balochistan (69.3%) and Sindh (76.7%) continue to lag behind. These disparities reflect broader
infrastructural and behavioural gaps, especially in rural and under-resourced areas.

Table 26: Handwashing facility with water and soap by Province

Province % with facility

Balochistan 69.3
KP 79.6
Punjab 92.1
Sindh 76.7
Source: MICS (Balochistan 2019-20, KP 2019, Punjab 2017-18124, Sindh 2018-19)

Hygiene challenges are particularly pronounced in schools. According to ASER 2023, 70% of
government primary schools nationwide had functional toilets, while 65% had usable drinking
water. In comparison, 89% of private primary schools had functional toilets and 82% had drinking
water facilities. However, the presence of soap at handwashing stations and menstrual hygiene
management (MHM) facilities remains inconsistent.
The lack of WASH facilities in schools increases the likelihood of disease outbreaks among
school children. This is particularly pronounced for girls, as the lack of safe, separate toilets can
discourage families from sending girls to school. The absence of menstrual hygiene
management (MHM) facilities or information on MHM practices is needed to enhance girls' school
125
enrolment, attendance and retention.

4.6 Disability among Children Aged 24-59 Months

The Washington Group on Disability Statistics determines functional disability in children aged
2–5 years based on six key functional domains (vision, hearing, walking, memory, self-care and
communication). 12.7% of children in Pakistan have a functional disability in one of these six
126
areas. In Pakistan, boys are more likely to have a functional disability related to memory. For all
other types of functional disability, boys and girls are equally affected.

124
Note: The Punjab MICS 2024 Key Findings Report does not include data on handwashing
125
UNICEF (2020). Situation Analysis Update: Children in Pakistan.
126
Nutrition Wing, Ministry of National Health Services, Regulation and Coordination, United Nations Children's Fund, Aga Khan University,
and UK Aid (2019), National Nutrition Survey 2018, Government of Pakistan.

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Table 27: Prevalence of Functional Difficulties Among Children in Pakistan

Functional Difficulty %

Vision 1.2
Hearing 1.5
Walking 2.6
Memory 4.5
Self-care 8.5
Communication 5.6
Total 12.7
Source: NNS 2018

Children with disabilities, especially those with severe disabilities, have a higher mortality risk
than their peers without disabilities. Early detection and intervention are important to improve the
health and well-being of children with disabilities in Pakistan.

4.7 Adolescent Health and Nutrition

127
Adolescents, comprising 22% of Pakistan's population aged 10-19, face unique physical,
emotional, and social changes during this important developmental stage in their lives.
Addressing adolescent health is important as it directly impacts their transition into healthy and
productive adulthood, influencing their ability to contribute to society.
Adolescent Mortality Rate
The adolescent mortality rate for the year 2022 is 9 deaths per 1,000 adolescents aged 10-19
years.128 The 2.1% annual decline in the adolescent mortality rate from 2010 to 2022 shows
moderate progress in improving adolescent health outcomes in Pakistan. The mortality rate
highlights the gaps in Pakistan's healthcare infrastructure, particularly in the treatment of
conditions such as infectious diseases, malnutrition, complications from early childbearing,
injuries from road accidents and violence. Disparities in rural and urban healthcare and limited
investment in adolescent-specific healthcare programmes continue to hinder progress.
Nutritional Status of Adolescents
More adolescents girls in Pakistan than boys have a normal nutritional status, while boys are more
likely to be underweight and obese compared to girls.129 Overweight and obesity are slightly
higher in urban areas for both boys and girls, with rural boys and girls having marginally lower
obesity rates.

127
Census 2023
128
UNICEF (2024). The State of the World's Children 2024: The Future of Childhood in Changing World.
129
Nutrition Wing, Ministry of National Health Services, Regulation and Coordination, United Nations Children's Fund, Aga Khan University,
and UK Aid (2019), National Nutrition Survey 2018, Government of Pakistan.

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The State of Children in Pakistan 2024

Table 28: Nutritional Status (%)

Indicator Boys Girls

Normal 61.4 71.4

Underweight 21.1 11.8
Overweight 10.2 11.4
Obesity 7.7 5.5
Source: NNS 2018

Among provinces, boys have a higher prevalence of being underweight compared to girls in most
regions, with Sindh showing the highest rates (30.6% for boys). In contrast, overweight is more
common among girls, especially in KP (15.3%). Obesity is generally more prevalent among boys,
with the highest rates observed in Balochistan (17.2%), while Sindh records the lowest obesity
rates for both boys (4.7%) and girls (3.1%).

Table 29: Nutritional Status of Adolescent by Province/Region (%)

Underweight Overweight Obesity
Region
Boys Girls Boys Girls Boys Girls
ICT 20 8.9 8 11.2 6.5 7.3
Balochistan 12.2 12.2 16 13.6 17.2 9.1
KP 13 6.2 14.7 15.3 11.9 8.5
Punjab 18 10.5 10.5 12.1 7.5 5.5
Sindh 30.6 16.6 7.4 7.9 4.7 3.1
Source: NNS 2018

Anaemia affects a substantial proportion of adolescent girls in Pakistan, with more than half
(56.6%) of adolescent girls in Pakistan are anaemic. Adolescent girls in rural areas are more likely
(58.1%) to be anaemic than their counterparts in urban areas (54.2%). Adolescent girls in Pakistan
also face other nutritional deficiencies, including iron deficiency, vitamin D deficiency and vitamin
A deficiency, which are prevalent.

Table 30: Anaemia Among Adolescent Girls (%)

Region Anaemic Adolescent Girls

ICT 48.0
Balochistan 57.3
KP 48.3
Punjab 56.6
Sindh 61.9
Source: NNS 2018

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The unregulated and aggressive marketing of ultra-processed foods (UPFs) and sugar-
sweetened beverages (SSBs) targeting adolescents in Pakistan has been highlighted as a
growing public health concern by UNICEF and WHO.130 Evidence shows that adolescents are
increasingly exposed to persuasive advertising that promotes unhealthy dietary choices,
contributing to rising rates of overweight, obesity, and diet-related non-communicable
131
diseases. Pakistan Adolescent Nutrition Strategy 2020-2025 also recognises the widespread
marketing and easy availability of unhealthy foods as a major barrier to improving adolescent
132
nutrition. In order to protect adolescents' rights to a healthy diet, there is an urgent need for a
robust legal framework in Pakistan that regulates the marketing of UPFs and SSBs to children and
adolescents across all media platforms and ensure clear labelling of food products, and restricts
the sale and promotion of unhealthy foods in and around schools.
Adolescents Sexual and Reproductive Health (SRH)
Many adolescents in Pakistan are at risk of experiencing poor reproductive health, which is
associated with adverse consequences such as early childbearing and parenthood, pregnancy
complications, and maternal death and disability. For instance, about one in five married
133
adolescent women aged 15–19 years in Pakistan have begun childbearing, often without the
support of policies and programmes that would enable them to make informed and voluntary
decisions to protect their health and exercise their reproductive rights.
According to PDHS 2017-18, an estimated 617,000 pregnancies take place among adolescent
women aged 15–19 years in Pakistan each year. Some 36% of these pregnancies are unintended,
meaning that they were wanted later or not at all. More than half (58%) of unintended pregnancies
among these adolescents end in abortion. Additionally, 30% end in birth and 12% result in
miscarriage or stillbirth. One-third (34%) of live births to mother's under age 20 had a low birth
weight compared with one-fifth (21%) of births to mothers age 20-34. Provincial MICS data
highlight childbearing among women aged 20–24 who had a live birth before age 18. It reveals
that early pregnancy rates are higher in rural areas.

Table 31: Child Bearing

Percentage of women age 20-24 years who have had a live birth before age 18

Urban Rural

Balochistan 12 13
KP 10 12
Punjab 11 13
Sindh 10 14
Source: MICS (Balochistan 2019-20, KP 2019, Punjab 2017-18134, Sindh 2018-19)

130
World Health Organization (WHO) & United Nations Children's Fund (UNICEF). (2023). Protecting children from the harmful impact of
food marketing: A toolkit for countries.
131
World Health Organization (WHO) & United Nations Children's Fund (UNICEF). (2023). Protecting children from the harmful impact of
food marketing: A toolkit for countries.
132
United Nations Children's Fund (UNICEF). (2021). Pakistan Adolescent Nutrition Strategy 2020–2025.
https://www.unicef.org/pakistan/media/2846/file/Pakistan%20Adolescent%20Nutrition%20Strategy.pdf
133
National Institute of Population Studies (NIPS) [Pakistan], & ICF. (2019). Pakistan Demographic and Health Survey 2017-18. Islamabad,
Pakistan, and Rockville, Maryland, USA: NIPS and ICF.
134
Note: The Punjab MICS 2024 Key Findings Report does not include data on child rearing practices.

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Access to appropriate contraceptive methods is critical to prevent adolescent pregnancy and its
related consequences, allowing adolescents to transition into adulthood with the ability to plan
their pregnancies and live healthy and productive lives. According to UNICEF, a mere 11% of
adolescents aged 15–19 report making informed decisions about their reproductive health (2017-
2023). This highlights a widespread lack of knowledge and autonomy among young people
regarding their sexual and reproductive rights. Social norms, lack of awareness, and the absence
of adolescent friendly health services contribute to this gap. Also, only 6% of adolescents have
their demand for family planning satisfied using modern contraceptive methods. This low
percentage highlights gaps in the availability, accessibility, and acceptability of contraceptive
services for young people.

Table 32: Family Planning Indicators Among Married Adolescent Girls (15–19 Years) (%)

Region Demand Satisfied Unmet % of Demand for Modern Methods

(Modern Methods) Need of Family Planning Satisfied
Balochistan 16 37 7
KP 30 29 13
Punjab 30 15 7
Sindh 19 21 5
Source: MICS (Balochistan 2019-20, KP 2019, Punjab 2017-18135, Sindh 2018-19)

Despite making up a significant portion of the population, adolescents in Pakistan are

underserved in the public health system. The absence of adolescent-friendly health services in
public facilities means that most adolescents, particularly girls, do not receive preventive care,
SRH information, or mental health support — a critical gap given their growing share of the
population. In Pakistan, only 44% of pregnant adolescents aged 15–19 received the
recommended four antenatal care visits, and 76% of adolescent births were attended by a skilled
birth attendant (2017-2023). Skilled birth attendants are necessary for ensuring safe delivery and
preventing maternal and neonatal complications. Regular antenatal care is critical for monitoring
pregnancy, preventing complications, and ensuring safe delivery. The low percentage indicates a
lack of adolescent-specific maternal healthcare services and barriers such as socio-cultural
constraints and financial limitations.
Mental Health
According to the WHO, around 14% of adolescents aged 10–19 worldwide suffer from mental
136
health problems, with anxiety and depression being the most common disorders. UNICEF also
reports that about one in seven adolescents worldwide is affected by mental disorders. Mental
health is an increasingly pressing issue in Pakistan; however, data remains limited, primarily
because individuals affected by mental health challenges are often unaware of their condition or
their cases go unreported. A study conducted by Ghazal (2022) of 400 high school students aged
15–18 found that 53% of participants exhibited symptoms of anxiety and depression.
MICS findings reveal cases of anxiety and depression among children however causes of anxiety
and depression were not further investigated.

135
Note: The Punjab MICS 2024 Key Findings Report does not include data on contraceptive
136
World Health Organization. (n.d.). Adolescent mental health. Retrieved December 14, 2024, from https://www.who.int/news-room/fact-
sheets/detail/adolescent-mental-health

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Table 33: Mental Health Problems (children aged 5-17) (%)

Region Anxiety Depression

Balochistan 5.2 4.4

KP 7 5.3
Punjab 3.7 2.7
Sindh 4 3.2
137
Source: MICS (Balochistan 2019-20, KP 2019, Punjab 2017-18 , Sindh 2018-19)

The child labour surveys conducted by Punjab and KP show that working children, especially
those in hazardous environments, are more prone to mental health problems compared to their
non-working peers. According to the Punjab Child Labour Survey 2018–2019 and the KP Child
Labour Survey 2022, all children aged 10 to 17 years have reported mental health problems, but
those engaged in child labour and hazardous work have higher rates of mental health problems.

Table 34: Mental Health Issues (Punjab) (%)

Not in child Labour 11

10-14 Years
In child labour 16.20
Adolescents not in hazardous work 16.30
15-17 Years
Adolescents in hazardous work 23.60
Source: Punjab Child Labour Survey 2018-2019

Table 35: Mental Health Issues (KP) (%)

Not in child Labour 16

10-17 Years
In child labour 31.80
Source: KP Child Labour Survey 2022

Suicide is a leading cause of death among adolescents globally, ranking as the third leading
cause for those aged 15–29 (WHO). In Pakistan, 289 suicides among children and adolescents
were reported between 2019 and 2020, with an almost equal gender distribution, particularly in
138
late adolescence, although many cases are likely to go unreported.
Schools can play an important role in promoting wellbeing and preventing and responding to
mental health issues such as violence, bullying, suicide and self-harming behaviour. Addressing
suicide in schools remains taboo due to societal stigma, fear of reputational harm, and
inadequate preparedness, and there is no one single effective strategy to address suicide risk in
139
Pakistan. Some private and charity-run schools have introduced programmes that focus on
140
social-emotional learning, teacher training and counselling services, but, better
implementation and the development of clear strategies are urgently needed to prevent and
address mental health crises, including suicide and self-harm.141
137
Note: The Punjab MICS 2024 Key Findings Report does not include data on mental health
138
Alam, Z. K. (2024, December 23). Suicidal behaviour. DAWN.COM. https://www.dawn.com/news/1880474/suicidal-behaviour
139
Alam, Z. K. (2024, December 23). Suicidal behaviour. DAWN.COM. https://www.dawn.com/news/1880474/suicidal-behaviour
140
Alam, Z. K. (2024, December 23). Suicidal behaviour. DAWN.COM. https://www.dawn.com/news/1880474/suicidal-behaviour
141
Alam, Z. K. (2024, December 23). Suicidal behaviour. DAWN.COM. https://www.dawn.com/news/1880474/suicidal-behaviour

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142
4.8 Resource Allocation for Health
The health budgets of Pakistan's federal and provincial governments for 2024-25 reveal different
priorities that reflect the broader socio-economic and political dynamics of each region. There is
no separately allocated health budget for children in Pakistan.
Federal Budget
The federal government's health budget shows that the overall health budget has increased from
previous years, however, its share of the federal budget for development funds decreased from
2.3% in 2021-22 to 1.7% in 2024-25 whereas the current health budget remained stagnant at
143
0.2%. 77% of the current health budget is allocated to medical equipment, and 52% is allocated
to hospital services. This reflects that the federal government is prioritising infrastructure
expansion.

Table 36: Health Budget 2024-25 (in millions)

Position Federal Sindh Punjab KP Balochistan

Total Health Budget 56,356 321,712 371,806 212,294 77,167

Current Budget- Health (%) 49.99 90.22 73.09 83.46 74.03
Development Budget- Health (%) 50.01 9.78 26.91 16.54 25.97
Source: CPDI

Despite nominal increases in health budgets, lack of child-specific allocations, poor budget
utilisation, and weak coordination between planning and service delivery units remain systemic
constraints. Realisation of allocated funds, especially in Balochistan, is frequently hindered by
administrative delays and low absorption capacity.
Sindh
There has been a major increase in Sindh health budget for 2024-25. The current budget
prioritises public health services, allocating 64% to initiatives such as anti-malaria, anti-
tuberculosis and immunisation programmes. In the development budget, 36% is allocated to
hospital services and 64% to public health services. Budget volatility is a potential challenge in
Sindh, as was evident in 2023-24 when development budget estimates were revised downwards
from PKR 19,739 million to PKR 5,058 million.
Punjab
Punjab's health budgets reflect a steady increase in current allocations, with 76% directed
towards hospital services. In contrast, 96% of the development budget is allocated to public
health services, highlighting a predominantly hospital-centric approach. However, the overall
share of health in Punjab's total budget has declined from 11% in 2021–22 to 8% in 2024–25 in the
current budget. Similarly, the share of the development budget has decreased from 17% to 14%
over the same period, indicating a shift in priorities away from healthcare in the post-pandemic
period.

142
Centre for Peace and Development Initiatives (2024). Trends in Health Budget Allocations in Pakistan.
https://cpdi-pakistan.org/wp-content/uploads/2024/08/Health-Budget-Allocation-Briefing-Paper-compressed.pdf
143
Centre for Peace and Development Initiatives (CPDI). (2024). Health budget allocation briefing paper 2024–25.
https://cpdi-pakistan.org/api/download/v1734190357/Health_Budget_Allocation_Briefing_Paper_compressed_55b9274ebe.pdf

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Khyber Pakhtunkhwa
KP health budgets show some increase in both current and development spending with 64% of
the current budget is allocated to hospital services and 69% of the development budget allocated
to public health initiatives. This dual focus on curative and preventative care highlights a strategic
approach to improving accessibility and healthcare infrastructure.
Balochistan
Balochistan has allocated the entire development budget for 2024-25 for public health services,
reflecting a strong focus on the expansion of health facilities. The current budget has also shown
increase increasing from PKR 285,850 million in 2021-22 to PKR 609,057 million in 2024-25.
However, the share of the health sector in the total provincial budget has remained relatively
stagnant, ranging between 9-10% for the current budget and between 4 and 6% for the
development budget. Balochistan also faces the question of whether it will be able to realise the
budget allocations in full, given the scarcity of resources and administrative challenges in the
past.

4.9 Legal Framework Supporting the Children's Right

to Survival
Articles 25, 35, and 38 of the Constitution of Pakistan, 1973, establish equal protection under the
law and mandate the state to ensure the welfare of mothers and children. At the provincial level,
all provinces and ICT have laws dealing with promotion of breastfeeding and regulate the
marketing of breast milk substitutes, including:
• Protection of Breast-Feeding and Child Nutrition Ordinance, 2002 (Adopted by Punjab
also in 2012 with some amendments)
• Balochistan Protection and Promotion of Breast-Feeding and Child Nutrition Act, 2014
• Khyber Pakhtunkhwa Protection of Breast-Feeding and Child Nutrition Act, 2015
• Sindh Protection and Promotion of Breast-Feeding and Child Nutrition Act, 2023
In 2014, the Government of Punjab enacted the Punjab Reproductive, Maternal, Neonatal, and
Child Health Authority Act, focusing on improving maternal, neonatal, and child health services.
Other provinces have also taken steps to enhance reproductive healthcare: Sindh and
Balochistan in 2019 and KP in 2020, have passed their respective Reproductive Healthcare
Rights Acts.
The Federal government passed the ICT Rights of Persons with Disability Act in 2020. All
provinces have also enacted legislation specifically addressing the rights and empowerment of
persons with disabilities: KP in 2012, Balochistan in 2017, Sindh in 2018, and Punjab in 2022.
Federal and provincial governments have also enacted mental health laws. The federal
government first passed the Mental Health Ordinance in 2001. Post 18th Constitutional
amendment in 2010, Sindh enacted the Mental Health law in 2013, followed by Punjab in 2014, KP
in 2017, and Balochistan in 2019. These laws aim to improve mental healthcare access and quality,
including provisions for community-based care and the establishment of mental health facilities.

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All provinces have enacted health commission laws to set up regulatory bodies. Punjab passed it
in 2010, Sindh in 2013, KP in 2015 and Balochistan in 2019. These commissions are responsible for
monitoring health standards, protecting patients' rights, ensuring quality of services and
144
safeguarding the interests of vulnerable populations, including children.

4.10 Healthcare Infrastructure and Service Delivery

Mechanisms
Pakistan's healthcare system operates within a multi-tiered framework comprising public and
private facilities that cater to the diverse needs of the population. The system is divided into
several levels, with each level providing specialised services.
Primary Healthcare
At the grassroots level, Basic Health Units (BHUs), located primarily in rural areas, serve as the first
point of contact for communities. They provide immunisations, maternal and child health (MCH)
services, and treatment for common illnesses. Rural Health Centres (RHCs) offer a broader range
of services, including minor surgeries and emergency care, and act as referral centres for BHUs in
underserved regions.
Secondary Healthcare
At the secondary level, Tehsil Headquarters Hospitals (THQs) deliver outpatient and inpatient
care, emergency services, and diagnostic support at the sub-district level. District Headquarters
Hospitals (DHQs), situated in district capitals, provide specialised services, including surgery,
paediatrics, and gynaecology, and offer critical support to primary healthcare facilities.
Tertiary Healthcare
Tertiary care facilities, including teaching hospitals in major cities, provide advanced medical
care, such as paediatric surgery, cancer treatment, and other specialised services, catering to
complex healthcare needs.

Table 37: Types of Health Facilities available in Pakistan

Province Primary Level Secondary Level Tertiary Level

Sindh 1,824 253 14

Punjab 2,835 652 22
KP 2,281 381 33
Balochistan 1,089 198 9
ICT 31 3 2
Total 8,060 1,487 80
Source: National Institute of Health (2024)

144
Policy and Law- Health – The State of Children in Pakistan. (n.d.). https://stateofchildren.com/health-in-pakistan/policy-and-law-health/

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Private Sector Contributions

The private sector plays an important role in healthcare delivery, predominantly in urban centres.
Private hospitals and clinics, accounting for a substantial share of healthcare services, provide a
range of care options but are often prohibitively expensive for lower-income populations. Private
sector is poorly regulated, often excludes marginalised children, and contributes to out-of-pocket
expenditure burdens. Numerous non-governmental organisations (NGOs) and charity-run
hospitals offer free or low-cost care, focusing on vulnerable groups, including children. However,
these services are limited in reach and only accessible to a small portion of the population.
Key Challenges
Pakistan faces major challenges in terms of healthcare infrastructure and service delivery
mechanisms. The institutional capacity of the healthcare system is inadequate to effectively
manage the high disease burden. This is compounded by a shortage of staff, inadequate training
of health personnel and a persistent lack of financial resources. The situation is particularly bad in
paediatric care. Although almost half of Pakistan's population is under the age of 18, there are
limited dedicated paediatric wards in every hospital. Moreover, paediatric care is usually only
provided for children up to the age of 12 or 13. After that, they are often treated as adults, without
consideration for their particular physiological and emotional needs. For children with disabilities,
access to appropriate health services is even more difficult and hospital lack specialised facilities,
trained professionals and adaptive equipment. Health services for transgender children are also
virtually non-existent, further marginalising an already vulnerable group.

4.11 Climate Change and Children

The United Nations Framework Convention on Climate Change (UNFCCC) defines “Climate
Change” as a change of climate which is attributed directly or indirectly to human activity that
alters the composition of the global atmosphere and which is in addition to natural climate
variability observed over comparable time periods.145
UNICEF states that children in Pakistan are at an “extremely high risk” of experiencing the impact
146
of climate change. UNICEF 2021 Children's Climate Risk Index (CCRI) ranks Pakistan 14 out of
163 countries, in terms of vulnerability to the adverse effects of climate change.147 The smog in
Punjab, heat waves all across, the north's melting glaciers, and widespread floods illustrate a
country under siege from environmental forces directly have an impact on the lives of children.148
In recent years, Pakistan experienced unprecedented floods in 2022 directly linked to climate
change, affecting 33 million people, half of whom were children. According to GAVI, the floods not
only led to the immediate displacement of millions of people, but also had long-term
consequences: 44% of children suffered from stunted growth due to insufficient nutrition and
inadequate medical care in the aftermath. The floods also had a severe impact on education. The
destruction of 27,000 schools disrupted access for around 2 million children, which led to higher
149
rates of child labour in flood-affected areas according to Save the Children report (2022).

145
UNFCCC.(n.d), Article 1 Definitions.https://unfccc.int/resource/ccsites/zimbab/conven/text/art01.htm
146
UNICEF (2020),Country Office Report,https://www.unicef.org/media/102551/file/Pakistan-2020-COAR.pdf
147
UNICEF (2021) Climate Changed Child,https://www.unicef.org/reports/climate-changed-child
148
Siddiqui, Q. U. A. (2025, January 1). A climate reckoning. DAWN.COM. https://www.dawn.com/news/1882268
149
Digital, S. (n.d.). Pakistan floods 2022 Multi-Sectoral Needs Assessment | Save the Children's Resource Centre. Save the Children's
Resource Centre. https://resourcecentre.savethechildren.net/document/pakistan-floods-2022-multi-sectoral-needs-assesment/

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Pakistan experienced extreme heat-waves in the months of May and June 2024 and
150
temperatures were 4-6°C above the global average. In Punjab, schools were closed as a safety
measure, affecting 52% of the country's total student population in pre-primary, primary and
secondary education.
Constant exposure to air pollutants increases the risk of respiratory diseases among children. For
instance, the release of Nitrogen Oxide (NO2) gas151 from vehicles and from non-renewable
cooking fuels within households is a common cause of asthma among young children in Pakistan.
These pollutants have been linked to prevalence of anaemia in under-five, stunting, infant
mortality and underage deaths (12-59 months) in Pakistan, especially amongst children living in
152
poor socio-economic conditions.
Data released by State of Global Air Report (SOGA) 2021153 states that 68,100 children in Pakistan
die before the age of five years due exposure to air pollution. 98% of children in Pakistan are
exposed to PM2.5 levels that far exceed the regulatory health guidelines. Due to severe smog
conditions in Punjab in 2024, when the air quality index (AQI) in Lahore reached hazardous levels,
exceeding 1,000 in some areas, schools and colleges in 18 districts were closed from November
7-17 Nov 2024. The school closure resulted in a disruption of education for nearly 16 million
children in Punjab.
Legal and Institutional Framework
Pakistan has made some progress in addressing climate change through a framework of policies,
laws, and institutional mechanisms. Constitutional provisions such as Articles 9 and 14 ensure the
right to life and dignity, and the 26th Constitutional Amendment, introduced in October 2024,
added Article 9A, recognising the right to a clean, healthy, and sustainable environment as a
fundamental right. The Pakistan Climate Change Act, 2017, established the Climate Change
Council and Fund to support mitigation and adaptation projects. Provincial environmental
protection acts in Punjab, Sindh, KP, and Balochistan further provide mechanisms for sustainable
development and pollution control. However, these frameworks lack a strong focus on children,
leaving gaps in addressing the specific vulnerabilities and needs of children affected by climate
change. Institutions like the Ministry of Climate Change, the Pakistan Environmental Protection
Agency, and provincial environmental agencies are yet to mainstream child-centred approaches
in their climate actions.

150
Save the Children International | More than half of Pakistan's school age children will be out of school due to extreme heat. (n.d.). Save
the Children International. https://www.savethechildren.net/news/more-half-pakistan-s-school-age-children-will-be-out-school-due-
extreme-heat
151
Junaidi, I. (2024, July 1). Over 68,000 children under five died due to air pollution in 2021: report. DAWN.COM.
https://www.dawn.com/news/1842989
152
Naz S, Page A, Agho KE. Household air pollution from use of cooking fuel and under-five mortality: The role of breastfeeding status and
kitchen location in Pakistan. PLoS One. 2017 Mar 9;12(3):e0173256. doi: 10.1371/journal.pone.0173256. PMID: 28278260; PMCID:
PMC5344381.
153
SOGA (2021), https://www.stateofglobalair.org/resources/report/state-global-air-report-2024

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4.12 Recommendations
Pakistan needs to adopt comprehensive, child-centred, inclusive policies and programmes that
target healthcare care, nutrition and climate resilience, improve governance and address
systemic inefficiencies to protect children and promote healthy lives.
Improving Child Healthcare Services and Expand Immunisation Coverage
• Expand access to skilled birth attendants and neonatal care units, particularly in rural
areas, to reduce neonatal mortality rates.
• Prioritise investments in healthcare infrastructure upgradation to combat preventable
diseases by strengthening mother and child centres, BHUs, and primary healthcare
services like diarrhoea, pneumonia, and malaria. Equip rural health centres with essential
medicines, diagnostic tools, and ensure availability of trained personnel.
• Increasing the number of paediatric wards, numbers of beds and specialised units within
general hospitals.
• Strengthen immunisation programmes to address drop-off rates for vaccines like DTP3
and Polio3 and expand coverage to children up to 5 years of age as per the National
Immunization Policy. There is a strong need to improve cold chain infrastructure and
conduct community mobilisation campaigns to combat vaccine hesitancy.
• Develop and scale up satellite healthcare centres and mobile clinics to extend cost-
effective and accessible healthcare.
Addressing Malnutrition and Micronutrient Deficiencies
• Scale up programmes addressing the protracted malnutrition, such as the prevention and
management of wasting, stunting reduction, school health and nutrition initiatives, and
support community-based health, nutrition and care solutions.
• Scale up the maternal and adolescent nutrition programmes targeting underweight and
anaemic women, with a focus on improving awareness on nutritional, ensuring access to
health safe and affordable diet and services through social protection and food systems
actions, as well as addressing the deep rooted gender and sociocultural issues.
• Conduct awareness campaigns and community engagement on optimal infant and young
child feeding practices, involving local influencers to build trust and improve participation.
• Implement the costed multisectoral national nutrition action plan, and the ECD framework
approved by the MoNHR&C and MoPD&SI
• Implementation of nurturing care and early stimulation for survival through parenting
programmes.
• Sustaining the Benazir Nashunoma Programme (BNP) to ensure mothers, children and
adolescent girls unable to afford have access to nutrition and other basic social services.

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Expanding WASH Infrastructure

• Invest in rural water infrastructure, including filtration plants and boreholes, to reduce
reliance on unsafe water sources. Make investments in sanitation facilities in schools and
public spaces, especially for adolescent girls.
• Conduct hygiene promotion campaigns targeting children and caregivers, focusing on
handwashing and cleaning habits.
Ensure Adolescents are Treated as Children in Healthcare Systems
• Amend healthcare policies and protocols to explicitly recognise and treat adolescents
under 18 as children, ensuring they receive appropriate care and protections.
• Introduce mechanisms for disaggregated data collection within the health system to
identify gaps in adolescent health services and inform targeted interventions.
Mental Health Support
• Develop national mental health programmes focusing on children and adolescents.
Appoint counsellors in all schools and and child psychologists in all hospitals.
• Schools must address self-harm and suicidal behaviour directly, fostering protective
factors such as self-esteem and positive relationships, while tackling risk factors such as
bullying, violence, and academic stress. Global best practices recommend strategies such
as teacher training, the development of life skills, identifying students at risk, creating
safety plans, and connecting students with professional resources.
Prioritise Prevention Over Treatment
• Invest in preventive health and nutrition care programmes and conduct awareness
campaigns on preventive health and nutrition practices, including the importance of early
initiation and exclusive breastfeeding, immunisation, safe water use, and proper
sanitation. Investing in preventive healthcare can reduce the financial and resource
burden on Pakistan's healthcare system.
• Operationalise Infant Feeding Boards and Committees in each province to promote
breastfeeding practices. This includes regular inspections of healthcare facilities and
strict penalties for violations of breastfeeding laws.
• Enhance newborn screening for early detection of metabolic, genetic and other
congenital disorders to ensure timely and accurate diagnosis and treatment.
• Raise awareness among healthcare providers and parents about the importance of
newborn screening.
Strengthening Climate Resilience and Disaster Preparedness
• Prioritise climate-resilient school infrastructure (e.g., flood-proofing, heat-resistant
buildings) to prevent health risks during disasters, paired with digital learning systems to
sustain education and psychosocial support during disruptions.
• Incorporate climate change topics into the school curriculum across all grades to raise
awareness of its impact on health, livelihoods, and ecosystems.

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• Train communities on climate-smart agricultural practices, water conservation, and

disaster risk reduction strategies. Enhance early warning systems with timely
dissemination of alerts to vulnerable populations.
• Implement a system to ensure disaster-affected populations receive immediate relief,
including WASH services, healthcare, and psychological counselling. Prioritise rebuilding
essential infrastructure such as schools, hospitals, and water systems in disaster-hit areas.
• Invest in clean energy infrastructure, including solar, wind, and hydropower projects.
Provide subsidies for renewable energy adoption at the community level to reduce
dependence on unsustainable fuels.
• Expand urban resilience by developing urban forests, parks, and rooftop gardens to
mitigate the urban heat island effect and improve air quality.

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5. Children's Right to Protection
Every child has an inherent right to a life free from violence, fear, neglect, exploitation and abuse.
The protection of children from all forms of violence is a fundamental right guaranteed by
international treaties and standards. As one of the main pillars of the UNCRC, the Convention
obliges states to protect children from all forms of harm. Despite efforts at various levels, children
in Pakistan remain vulnerable to various forms of violence, abuse, neglect and exploitation.
Children who are exposed to or witness violence can suffer acute and long-term damage to their
physical, cognitive, social and emotional development. This chapter examines the most pressing
challenges affecting the safety and well-being of children in Pakistan.

5.1 Birth Registration

An essential but often overlooked aspect of child protection is birth registration, the official and
universal documentation of a child's birth by the government. This process legally recognises the
existence and identity of a child and is often a prerequisite for accessing fundamental rights and
services such as healthcare, education and social protection. Additionally, birth registration
serves as a safeguard against child rights violations, including child marriage, underage
employment and juvenile justice, as laws dealing with these issues cannot be effectively
enforced without verified proof of age.154 Timely birth registration is essential to prevent
statelessness and ensure that displaced, separated, or undocumented children do not fall
through administrative gaps, reducing their vulnerability to exploitation, trafficking, and
exclusion. Birth records are particularly important for family tracing and reunification when
children are separated from caregivers due to conflict, natural disasters, migration, or other forms
of displacement. Beyond individual rights, birth registration plays a crucial role in national
planning and governance. It contributes to the generation of vital statistics that enable
governments to track population dynamics, allocate resources efficiently and monitor progress in
human development through integrated Civil Registration and Vital Statistics (CRVS) systems.155
Birth Registration Rates
The number of unregistered children in Pakistan remains alarmingly high as birth registration
rates are low across the country. According to PDHS 2017-18, the national birth registration rate
for children under the age of five is 42.2%, with significant variation between provinces. ICT
reports the highest registration rate at 82.4%, followed by Punjab at 57.8%. In contrast, Sindh and
Balochistan lag behind, while KP has the lowest rate at 18.8%. In all provinces, birth registration
rates in urban areas are consistently higher than in rural areas.

154
UNICEF USA. (n.d.). Birth registration: Ensuring every child is counted. Retrieved November 18, 2024, from
https://www.unicefusa.org/what-unicef-does/childrens-protection/birth-registration
155
World Health Organization (WHO). Civil registration and vital statistics.

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Table 38: Birth Registration Rates in Pakistan by Urban and Rural Areas (%)

Region Total Urban Rural

National 42.2 60.3 33.7

ICT 82.4
Balochistan 37.8 46 34
KP 18.8 30.4 16.3
Punjab 57.8 70.5 51.7
Sindh 27.6 53.8 6.9
Source: PDHS 2017-18
More recent data on birth registration comes from the MICS, which also provides a gender-
disaggregated perspective. Similar to the PDHS findings, Punjab continues to lead with the
highest birth registration rates, while KP remains the lowest. Notably, there is no significant
disparity in birth registration rates between male and female children across provinces. However,
while the MICS indicates improvements in registration rates, it is important to note that the
156
methodologies of MICS and PDHS differ, which may affect the comparability of results. Despite
these discrepancies, Punjab offers encouraging progress, with registration rates rising from
75.3% (MICS 2017–18) to 79.9% in 2024 (NICS 2024).

Table 39: Birth Registration Rates by Gender in Pakistan (%)

Provinces Total Male Female

Balochistan 44.1 44.2 44.1

KP 29.5 29.7 29.3
Punjab 79.9 80.1 79.7
Sindh 34.0 34.4 33.6
Source: MICS (Balochistan 2019-20, KP 2019, Punjab 2024, Sindh 2018-19 )

Punjab's relatively higher performance correlates with its extensive network of 2,146 functional
Union Councils and 153 e-Khidmat centers facilitating registration.157 In contrast, Balochistan's
sparse population density (35 persons/km²) and limited government presence leave 62% of
villages without accessible registration points.158 KP's challenges are further exacerbated by
security constraints in the former FATA regions, where many facilities face operational limitations
due to inadequate infrastructure, staffing shortages, and restricted government outreach.
Additionally, Punjab's Digital Birth Registration initiative, integrated with 1,200 health facilities
since 2021, accounts for 38% of its registrations.159 Sindh's parallel system covers only 17% of
health centers, while Balochistan and KP lack comparable digital infrastructure. This
156
Marked discrepancies exist between MICS and PDHS data due to differences in the surveys’ methodologies. MICS survey interviews
are carried out exclusively with mothers and primary caregivers for the indicator on birth registration, while PDHS interviews are
undertaken with any household respondent.
157
Punjab Information Technology Board. (2022). e-Khidmat Center app facilitates citizens on the move [Press release].
https://pitb.gov.pk/node/8088
158
Punjab Economic Research Institute. (2019). Tracking the invisibles: Identifying birth registration barriers in Punjab (Report No. 2019-BR-
01), p. 23. https://peri.punjab.gov.pk
159
United Nations Children's Fund. (2023). Summative evaluation of Digital Birth Registration programme (2017-2021), p. 38.
https://www.unicef.org/pakistan/documents/summative-evaluation-digital-birth-registration-programme-2017-2021

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technological gap creates an urban-rural divide even within provinces - evident in Sindh's 53.8%
urban vs 6.9% rural registration.160
Legal and Institutional Framework
The legal framework for birth registration in Pakistan consists of national and provincial laws. The
Birth, Marriage, and Death Registration Act, 1886, established the basis for civil registration and
required provincial governments to maintain certified records of births and deaths. The NADRA
Ordinance 2000 authorises NADRA to oversee civil registration nationwide. At the provincial
level, birth registration is administered through local government laws, with local union councils
acting as the primary registration bodies.
In Pakistan, the birth registration process involves multiple stages and authorities, with different
documents being issued at each stage to formalise a child's legal identity. When parents register
the birth of their child with the local Union Council (UC), they receive a birth certificate. This
certificate serves as the first and most important proof of a child's birth and contains important
details such as the child's name, date and place of birth and the parents' details.161 In areas where
there are no Union Councils, such as cantonment areas, the birth registration procedure is
carried out by the respective Cantonment Boards or Municipal Corporations, which issue the
corresponding certificates. Under the Cantonments Ordinance, 2002, these bodies are federally
mandated to perform civil registration functions across all military-administered areas of the
country.
Once the birth certificate is issued, the information is forwarded to the NADRA for digital
processing. NADRA then issues a Child Registration Certificate (CRC), commonly referred to as a
162
B-form. While the birth certificate is primarily a local record, the CRC gives the child a formal
national identity. The CRC is part of Pakistan's centralised digital identity management system
and serves as the primary document for accessing essential national services including school
admissions, healthcare, social welfare programmes, passport issuance, and applying for a
Computerised National Identity Card (CNIC). In 2024, NADRA issued 11,867,901 Child Registration
Certificates (CRCs), with Punjab recording the highest number at 4,454,937, followed by Sindh at
163
3,698,670.
Table 40: Number of Child Registration Certificates Issued in 2024 (1 Jan 2024 – 31 Dec 2024)
Region Male Female Transgender Total
Total 6,012,438 5,855,463 0 11,867,901
ICT 44,055 42,894 0 86,949
Balochistan 422,447 406,948 0 829,395
KP 1,393,342 1,404,608 0 2,797,950
Punjab 2,275,366 2,179,571 0 4,454,937
Sindh 1,877,228 1,821,442 0 3,698,670
Source: NADRA
160
Pakistan Bureau of Statistics. (2018). Pakistan Demographic and Health Survey 2017-18, Table 12.4, p. 214. Government of Pakistan.
https://www.pbs.gov.pk
161
Legalversity. (n.d.). How to Obtain Birth Certificate from Union Council in Pakistan. Retrieved from https://legalversity.com/how-to-
obtain-birth-certificate-from-union-council-in-pakistan
162
National Database and Registration Authority (NADRA). (n.d.). Child Registration Certificate (CRC). Retrieved from
https://www.nadra.gov.pk/child-registration-certificate-crc/
163
National Database and Registration Authority (NADRA). (2025, February). Request for data on birth registration. Government of
Pakistan.

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NADRA’s 2024 data shows 11.87 million child registration certificates issued, significantly higher
than Pakistan’s estimated 6.24 million annual births. This discrepancy likely reflects delayed
registrations. The total figures suggest NADRA’s data captures cumulative registrations over
multiple years, not just births occurring in 2024.
CRVS and Birth Registration
Civil Registration and Vital Statistics (CRVS) is an integrated system for the continuous,
permanent and universal recording of vital events such as births, deaths, marriages and divorces
164
in accordance with national laws. Pakistan does not systematically generate disaggregated
vital statistics from civil registration data due to incomplete coverage and gaps in data integration.
Instead, the Pakistan Bureau of Statistics (PBS) relies on national surveys such as the PDHS and
MICS to estimate vital statistics.
An assessment conducted by the Ministry of Planning, Development and Reforms (MoPDR) in
2013 revealed significant weaknesses in the birth and death registration systems and led to the
establishment of the National CRVS Steering and Coordination Committee in 2014 and a
Technical Support Unit in 2017 to improve the implementation of the CRVS. Efforts to strengthen
Pakistan’s CRVS system have accelerated in recent years. Initiatives such as the Digital Birth
Registration (DBR) programme are modernising the process through mobile applications and
web-based dashboard.165 These advances have improved data collection, expanded coverage in
remote areas of Punjab and Sindh, and integrated civil registration with NADRA’s national
databases.166
In October 2024, NADRA launched the CRVS Inception Plan to be implemented in three phases
over two years to streamline the registration of births, marriages, divorces and deaths.167 This
initiative will also facilitate data integration between provincial and federal authorities. In Phase I,
the Punjab Health Information System Delivery Unit (HISDU) and the Federal Directorate of
Immunisation (FDI) will be integrated with NADRA, with birth and death notifications being
introduced in 10 hospitals and SMS alerts being implemented for the issuance of birth certificates.
In Phase II, the system will be expanded to 25% of public healthcare facilities nationwide. Finally,
in Phase III, coverage will be extended to 90% of healthcare facilities, with all Town Committees
and Union Councils fully included. Moreover, Punjab has introduced e-Khidmat centres to
facilitate access to civil registration services, providing birth, marriage and death certificates
168
under one roof.

164
UNICE.F (2022). Situation Analysis Update: Children in Pakistan August 2020
165
United Nations Children’s Fund (UNICEF). (2023). Summative Evaluation of Digital Birth Registration Programme (2017-2021). Retrieved
from https://www.unicef.org/pakistan/documents/summative-evaluation-digital-birth-registration-programme-2017-2021
166
Ministry of Planning, Development and Special Initiatives. (n.d.). About CRVS in Pakistan. Retrieved from
https://www.pc.gov.pk/web/crvs/crvsabout
167
National Database and Registration Authority. (2024, October 9). NADRA launches Civil Registration and Vital Statistics (CRVS)
inception plan. Government of Pakistan. https://www.nadra.gov.pk/nadra-launches-civil-registration-and-vital-statistics-crvs-inception-
plan/
168
Punjab Information Technology Board. (2022, March 9). e-Khidmat Center app facilitates citizens on the move. Government of Punjab.
https://pitb.gov.pk/node/8088

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NCRC Efforts to Improve Birth Registration

In 2024, NCRC played a key role in promoting birth registration reforms in Pakistan. NCRC
successfully lobbied in Sindh to extend the fee waiver for late registrations from 60 days to
one year, making birth registration more accessible to families. NCRC's lobbying efforts also
led to the formation of an inter-ministerial committee to oversee birth registration across the
country. It also engaged with provincial Chief Ministers and Chief Secretaries, urging
coordinated action to address systemic gaps and improve accessibility.
Source: NCRC

Gaps and Challenges

Pakistan's birth registration system faces structural and operational challenges that limit universal
coverage. Accessibility remains a major concern, particularly in rural and remote areas, where
infrastructure is weak and service delivery is inconsistent.169 Economic constraints, including
indirect costs, travel expenses, and penalties for late registration, deter many low-income
families from obtaining birth certificates.170 Marginalised populations, such as ethnic minorities,
persons with disabilities, and undocumented communities, face additional administrative
171
hurdles, leaving large numbers of children unregistered. Low public awareness further limits
172
utilisation of available services, particularly in underdeveloped regions.
In late 2024, UNICEF in collaboration with NCRC supported provincial and territorial Local
Government Departments in undertaking a scoping exercise to map systemic bottlenecks across
seven regions focusing on key policy issues such as procedural simplification and fee waivers.
The findings revealed critical weaknesses: poor infrastructure, capacity constraints among
service delivery staff, and weak coordination between Local Government, Health Departments,
and NADRA. A major concern identified was the poor quality of registration data, including
incorrect CNICs and birth dates, which led to delays when NADRA attempted verification.
NADRA's role remains narrowly defined as the final registration point under the Civil Registration
Management System (CRMS), with regional offices lacking autonomy or access to provincial
datasets. Data sharing remains restricted under NADRA's internal data protection protocols,
requiring formal approval from headquarters before provincial governments can obtain
registration data. This lack of timely data access hampers the ability of local authorities to monitor
coverage or generate reports for policymaking.
The digital birth registration (DBR) initiatives in Punjab and Sindh have shown promise, their
scalability is constrained by inconsistent implementation, digital literacy gaps, and connectivity
173
limitations. Efforts must now focus on simplification of birth registration process, improving
interoperability across sectors, investing in digital systems, and eliminating procedural and
structural barriers to ensure that every child in Pakistan can realise their right to legal identity.

169
Idris, I. (2021). Increasing birth registration for children of marginalised groups in Pakistan (K4D Helpdesk Report). Institute of
Development Studies. https://opendocs.ids.ac.uk/opendocs/handle/20.500.12413/16961
170
Idris, I. (2021). Increasing birth registration for children of marginalised groups in Pakistan (K4D Helpdesk Report).
171
Idris, I. (2021). Increasing birth registration for children of marginalised groups in Pakistan (K4D Helpdesk Report).
172
Oxford Policy Management. (2021). Birth registration: How we are helping to protect the invisible children in Pakistan.
https://www.opml.co.uk
173
United Nations Children's Fund (UNICEF). (2023). Summative evaluation of the digital birth registration programme (2017–2021).
https://www.unicef.org/pakistan/documents/summative-evaluation-digital-birth-registration-programme-2017-2021

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Key Recommendations to Strengthen Birth Registration System in Pakistan

Pakistan needs to urgently reform its birth registration system to ensure universal coverage,
particularly for marginalised and hard-to-reach populations.
1. Universal Fee Waivers and Simplified Processes
• Eliminate all fees for birth registration within the first year of a child’s life to remove financial
barriers, extending Sindh’s successful waiver model nationwide.
• Streamline documentation requirements, particularly for refugee, nomadic, and
transgender children, to prevent exclusion due to complex bureaucratic procedures.
2. Integrated Digital Registration Systems
• Expand Punjab’s Digital Birth Registration (DBR) initiative to all provinces, ensuring mobile
and offline solutions are available in remote areas with limited connectivity.
• Establish real-time data sharing between NADRA, Union Councils, and health facilities to
automate birth notifications and reduce delays in certification.
3. Proactive Registration via Service Delivery
• Mandate birth registration at all public health facilities, including immunisation centres and
maternity wards, to capture births immediately after delivery.
• Link registration to social services, such as school enrolment and cash transfer
programmes (e.g., BISP), to incentivise compliance among low-income families.
4. Targeted Outreach for Excluded Groups
• Deploy mobile registration teams in underserved regions, leveraging community health
workers and local NGOs to reach nomadic and rural populations.
• Develop tailored protocols for high-risk groups, including refugees and children with
disabilities, in collaboration with UN agencies and disability rights organisations.
5. Public Awareness and Institutional Capacity
• Launch multilingual awareness campaigns to educate communities on registration
benefits and procedures, with a focus on gender-sensitive messaging.
• Train Union Council staff and healthcare workers on digital tools and inclusive registration
practices to improve efficiency and reduce errors.

5.2 Violence against Children

Violence against children refers to any deliberate, non-essential, and unwanted act, whether
threatened or actual, against a child or children that results in, or has a high likelihood of resulting
in, death, injury, or other forms of physical or psychological suffering.174 Violence is an everyday
reality for many children in Pakistan. It takes different forms, is perpetrated by different people
175
and takes place in different settings.

174
United Nations Children's Fund, International Classification of Violence against Children, UNICEF, New York, 2023.
175
United Nations Children's Fund, International Classification of Violence against Children, UNICEF, New York, 2023.

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5.2.1 Violent Discipline

Child discipline refers to any method used by parents, caregivers, or guardians to correct or guide
a child’s behaviour, encompassing both non-violent and violent methods. In Pakistan, punitive
disciplinary methods - such as physical violence or verbal intimidation to enforce obedience - are
widely used to endorse discipline. These practices are deeply ingrained in societal norms that
176
equate physical punishment with effective child-rearing. Many parents and caregivers lack
awareness of positive discipline strategies, while economic stressors may exacerbate violent
disciplinary practices.
Studies show that violent discipline, both physical and psychological, has harmful and lasting
177
consequences for children’s well-being. Exposure to such practices negatively impacts their
physical, emotional and cognitive development, with effects ranging from immediate distress to
long-term psychological harm that can persist into adulthood, and can also lead to injuries and
even death.178
Early exposure to violence can cause toxic stress and undermines children ability to learn, lowers
academic performance and self-esteem, while increasing their emotional distress and the risk of
depression.179 It also weakens their ability to form positive relationships and, in some cases,
increases the risk of aggression and contributes to self-harm and engagement in risky
behaviours later in life. Moreover, exposure to violence during childhood can perpetuate an inter-
generational cycle of violence, as children who experience violence are more likely to normalise
180
it and reproduce violent behaviours in their own relationships and communities as adults.
Widespread Use of Violent Discipline
The MICS data on violent disciplinary practices across Pakistan’s provinces show that
psychological aggression, physical punishment and harsh disciplinary methods against children
aged 1-14 years are widespread. The high prevalence rates of child discipline suggest that violent
discipline is the norm rather than the exception.
In all four provinces, the majority of children experience some form of violent discipline at home.
The proportion of children exposed to a violent method of discipline is highest in KP (82.7%),
followed by Punjab (80.8%), Sindh (79.6%) and Balochistan (55.3%). The relatively low figure in
Balochistan indicates possible differences in disciplinary practices and reporting mechanisms.
Severe physical punishment, i.e., blows to the head, ears or face or repeated beatings, continues
to be a serious problem. Punjab (45.6%) and Sindh (41.1%) report the highest levels of severe
physical punishment. Psychological aggression, including shouting, humiliation and intimidation,
is reported at equally high levels in all provinces. Non-physical but harmful disciplinary measures
remain deeply embedded in parenting practices, reinforcing the need for alternative, non-violent
approaches to disciplining children. Whilst boys and girls are affected by violent discipline to a
similar extent, boys experience slightly higher levels of violent discipline.

176
UNICEF. (2022). Knowledge, attitudes, Beliefs, Social Norms & Practices related to Child Protection in Pakistan. United Nations
Children's Fund.
177
Planning and Development Department, Balochistan, & UNICEF. (2022). Balochistan Multiple Indicator Cluster Survey 2019-20: Survey
findings report.
178
Tribune. (n.d.). Corporal punishment: Impacts on a child’s psyche. https://tribune.com.pk/story/2484344/corporal-punishment-impacts-
on-a-childs-psyche.
179
United States Institute of Peace. (2020). How to handle Pakistan’s corporal punishment problem.
https://www.usip.org/blog/2020/03/how-handle-pakistans-corporal-punishment-problem
180
Centers for Disease Control and Prevention. (2020). Preventing adverse childhood experiences (ACEs): Leveraging the best available
evidence. U.S. Department of Health and Human Services, Centers for Disease Control and Prevention.

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Table 41: Child Discipline

Percentage of Children Aged 1-14 Years who Experienced Physical Punishment & Violent Discipline
Only Severe Any Violent
Non-violent Psychological Any Physical
Region Aggression Physical Discipline
Discipline Punishment Punishment Method
Balochistan 6.9 46.9 49.5 28.4 55.3
Male 6.2 47.8 50.7 30 56.4
Female 7.8 45.9 48.2 26.4 54
KP 5.2 77.3 73.1 37.9 82.7
Male 4.8 79.1 75.9 40.3 84.6
Female 5.8 75.3 70 35.4 80.6
Punjab 8.1 77.1 72.4 41.9 83.1
Male 7.1 78.9 74.9 45.4 84.5
Female 9.2 75.4 69.8 38.3 81.6
Sindh 5.5 73.3 68.9 41.1 79.6
Male 5 74.2 70.8 43.1 80.5
Female 6 72.3 66.8 39 78.6
Source: MICS (Balochistan 2019-20, KP 2019, Punjab 2024, Sindh 2018-19)

Corporal punishment remains a persistent issue in educational settings in Pakistan, with various
studies highlighting its prevalence and negative impact on students. Corporal punishment refers
to any punishment in which physical force is used and intended to cause some degree of pain or
181
discomfort, however light. Most often involving hitting ('smacking', 'slapping', 'spanking')
children with the hand or with an implement (whip, stick, belt, shoe, wooden spoon, etc.), it can
also involve, for example, kicking, shaking or throwing children, scratching, pinching, biting,
pulling hair or boxing ears, forcing children to stay in uncomfortable positions burning, scalding or
forced ingestion. Beyond physical acts, non-physical forms of punishment that are cruel or
degrading, such as those that belittle, humiliate, denigrate, scapegoat, threaten, scare, or ridicule
the child, are also encompassed within this definition.
Despite legal prohibitions, corporal punishment persists as a widespread practice in Pakistani
182
schools, mostly in the public sector. Research indicates this phenomenon stems from
interconnected structural, cultural, and psychological factors. At the societal level, corporal
punishment remains culturally normalised and frequently receives implicit endorsement through
parental expectations for strict discipline.183 Institutionally, teachers often lack training in positive
classroom management techniques while facing challenging working conditions, including
overcrowded classrooms and inadequate resources.184 Psychologically, many educators

181
United Nations Committee on the Rights of the Child. (2007). General comment No. 8: The right of the child to protection from corporal
punishment and other cruel or degrading forms of punishment (U.N. Doc. CRC/C/GC/8). Retrieved from
https://violenceagainstchildren.un.org/content/forms-punishment
182
Hussain, S., & Ali, R. (2021). Prevalence of corporal punishment in Pakistani schools: A provincial analysis. Journal of Educational
Research, 24(2), 45-62.
183
Malik, F., & Aslam, R. (2020). Cultural acceptance of corporal punishment in Pakistan: A qualitative study. Asian Journal of Social
Psychology, 23(3), 210-225.
184
UNESCO. (2022). Teacher training and classroom conditions in Pakistani public schools. Global Education Monitoring Report

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replicate punitive disciplinary approaches modeled during their own educational experiences.185
Compounding these issues, weak enforcement mechanisms consistently undermine existing
186
legislative bans.
A study on the impact of corporal punishment on school children in KP found that 83% of students
in schools and madrassas in Peshawar had experienced corporal punishment, with male students
disproportionately affected and showing higher levels of emotional distress, aggression and
187
criminal behaviour compared to female students. Another study finds a strong correlation
between corporal punishment and negative effects on students, including poor academic
performance, heightened anxiety, fear, lack of self-confidence and increased school dropout
rates, showing that punitive disciplinary measures often contribute to violent behaviour among
students.188 Findings from public secondary schools in southern Punjab also suggest that physical
punishment is a widespread practice that has a significant negative consequences on students’
189
psychological well-being and academic performance.
Legal and Institutional Framework
The legal framework for corporal punishment in Pakistan remains inconsistent, with no
comprehensive nationwide ban. The Islamabad Capital Territory Prohibition of Corporal
Punishment Act, 2021, and the Sindh Prohibition of Corporal Punishment Act, 2016, explicitly
prohibit corporal punishment in educational institutions and childcare facilities. However, Punjab,
KP and Balochistan lack specific laws regulating corporal punishment in schools or homes. While
Section 89 of the PPC allowed corporal punishment "in good faith" by parents, guardians and
teachers, the Islamabad High Court suspended this provision in 2020, but it remains legally
applicable in all Punjab, KP and Balochistan.
The KP Child Protection and Welfare Act, 2010 and Balochistan Child Protection Act 2016
prohibit physical violence against children, but they do not explicitly define or address corporal
punishment in the school and home environment. NCRC and advocacy groups continue to urge
the governments of Punjab, KP, and Balochistan to enact legislation that explicitly prohibits
corporal punishment in all settings, including schools, homes, and childcare institutions. While
there have been efforts to introduce such legislation notably in Punjab and KP, no provincial law
has been enacted to date.
Gaps and Challenges
Provincial child protection agencies are mandated to deal with cases of violence against children.
However, they often focus on cases of severe abuse and do not intervene in cases of corporal
punishment, especially in home settings, where it is not explicitly prohibited by law. The lack of an
explicit legal prohibition combined with the cultural acceptance of corporal punishment makes it
difficult for these authorities to take action against corporal punishment in the home.
In educational settings, including both formal schools and madrassas, mechanisms for reporting
and redressing corporal punishment remain weak or non-existent. School management often
lacks training in child protection protocols, and in many cases, incidents are either ignored or

185
Khan, A., & Siddiqui, S. (2019). Intergenerational transmission of punitive discipline: Evidence from Pakistani teachers. Child Abuse &
Neglect, 98, 104-112.
186
Human Rights Watch. (2023). The gap between policy and practice: School violence in Pakistan.
187
Ali, Z., & Zia, A. (2022). Beating the devil out of them: Effects of corporal punishment on students. Liberal Arts and Social Sciences
International Journal.
188
Rehman, A., & Imran, A. (2018). The intersection of school corporal punishment and associated factors. Journal of Educational Research.
189
Ahmed, F., & Rasheed, M. (2021). Prevalence of physical punishment in schools of Southern Punjab. VFAST Transactions on Education
and Social Sciences.

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resolved informally without accountability. Madrassas, which educate a significant portion of low-
income children, are largely underregulated; many operate outside formal oversight frameworks,
with minimal government monitoring or standards for child safety. Furthermore, a widespread
lack of awareness among teachers and religious instructors about non-violent, positive discipline
techniques perpetuates reliance on punitive practices.
Key Recommendations for Eliminating Violent Discipline in Pakistan
Pakistan must adopt a comprehensive, multi-sectoral approach to eradicate violent discipline
against children, addressing legislative shortcomings, cultural norms, and systemic failures. The
following measures are essential to transition from punitive to positive disciplinary practices:
1. Legislative Reforms and Policy Implementation
• Enact explicit bans on corporal punishment in all settings (homes, schools, madrassas,
child care centres, etc) in Punjab, KP, and Balochistan, aligning with ICT and Sindh’s laws.
• Repeal Section 89 of the Pakistan Penal Code to eliminate legal justification for
"reasonable" physical punishment.
• Strengthen enforcement mechanisms, including routine inspections and penalties for
violations within schools and care facilities.
2. Institutional Capacity Strengthening
• Implement compulsory training programmes for educators, madrassa instructors, and
childcare providers on positive discipline techniques.
• Establish and strengthen existing school-based committees to monitor and report child
protection violations, including corporal punishment and abuse.
• Embed positive discipline methodologies into national teacher training curricula,
emphasising non-violent behaviour management strategies.
3. Public Awareness and Cultural Transformation
• Roll out nationwide campaigns to shift societal attitudes, engaging religious scholars,
media outlets, and community leaders as advocates against corporal punishment.
• Highlight the detrimental long-term effects of violent discipline through targeted
messaging in schools and public forums.
4. Victim Support and Accountability Measures
• Promote and strengthen the existing toll-free child protection helpline 1121 by enhancing its
workforce, infrastructure, and standard operating procedures (SOPs) to better respond to
the needs of children seeking assistance and information on child protection.
• Integrate psychosocial support systems within schools to assist affected pupils and
mitigate trauma-related dropout rates.
5. Research and Evidence-Based Strategies
• Conduct longitudinal research to assess the efficacy of positive discipline interventions
and inform policy refinement.
• Collaborate with international partners and specialised agencies to adopt global best
practices in eradicating violent discipline.

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5.2.2 Sexual Violence against a Child

Sexual violence against a child, also known as child sexual violence (CSV) or child sexual abuse
(CSA), is any intentional, unwanted and non-essential act of a sexual nature that is either
committed or attempted against a child, including for exploitative purposes, and that results in, or
is reasonably likely to result in, injury, pain or psychological suffering.190 The term covers a wide
range of behaviours and acts, including abuse through physical contact such as touching, sexual
intercourse, fondling, masturbation and abuse through non-physical contact such as exposure to
sexual acts, sexual harassment, online child sexual exploitation and abuse of children.
One of the most pervasive and emerging forms of sexual violence against children, both globally
and in Pakistan, is the exploitation of children in the digital world. The rapid growth of the digital
landscape has made the online protection of children a pressing concern globally as well as in
Pakistan, warranting an exclusive focus on this particular form of sexual violence against children.
The types of abuse include various forms of exploitation, coercion, and manipulation facilitated
191
by online technologies, including: online grooming, child sexual abuse material (CSAM),
sextortion, live streaming of abuse, self-generated explicit content, cyberbullying with sexual
harassment, exposure to sexual content, deepfake, etc.
Extent and Trends of Child Sexual Violence in Pakistan
Data collected by provincial police authorities and non-governmental organisations show that
sexual violence against children is alarmingly high in Pakistan, affecting children of all ages,
genders and socio-economic backgrounds. However, the true extent of the problem is difficult to
determine due to widespread underreporting. Deep-rooted cultural taboos and stigmatisation
prevent families from reporting cases. Fear of social ostracism, damage to familial "honour",
mistrust of the justice system and a lack of awareness about available redress mechanisms often
cause survivors and their families to remain silent.192
CSV is addressed under various sections of the Pakistan Penal Code (PPC), 1860, depending on
the nature and circumstances of the crime. Offences such as kidnapping for the purpose of forced
marriage, sexual assault, rape, gang rape, and other forms of sexual exploitation are categorised
under different legal provisions. A single incident may therefore fall under multiple sections of the
PPC and other applicable laws, reflecting the complexity and severity of the acts committed
against the child.
Drawing from police records across ICT, Punjab, KP, and Sindh, the data compiled provides
insights into the types of child sexual violence reported during the period 1 January to 31
December 2024. Different sections of the PPC invoked through the registration of FIRs help to
classify the nature of the crimes committed. However, it is important to note that the figures do not
necessarily correspond to unique cases or individual victims. A single incident may involve
multiple charges under separate PPC sections, and therefore the data represents the range and
characteristics of offences rather than the exact number of distinct incidents. Despite this
limitation, the information offers a valuable indication of the forms of sexual violence faced by
children in Pakistan, with kidnapping for forced marriage, sexual assault, rape, gang rape, and
unnatural offences emerging as the most frequently reported categories.

190
United Nations Children's Fund, International Classification of Violence against Children, UNICEF, New York, 2023.
191
National Commission on the Rights of Child. (2024). Situation Analysis of Child Online Protection.
192
United Nations Children's Fund (UNICEF). (2020). Child sexual abuse and exploitation: Breaking the silence.

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Table 42: Reported Child Sexual Violence Offences under the Pakistan Penal Code (PPC), 1860
(1 Jan 2024 to 31 Dec 2024)193
Section ICT KP Punjab Sindh
Details Total
(PPC) M F X M F X M F X M F X
Exposure to
292-A 0 1 0 0 0 0 8 2 0 6 0 0 17
seduction194
Assault or criminal
force to a woman
354 0 35 1 0 45 0 223 684 0 0 1,222 0 2,210
with intent to
outrage her modesty
Assault or use of
criminal force to a
354-A woman and 0 1 0 0 1 0 0 1 0 0 93 0 96
stripping her of her
clothes
Kidnapping,
abducting or
365-B inducing any 0 268 0 22 218 0 588 6,647 0 0 2,811 0 10554
woman to compel
for marriage etc
Procuration of a
366-A 0 0 0 0 0 0 2 3 0 0 18 0 23
minor girl195
Kidnapping or
abducting in order
367-A 0 0 0 1 0 0 368 24 0 2 3 0 398
to subject a person
to unnatural lust
Selling any person
371-A for purposes of 0 0 0 0 2 0 0 8 0 30 50 0 90
prostitution, etc
Buying any person
371-B for purposes of 0 0 0 0 0 0 0 8 0 18 48 0 74
prostitution, etc.
375 Rape 3 0 0 1 0 0 0 0 0 0 6 0 10
375-A Gang rape 18 6 0 5 0 0 696 199 1 12 17 0 954
Punishment for
376 21 21 0 138 124 0 674 1152 0 0 491 0 2,621
rape
377 Unnatural offences 0 3 0 183 2 1 342 14 2 150 173 0 870
377-A Sexual abuse 0 0 0 0 0 0 4 1 0 3 0 0 8
Punishment for
377-B 14 3 0 44 19 0 823 494 0 39 53 0 1,489
sexual abuse
Enticing or taking
away or detaining
496-A 0 34 0 6 85 0 188 694 0 0 1179 0 2,186
with criminal intent
a woman
Word, gesture or
act intended to
509 0 10 0 0 2 0 4 31 0 0 340 0 387
insult the modesty
of a woman
Total 56 382 1 400 498 1 3,920 9,962 3 260 6,504 0 21,987
Source: ICT Police, KP Police, Punjab Police, Sindh Police
193
Data from Balochistan is not included in the table, as the information was not available in the prescribed format. However, some data
was provided separately and is discussed later in the report.
194
Section 292-A of the Pakistan Penal Code prohibits the publication, circulation, display, or distribution of any material or object that is
likely to seduce a child (under the age of 18) into engaging in immoral or indecent acts.
195
This section criminalises the act of inducing or attempting to induce a minor girl to engage in illicit sexual activity, particularly when
movement or transportation is involved.

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Analysis of victim age groups reveals that older children, particularly those aged 16-17 years
(under 18), are most at risk of sexual violence, followed by children aged 11-15 years. This trend
suggests a greater vulnerability of adolescents to sexual exploitation and abuse. In KP, however,
the pattern is slightly different, with the majority of cases involving children aged 11-15 years (44%),
followed by those aged 16-17 years (under 18) (33%). Younger children, aged 0-10 years, also
account for a significant proportion of reported cases, comprising around 23% of the total
nationally. These findings underscore that no age group is entirely protected from the risk of
sexual violence.

Table 43: Age-Wise Distribution of Crimes Against Children (2024)

PPC Sections Details 0-5 06-10 11-15 16-17 (under 18)

292A Exposure to seduction 0 3 11 3

Assault or criminal force to a woman
354 24 60 348 1,778
with intent to outrage her modesty
Assault or use of criminal force to a
354A 0 0 2 94
woman and stripping her of her clothes
Kidnapping, abducting or inducing any
365B 42 48 1,546 8,918
woman to compel for marriage etc.
366A Procuration of a minor girl 0 3 12 8
Kidnapping or abducting in order to
367A 7 49 205 137
subject a person to unnatural lust
Selling any person for purposes of
371A 0 0 4 86
prostitution, etc
Buying any person for purposes of
371B 0 0 4 70
prostitution, etc.
375 Rape 0 0 1 9

375A Gang rape 4 91 460 399

376 Punishment for rape 50 281 711 1,579

377 Unnatural offences 18 138 443 271

377A Sexual abuse 0 2 4 2

377B Punishment for sexual abuse 46 462 689 292

Enticing or taking away or detaining
496A 170 114 144 1,758
with criminal intent a woman
Word, gesture or act intended to insult
509 2 1 19 365
the modesty of a woman
Total 363 1,252 4,603 15,769
Source: ICT Police, KP Police, Punjab Police, Sindh Police

According to the Balochistan Police, a total of 193 cases of CSV were reported for the period from
January 2022 to September 2024. The age distribution of victims shows that children aged 6-11
years were the most affected, accounting for 53% of cases, followed by children aged 12-17 years
(under 18), who accounted for 38% of cases. The youngest age group, 0–5 years, accounted for
9% of reported cases.

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Table 44: Balochistan (1 Jan 2022- 20 Sep 2024)

Gender of Child Age
Crime 12-17
M F X 0-5 6-11 (under 18)

Rape/Sodomy 135 39 0 17 91 66
Child Sexual Abuse (Rape/Sodmoy) & Murder 16 1 0 0 12 5
Child Sexual Abuse (Gang Rape/Sodomy) & Murder 1 0 0 0 0 1
Child Sexual Abuse (Gang Rape/Sodomy) 1 0 0 0 0 1
Source: Balochistan Police

Despite the availability of crime data from provincial police departments, there are notable gaps
in how this information is collected, categorised, and reported. Pakistan's crime data
management system requires substantial improvements to ensure accuracy and consistency.
The absence of standardised crime classification protocols often results in underreporting or
misreporting of certain offences, particularly those related to sexual violence against children.
Statistics from CSOs on CSV
The SSDO report “Child Sexual Abuse: Mapping Trends in Pakistan (2019-2023)” highlights a rise
in reported cases of child sexual abuse in Punjab, Sindh, KP and Balochistan between 2019 and
196 197
2023. Similarly, Sahil's report “Cruel Numbers 2023” documented 2021 cases of CSV in 2023.
An analysis of Sahil's data reveals distinct patterns in the forms and locations where CSV occurs in
Pakistan:
• Homes and extended family environments are the most common settings for sexual
assault with family members often being the main perpetrators. Perpetrators exploit their
trusted positions and easy access to children within the household or family network.
• Schools and madrassas are cited as common settings, particularly in cases involving
teachers or religious teachers.
• Street-connected Children and child labourers face heightened vulnerability in public
places and workplaces, where they lack protection and supervision.
• Online grooming and exploitation are increasing with rising internet penetration, with older
children being particularly at risk.
The Growing Threat of OCSEA
As the eighth largest internet user in the world, Pakistan has a growing number of children
accessing digital platforms through smartphones, computers and other devices,198 exposing
children to serious risks. These platforms vary widely in their functionality and include: social
media, messaging, gaming, video sharing, live-streaming, online marketplaces, dark web, peer-
to-peer networks, etc.
The CyberTipline, managed by the National Center for Missing & Exploited Children (NCMEC),
serves as a global clearinghouse for reports of OCSEA, including CSAM, child trafficking, and
online grooming. Between 2021 and 2023, the total number of cases reported worldwide has
steadily increased. Over 99% of reports received by the CyberTipline related to incidents of
suspected CSAM.

196
SSDO (2024), Report on Child Sexual Abuse 5 Years Analysis, 2019-2023.
197
Sahil (2024). Cruel Numbers, 2023. https://www.sahil.org

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Table 45: Reported CSAM Cases (Global)

Year Number of CSAM Cases

2021 29,309,106
2022 31,901,234
2023 35,925,098
Source: Cybertipline

Companies in the United States must comply with 18 USC 2258A, which requires US companies
to report to the NCMEC CyberTipline if they become aware of suspected CSAM on their platforms
and servers. In 2023, Electronic Service Providers (ESPs) reported 35.9 million OCSEA cases to
the CyberTipline, with Facebook reporting the most cases, followed by Instagram.

Table 46: Country-Specific Reports of OCSEA Cases

Country 2021 2022 2023

India 4,699,515 5,675,324 8,923,738

Philippines 3,188,793 2,576,182 2,740,905
Pakistan 2,030,801 2,059,884 1,924,739
Indonesia 1,861,135 1,878,011 1,925,549
Bangladesh 1,743,240 2,145,098 2,491,368
Iraq 1,220,470 905,883 749,746
Algeria 1,171,653 731,167 762,754
Source: Cybertipline

Pakistan is one of the main contributors to the CSAM cases reported worldwide. In 2023, a total of
1.92 million cases were reported from Pakistan. Although these figures do not give a direct
indication of the prevalence of CSV in Pakistan, they do show that large amounts of CSAM are
being accessed, shared or uploaded in the country. In particular, the FIA has reported that 70% of
CSAM uploaded from Pakistan consists of non-Asian content produced abroad, highlighting the
199
transnational nature of this issue. Despite the high number of CSAM cases detected from
Pakistan, local reporting remains extremely low, with only 421 local cases were reported to the FIA
in 2023 and 2024. The stigma associated with sexual abuse, lack of awareness among parents
and children, mandatory requirements to verify complaints and mistrust in law enforcement
prevent victims from seeking help.

198
DataReportal. (2024). Digital 2024: Pakistan. Retrieved October 10, 2024, from https://datareportal.com/reports/digital-2024-pakistan
199
National Commission on the Rights of Child. (2024). Situation Analysis of Child Online Protection.

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Table 47: Local Complaints Registered in Pakistan (2021-2023)

Region 2023 2024

ICT 7 8
Balochistan 3 13
KP 139 46
Sindh 10 29
Punjab 90 69
GB 1 6
Total 250 171
Source: FIA

Table 48: FIA Registration of FIRs (2021–2024)

Year FIRs Registered

2021 53
2022 65
2023 51
2024 58
Source: FIA

Once a complaint is received by the FIA, it is examined and, after an initial investigation, a charge
is filed. In 2021, the FIA registered 53 FIRs; in 2022, 65 FIRs; in 2023, 51 FIRs; and in 2024, 58 FIRs
were registered. Moreover, the FIA arrested 65 accused individuals in 2024. The modest number
of FIRs registered each year reflect limitations in FIA's investigative capacity and available human
resources.
Table 49: FIRs Registered on CSAM in 2024 (Section 22 of PECA)
FIRs FIRs FIRs Registered Total
Cybercrime Registered Registered on on Referrals from
Reporting Total Accused
on local CyberTipline Embassies/ FIRs Arrested
Centres Complaints Reports INTERPOL
ICT 6 1 1 8 8
Balochistan 2 0 0 2 3
KP 10 2 0 12 13
Punjab 23 5 0 28 32
Sindh 6 1 0 7 6
GB 1 0 0 1 3
Total 48 9 1 58 65
Source: FIA

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Legal and Institutional Framework

The Pakistani legal framework adddresses CSV through both federal and provincial jurisdiction.
The PPC, 1860, criminalises various forms of CSV, including sexual assault, trafficking and
harassment. The Criminal Procedure Code (CrPC), 1898, prescribes investigation and trial
procedures, medical examinations, expedited trials and protection of survivors. The Anti-Rape
(Investigation and Trial) Act, 2021, strengthens trauma-sensitive responses, ensuring that child
survivors receive dignified treatment, legal aid and medical support. The Prevention of Electronic
Crimes Act, 2016, criminalises child sexual abuse materials, online grooming and digital
exploitation. The Protection Against Harassment of Women at the Workplace Act, 2010, extends
protection to children in educational establishments and institutions.
Child protection laws provide the legal framework for the protection of children and response to
CSV cases. The ICT Child Protection Act 2018, Punjab Destitute and Neglected Children Act
2004, Khyber Pakhtunkhwa Child Protection and Welfare Act 2010, Sindh Child Protection
Authority Act 2011, and Balochistan Child Protection Act 2016 collectively mandate key response
mechanisms in their respective jurisdictions, including the identification and reporting of abuse,
establishment of child protection units, case management, rehabilitation services, and
coordination with law enforcement and the judiciary.
CSV cases require coordination among multiple institutions to ensure both justice for survivors
and prosecution of offenders. The police, as the first responders in most cases of violence against
children, are responsible for registering FIRs, investigating incidents and arresting suspects.
However, child survivors often face barriers in accessing justice, including delays in FIR
registration, victim-blaming and lack of child-friendly reporting mechanisms. While some
jurisdictions have specialised gender-based violence units and dedicated police desks for
handling sensitive cases, their effectiveness varies greatly across regions.
To address online child sexual exploitation and abuse, the FIA and its Cyber Crime Wing (CCW)
investigate cases of online abuse, grooming and child exploitation material. The FIA collaborates
with Interpol to dismantle cross-border networks involved in OCSEA. In November 2024,
Pakistan became the 71st country to be included in Interpol's International Child Sexual
Exploitation (ICSE) database, an important step in identifying and protecting victims, preventing
200
investigative duplication and strengthening global child protection efforts. Amendments to the
PECA 2016 in 2022 allowed police to register FIRs and investigate OCSEA cases, making it easier
for child victims to report cases even in areas where the FIA lacks a physical office. Following
these amendments, the Islamabad Police established the Cybercrime Investigation Unit as part of
efforts to crack down on digital crimes,201 and provide a platform for victims to seek justice.
The Pakistan Telecommunication Authority (PTA) is responsible for monitoring and regulating
online content in Pakistan and has the authority to block or remove unlawful content, including
child sexual abuse material. In April 2024, the PTA informed the Peshawar High Court that it had
202
blocked 998,334 weblinks for pornography.

200
Dawn. (n.d.). Pakistan Joins Interpol’s Child Abuse Database – The State of Children in Pakistan. https://stateofchildren.com/pakistan-
joins-interpols-child-abuse-database/
201
State of Children in Pakistan (n.d.-a). Islamabad police establish first cybercrime investigation unit – The State of Children in Pakistan.
https://stateofchildren.com/islamabad-police-establish-first-cybercrime-investigation-unit/
202
State of Children in Pakistan (n.d.-a). PTA blocks 1.07m ‘objectionable’ web links – The State of Children in Pakistan.
https://stateofchildren.com/pta-blocks-1-07m-objectionable-web-links/

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NCRC Initiatives to Protect Children Online

In 2024, NCRC collaborated with Meta and the Ministry of Human Rights to launch the Urdu
version of the 'Take It Down' portal, a global initiative by NCMEC to combat the unauthorised
sharing of intimate images of minors online. Additionally, NCRC conducted a "Situation
Analysis of Child Online Protection in Pakistan" and published "Safeguarding Your Child in the
Digital Age", a guide for parents and caregivers to promote digital safety.

Gaps and Challenges

Law enforcement actions in Pakistan remain inconsistent, with gaps in child-friendly investigation
procedures and limited accessibility of reporting mechanisms for children and their families,
especially in rural areas.203 The lack of standardised forensic protocols, inadequate medical care
and insufficiently trained personnel further undermine efforts to collect evidence and
204
prosecute. Survivors often face stigmatisation and blame, which discourages families from
205
seeking justice or accessing support services and face lengthy and adversarial court
206
proceedings where delays in case resolution retraumatise victims. Essential support services
for survivors, such as psychological counselling, legal aid and medical care, remain underfunded
and inaccessible for the majority of victims.207 While standardised case management and referral
systems does exist in each province and territory, the key challenge lies in its effective
operationalisation. Issues such as lack of resources, limited coordination among stakeholders,
and gaps in implementation hinder its full functionality. Strengthening institutional capacity,
ensuring inter-agency collaboration, and improving monitoring mechanisms are essential to
making the system truly effective for child protection.
Institutions such as schools, madrassas and childcare facilities often fail to respond responsibly in
208
cases of CSV, with negligence and complicity remaining persistent issues. A lack of awareness
and understanding of sexual violence further exacerbates the problem, as many parents/carers
are not trained to recognise or identify such cases. This is largely due to the inadequate
development of preventive mechanisms in Pakistan. Community-based education programmes,
school initiatives and parental awareness campaigns are either non-existent or lack the
209
necessary reach and effectiveness to address CSV comprehensively.
The 2024 Situation Analysis on Child Online Protection in Pakistan, conducted by the NCRC,
highlights several critical challenges faced by the FIA to handle OCSEA cases. A major obstacle is
the lack of jurisdiction in transnational cases, where perpetrators or digital content are located
outside Pakistan, hindering effective investigation and prosecution. Abuse by anonymous
perpetrators further complicates efforts to identify offenders, as individuals often conceal their
identities through various online tools. The detection of technology-facilitated child abuse
remains difficult due to the specialised forensic skills and tools required, which are limited and
easily not available in all cities. There is also limited engagement between the FIA and child
protection agencies, weakening the coordinated response needed to support child victims.
Additionally, poor awareness among stakeholders, including families, children, and frontline
203
Human Rights Commission of Pakistan (HRCP). (2021). Justice delayed: Challenges in addressing child sexual abuse cases in Pakistan.
204
Shujaat, Q. (Nov 2024.). Situation Analysis of Child Sexual Abuse in Punjab.
205
United Nations Children's Fund (UNICEF). (2020). Child sexual abuse and exploitation: Breaking the silence.
206
Asian Development Bank (ADB). (2020). Enhancing access to justice for vulnerable groups: Lessons from South Asia
207
Gaps and Challenges to address Child Sexual Abuse and Exploitation – The State of Children in Pakistan. (n.d.).
https://stateofchildren.com/child-sexual-abuse-in-pakistan/gaps-and-challenges-csa/
208
Human Rights Watch (HRW). (2020). Accountability in institutional child protection: Gaps and recommendations for South Asia.
209
Human Rights Watch (HRW). (2020). Accountability in institutional child protection: Gaps and recommendations for South Asia.

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officials, contributes to underreporting of cases. Despite receiving numerous alerts and

complaints, the number of cases formally investigated remains low, largely due to persistent
capacity constraints, including shortages of trained personnel and technological resources.
Key Recommendations for Addressing Child Sexual Violence in Pakistan
Pakistan must adopt a comprehensive, survivor-centred approach and multi-sectoral response to
combat CSV, prioritising prevention, protection, and justice while addressing systemic gaps.
1. Child Empowerment and Prevention
• Implement mandatory school programmes on body safety, consent, and digital literacy for
children, tailored to developmental stages and delivered through trained educators.
• Establish peer-led support networks in schools/madrassas and anonymous reporting
channels to encourage safe disclosure.
2. Institutional and Systemic Reforms
• Standardise and enforce child-sensitive protocols across police, FIA and healthcare
services:
• Requiring all police stations to have dedicated, trained CSV units with clear protocols
for evidence collection, survivor interviews, and case management to ensure sensitive
handling of complaints.
• Roll out hospital-based Child Protection Committees nationwide to coordinate
medical, legal, and psychosocial support.
• Create integrated survivor centres in all districts, co-locating forensic, legal, and
counselling services.
• Expand the FIA Cybercrime Wing's capacity by investing in human resources and
infrastructure, establishing protocols for handling digital evidence, and developing
formal referral pathways with child protection agencies, the police, and INTERPOL.
3. Justice and Survivor Support
• Establish specialised fast-track courts for CSV cases nationwide, mandating child-friendly
procedures such as in-camera trials, video testimonies, and trauma-informed judicial
processes to prevent re-victimisation.
• Launch an Survivor Support Fund to cover survivors' immediate needs (medical, legal,
relocation).
4. Cultural and Awareness Shifts
• Conduct nationwide awareness campaigns utilising mass media, community leaders, and
survivor testimonials to challenge harmful norms, reduce stigma, and encourage reporting
of abuse.
• Community workshops for parents on recognising abuse, coupled with training for local
leaders (imams, teachers).

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5. Strengthen Data Systems and Improve Accountability

• Strengthen crime data management systems to accurately record and categorise cases of
sexual violence against children by developing standardised protocols, ensuring
disaggregated data collection, and training relevant law enforcement personnel to
improve consistency, reliability, and accountability in reporting.
• Introduce stringent accountability mechanisms for institutions handling CSV cases,
including performance audits of child protection agencies and disciplinary measures for
negligent officials.

5.2.3 Harmful Practices

Child marriage remains a deeply entrenched harmful practices in Pakistan. It marriage refers to
any formal marriage or informal union involving a child under the age of 18, whether with an adult
210
or another child. A related harmful custom is watta satta (exchange marriage), where families
trade brides between households, often leading to child marriages and limiting women's
autonomy. This practice can lead to child marriages and limits a girl's, and later a women's ability
to make decisions about her life, reinforcing gender inequality throughout her life course.
Child marriage is influenced by multiple factors, including deeply entrenched social and gender
norms, gender inequalities, economic deprivations, poverty, and inadequate access to
education.211 Recent humanitarian challenges, including related to climate change such as floods
in 2022, and the COVID-19 pandemic, have exacerbated poverty levels and deepened
inequalities, with evidence suggesting that this has led to an increase in child marriages in
affected areas. Child marriage has profound and far-reaching consequences, not only for the
individual child, but for society as a whole. Forcing children into marriage disrupts their physical,
emotional and social development. Child brides face serious health risks, particularly due to early
pregnancies, that increase the risk of maternal and neonatal complications. Adolescent girls are
particularly vulnerable to conditions such as obstetric fistula, premature births and delivering low
birth weight infants. The physical immaturity of young mothers contributes to higher maternal and
212
infant mortality. Beyond health risks, child marriage entrenches patriarchal norms, perpetuates
structural discrimination, and limits women and girls ability to pursue education, economic
213
independence and meaningful participation in society.
Prevalence of Child Marriages
Pakistan has one of the highest rates of child marriage in the world. According to the PDHS 2017-
18, 18.3% of girls are married before the age of 18, while 3.6% of girls in Pakistan are married before
the age of 15.
The MICS also sheds light on child marriage practices in the various provinces (marriages before
the age of 15 and 18) and reveals considerable gender-specific differences. Girls continue to be
far more prone to child marriages than boys especially those from poor households, rural and
remote areas, with primary or no formal education, children of bonded labourers, refugee girls,
ethnic and religious minorities.214 Sindh, Balochistan and KP show the highest prevalence of child
210
United Nations Children's Fund. (n.d.). Child marriage. UNICEF. Retrieved Nov 11, 2024, from https://www.unicef.org/protection/child-
marriage
211
United Nations Children's Fund (UNICEF). (2021). Child marriage country profile: Pakistan. UNICEF.
https://data.unicef.org/resources/child-marriage-country-profiles/
212
United Nations Children's Fund (UNICEF). (2021). The impact of child marriage on adolescent girls. UNICEF.
213
UN Women. (2020). Gender equality: Tackling harmful practices. Retrieved from https://www.unwomen.org.
214
United Nations Children's Fund (UNICEF). (2021). Child marriage country profile: Pakistan. UNICEF.
https://data.unicef.org/resources/child-marriage-country-profiles/

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marriages among girls, indicating a close link between poverty, lack of education and child
marriage practices. Although Punjab reports a comparatively lower prevalence, child marriage
remains a problem, especially in rural and economically deprived areas where families often
resort to early marriages due to social expectations and financial constraints. However, recent
data from the Punjab MICS 2024 indicates some progress: the proportion of women aged 20–24
who were married before age 15 has declined from 3.3% in 2017–18 to 2.5%, and those married
before age 18 has reduced from 14.6% to 13.8%.

Table 50: Prevalence of Child Marriage Before Age 15 by Gender and Province
% of Population Aged 20–24 Years
Provinces Male Female

Balochistan 1.6 7.2

KP 0.9 6.4
Sindh 2.2 7.5
Punjab 0.6 2.5
Source: MICS (Balochistan 2019-20, KP 2019, Punjab 2024, Sindh 2018-19)

Table 51: Prevalence of Child Marriage Before Age 18 by Gender and Province
% of Population Aged 20–24 Years
Provinces Male Female

Balochistan 6.4 21.9

KP 5.3 26.3
Sindh 8.5 24.7
Punjab 3 13.8
Source: MICS (Balochistan 2019-20, KP 2019, Punjab 2024, Sindh 2018-19)

The 2023 Census reveals a deeply concerning trend: 641,887 children aged 15–17 in Pakistan,
including 211,499 boys and 430,388 girls, were reported as married, divorced, widowed, or
separated. This accounts for approximately 4% of all children in this age group. This highlights a
significant gender gap and represents a serious threat to child well-being and development. The
prevalence of early marriage varies considerably across provinces. Balochistan reports the
highest rate, with 12% of children aged 15–17 affected (9% boys, 16.5% girls), followed by KP at 6%
(2.9% boys, 9.6% girls). In contrast, Punjab, Sindh, and the ICT report comparatively lower rates.

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Table 52: Percentage of Children Aged 15–17 Who Are Married, Divorced, Widowed, or Separated

Region Total (%) Male (%) Female (%)

Pakistan 4.0 2.7 6.0

ICT 2.0 1.2 2.6
Balochistan 12.0 9.0 16.5
KP 6.0 2.9 9.6
Punjab 3.0 1.8 3.7
Sindh 4.0 2.7 5.7
Source: Census 2023 & NCRC

Alarmingly, 348,193 (54%) of child marriage cases among children aged 15–17, including 211,499
boys and 136,694 girls, are illegal under provincial laws (see Legal and Institutional Framework
for Child Marriages for details). This highlights systemic failures in the enforcement of child
marriage laws and child protection mechanisms intended to safeguard children.

Table 53: Estimated Number of Illegal Child Marriages by Age and Region
Based on provincial legal age thresholds for girls
Boys Girls
Region Age Number Age Number

ICT 15-17 869 15 304

Balochistan 15-17 48,512 15 10,793
KP 15-17 40,990 15 14,177
Punjab 15-17 71,343 15 20,086
Sindh 15-17 49,785 15–17 91,334
Total 211,499 136,694
Source: Census 2023 & NCRC

A 2023 study titled ‘Diagnostic Study of Nikkahnamas in Punjab’ by the National Commission for
Human Rights (NCHR) and Musawi analysed 1,100 Nikkahnamas from Lahore and Pakpattan to
assess compliance with legal requirements. The findings revealed that 1.6% of nikkahnamas in
Pakpattan documented child marriages in violation of the Punjab Child Marriage Restraint Act,
2015, while no such violations were found in Lahore. However, incomplete documentation was
widespread. In Lahore, 16% of nikkahnamas were missing the bride's CNIC details and 10% were
missing the groom's CNIC details. The issue was more pronounced in Pakpattan, where 48%
were missing the bride's CNIC details and 19% were missing the groom's CNIC details. These
documentation gaps pose a significant challenge in enforcing child marriage laws, as the
absence of CNIC details makes it difficult to verify the ages of brides and grooms. Strengthening
birth and marriage registration systems and ensuring strict enforcement of legal requirements
are essential to preventing child marriages.

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Forced Conversions and Child Marriages

Forced conversions, especially of young girls from Hindu and Christian communities, are a
serious violation of their fundamental rights and freedoms.215 Abductions and subsequent forced
conversions and marriages to older men are frequently reported in Sindh and Punjab.216 Data
analysis conducted by the Centre for Social Justice from 2021 to 2024 shows 421 documented
217
cases, with an alarming 71% of victims being children under the age of 18. The situation is
particularly critical in Sindh province, which accounts for 69% of all reported cases, followed by
Punjab with 30% case. Among these victims, 22% were under the age of 14. Weak legal
protections and societal apathy allow perpetrators to act with impunity, leaving families
traumatised and powerless.218
Legal and Institutional Framework
The Child Marriage Restraint Act, 1929, applicable in Islamabad, KP and Balochistan, sets the
minimum age at 16 years for girls and 18 years for boys. Sindh has the most progressive law, the
Sindh Child Marriage Restraint Act, 2013, which sets the minimum age of marriage for boys and
girls at 18 years and provides for stricter penalties. The Punjab Child Marriage Restraint
(Amendment) Act, of 2015 retains the minimum age of 16 years for girls but increases the penalties
for violations. Pakistan has separate laws for different religions: The Christian Marriage Act of
1872 was amended in 2024 to raise the minimum age for marriage of Christians to 18 years, while
the Hindu Marriage Act of 2017 and the Punjab Sikh Marriage Act of 2018 had already set 18 years
as the legal age for marriage. Moreover, PPC Sections 498-B and 310-A criminalise forced
marriages and harmful practices such as vani, but enforcement remains difficult.
Local governments and union councils play an important role in regulating marriages and
219
verifying the ages of the bride and groom through documents such as CNICs and B-forms. They
are also responsible for ensuring that officiators (such as nikah khawans) comply with child
marriage laws. The police investigate violations, take action against those facilitating underage
marriages and ensure legal accountability for offenders. In most provinces, child protection
authorities are authorised to intervene when children are at risk. This includes removing children
from harmful situations, providing legal and psychological support and facilitating access to other
essential services.
Legal Age for Marriage
The minimum legal age for marriage is not uniform in Pakistan. Except in Sindh, the minimum legal
age for girls is 16 years and 18 for boys. A significant challenge is that marriages conducted below
the legal age often recognised under religious and customary practices, making it difficult to
annul or contest such unions. While some religious scholars argue that marriage at puberty
should be permissible, the Federal Shariat Court (FSC) ruled in 2021 that setting a minimum age of
220
marriage does not contradict Islamic principles. This position was reaffirmed on 6 March 2023
when the FSC dismissed a petition against the Sindh Child Marriage Restraint Act, 2013. In April
215
United Nations Office of the High Commissioner for Human Rights. (2024, April 11). Pakistan: UN experts alarmed by lack of protection
for minority girls forced into religious conversion and marriage. Retrieved from
https://www.ohchr.org/en/press-releases/2024/04/pakistan-un-experts-alarmed-lack-protection-minority-girls-forced-religious
216
Hassan, S. (2023). The plight of Pakistan’s minority women: Forced conversions and marriages. Human Rights Watch Blog. Retrieved
from https://www.hrw.org/blog/2023/09/pakistans-minority-women
217
National Commission on the Rights of Child. (2025). Retrieved from https://www.facebook.com/ncrcpakistan
218
Amnesty International. (2023). Pakistan: Weak protections leave minorities at risk. Retrieved from
https://www.amnesty.org/en/latest/news/2023/07/pakistan-minority-protections/
219
National Database and Registration Authority. (n.d.). Civil Registration Management System. NADRA Pakistan. Retrieved November 11,
2024, from https://www.nadra.gov.pk/civil-registration-management-system/
220
National Commission on the Rights of Child. (2021). Policy Brief on the Legal Framework for Child Marriage in Pakistan.

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The State of Children in Pakistan 2024

2024, the Lahore High Court declared the gender-based disparity (18 for males and 16 for
females) in the Punjab Child Marriage Restraint (Amendment) Act, 2015 unconstitutional.221 The
court ruled that this distinction violated the constitutional right to equality under Article 25 of
Pakistan's Constitution. Consequently, the court directed the Punjab government to revise the
legislation to establish a uniform minimum marriage age for both genders. However,
implementation of this Order remains pending, leaving the legal disparity in effect.
222
Despite these landmark rulings by the FSC and LHC, legal inconsistencies, weak enforcement,
223
and deeply rooted cultural and religious norms continue to enable child marriages, leaving
many girls unprotected from coercion and exploitation.
Complicated Dissolution of Child Marriages
The legal procedure for dissolving child marriages is equally problematic. The Child Marriage
Restraint Act, 1929, and subsequent amendments in Punjab and Sindh make no explicit provision
for the annulment of marriages once they have been contracted or solemnised.224 Instead, the
procedure for dissolution is set out in the Family Court Act, 1964, while the grounds for dissolution
are specified in the Dissolution of Muslim Marriages Act, 1939. This places an undue burden on
girls and makes redress unattainable for many. Court delays and the high cost of legal
proceedings create further barriers for girls seeking to dissolve child marriages.

Progress in Reforming Child Marriage Laws

Efforts to reform child marriage laws have made progress at the federal and provincial levels in
2024, driven by advocacy efforts by NCRC, NCSW and development partners.225 Bills have
been introduced in Balochistan, Punjab and at the federal level and are awaiting further review
and approval. While these initiatives represent progress, it remains a challenge to gain the
massive support of parliamentarians due to deep-rooted social, cultural and religious barriers.

Gaps and Challenges

Cultural acceptance and religious misinterpretation are key drivers of child marriage in Pakistan,
where it is often seen as a private family matter, which also hinders legal reforms.226 Weak
oversight, corruption and inadequate administrative systems prevent Union Councils from
verifying ages, compounded by low birth registration rates and the absence of accountability
mechanisms. Many marriages are performed by Nikah registrars who operate without official
licences or bypass verification processes, allowing underage marriages to continue unchecked.
Poverty, gender inequality and economic pressures further drive families to arrange child
marriages. The impact of humanitarian crises and climate-related shocks such as displacement
and food insecurity further increases the risk, as families may see early marriage as a coping
mechanism in times of instability.227 Compounding these issues are low birth registration rates,
weak law enforcement, and a lack of awareness and education, leaving countless girls vulnerable
228
to exploitation and without access to protection or support.
221
Lahore High Court. (2024). Azka Wahid v. Province of Punjab & others (W.P No.32798 of 2023). Lahore High Court.
https://sys.lhc.gov.pk/appjudgments/2024LHC1392.pdf
222
National Commission on the Rights of Child. (2021). Policy Brief on the Legal Framework for Child Marriage in Pakistan.
223
UN Women. (2022). Understanding child marriage: Key drivers and barriers. Retrieved from https://www.unwomen.org
224
National Commission on the Rights of Child. (2021). Policy Brief on the Legal Framework for Child Marriage in Pakistan.
225
NCRC. (2024). NCRC Quarterly Newsletter April-June 2024.
226
UN Women. (2022). Understanding child marriage: Key drivers and barriers. https://www.unwomen.org
227
Nguyen, V. (2025, March 8). Washed away. Dawn. https://www.dawn.com/news/1896579
228
Ready to marry? Exploring the dynamics of child marriage in Pakistan. (n.d.). Girls Not Brides.
https://www.girlsnotbrides.org/articles/ready-to-marry-dynamics-of-child-marriage-in-pakistan-evidence-from-three-development-
programmes/

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Key Recommendations to Address Child Marriage in Pakistan

Pakistan must adopt a coordinated, rights-based approach to end child marriage through legal
reforms, institutional strengthening, and societal transformation.
1. Legal Reforms
• Establish a uniform legal age of marriage at 18 for both boys and girls across all provinces.
Amend the Child Marriage Restraint Act, 1929, and the respective provincial laws to
eliminate inconsistencies and align with international standards.
• Introduce stricter penalties for those involved in child marriage, including parents,
guardians, and officiants (Nikah Khawan). Make child marriage a non-compoundable and
non-bailable offence to ensure legal accountability.
• Introduce legal reforms to streamline the annulment process of child marriages by
establishing child-friendly courts or designated family courts with expedited procedures,
ensuring young individuals are protected from prolonged legal battles.
2. Enhancing Enforcement and Institutional Capacity
• Conduct regular training sessions for police officers, judiciary members, local council
members, Nikah Registrar and Nikah Khawan on child rights and the legal implications of
child marriage. Strengthen the capacity of law enforcement to investigate and prosecute
cases.
3. Community Mobilisation and Awareness Campaigns
• Launch awareness campaigns targeting rural and tribal communities, emphasizing the
negative impacts of child marriage on health, education, and socio-economic
development. Use media, religious leaders, and community leaders to disseminate
information and change attitudes.
• Collaborate with religious scholars and traditional leaders to reinterpret religious texts and
traditions in support of delaying marriage until the legal age.
4. Economic Support and Incentive-Based Programmes
• Provide financial incentives to families to keep their daughters in school and delay
marriage. Link cash transfers to school attendance and health check-ups to ensure that
girls receive education and healthcare.
• Offer vocational training and employment opportunities for girls and young women to
reduce economic dependence on early marriage and empower them to make informed
decisions about their lives.
5. Integration with Health and Education Sectors
• Use health and education platforms to promote child rights and identify at-risk children.
Train health workers and teachers to recognise signs of early marriage and report cases to
relevant authorities.
• Strengthen birth registration systems to ensure that all children have legal documentation
of their age, making it difficult for families to falsify age during marriage.

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6. Support and Rehabilitation for Victims

• Create safe spaces and when necessary, provide temporary shelters for victims of child
marriage when girls cannot remain with their families, offering legal aid, counselling, and
educational opportunities.
• Develop comprehensive services that provide psychosocial support, education, and
vocational training for child brides, empowering them to rebuild their lives and thrive.

5.3 Economic Exploitation of Children

The economic exploitation of children, often referred to as child labour, involves work that robs
them of their childhood, their potential and their dignity, and harms their physical and mental
development. It also includes harmful activities that interrupt education, lead to early school
dropout or force children to combine schooling with excessive labour.229 A critical distinction must
be made between 'child labour' and 'child work'. The latter includes non-harmful, age-appropriate
activities such as helping in the household chores or in family businesses, provided they do not
230
impede education, health or development.
Child labour is prevalent in Pakistan. Children work in various sectors such as agriculture,
manufacturing, domestic work, brick kilns and informal roadside shops. Among the various forms
of child labour, hazardous work poses significant risks. It exposes children to dangerous
conditions such as toxic chemicals, heavy machinery, extreme temperatures, long working hours,
night shifts or abusive environments, resulting in physical injuries, mental stress and emotional
trauma.
The International Labour Organization (ILO) describes the worst forms of child labour as serious
violations of children's rights that require immediate action. These include slavery-like practices
(e.g. human trafficking, debt bondage, forced labour), recruitment in armed conflict, commercial
sexual exploitation (e.g. prostitution, pornography) and involvement in illegal activities such as
drug production and trafficking.231 Hazardous work that jeopardises the health, safety or morals of
children is also counted among the worst forms.
Child Domestic Labour (CDL) is one of the most widespread and alarming forms of child labour in
Pakistan. It includes part-time, full-day, live-in work, and the risks faced by CDL vary depending on
the employment arrangements. Domestic workers who live in the home are particularly
vulnerable as they often work without fixed hours or supervision, which increases the risk of
exploitation and abuse. Part-time workers who deal with multiple employers on a daily basis face
232
particular risks, including unsafe environments and inconsistent treatment.
Prevalence of Child Labour in Pakistan
At the national level, there is no comprehensive or up-to-date picture of child labour in Pakistan.
The last national survey conducted in 1996 estimated that 3.3 million children were in full-time
employment.233 To fill this data gap, the provincial and federal governments rolled out child labour
surveys in 2018 to better understand the extent and dynamics of the issue. By December 2024,

229
SFJ, NCHR. (2023). Situation Analysis of Child Labour in Punjab.
230
SFJ, NCHR. (2023). Situation Analysis of Child Labour in Punjab.
231
International Labour Organization (ILO). (1999). Worst Forms of Child Labour Convention, 1999 (No. 182). Retrieved from
https://www.ilo.org
232
Concept – The State of Children in Pakistan. (n.d.). https://stateofchildren.com/child-domestic-labour-pakistan/concept/
233
Prevalence of Child Labour in Pakistan – The State of Children in Pakistan. (n.d.).
https://stateofchildren.com/child-labour-in-pakistan/prevalence-of-child-labour-in-pakistan/

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Punjab, KP and GB have finalised and published their survey findings. In the meantime, surveys
are underway in Sindh, Balochistan, AJ&K, and ICT and are expected to be finalised by mid
2025.234
The Punjab Child Labour Survey (PCLS) 2019-2020, released in October 2022, shows that the
prevalence of child labour among 5-17 year olds is 16.9%. Among 5-14 year olds (under 15 years),
the prevalence is 13.4%. Almost half of children aged 10-14 (47.8%) who are engaged in child
labour work in hazardous conditions, posing a serious risk to their health and well-being.

Table 54: Child Labour in Punjab (%)

Age Total Boys Girls

5-14 13.4 16.8 9.7

5-17 16.9 21.8 11.5
Source: PCLS 2019-20
The Khyber Pakhtunkhwa Child Labour Survey (KPCLS) released in January 2024 shows that 9%
of all children aged 5–17 years in Khyber Pakhtunkhwa (KP) are engaged in child labour. Of these
children, 73.8% work in hazardous occupations, indicating that the majority of child labourers are
exposed to hazardous working conditions.

Table 55: Child Labour in KP (%)

Age Total Boys Girls

5-17 9 11.7 5.9

5-11 5.3 5.9 4.7
12-13 10.9 14.3 7.2
14-17 15.5 22.3 7.9
Source: KPCLS 2022
In both Punjab and KP, the prevalence of child labour is higher among boys than girls, with the
prevalence of child labour increasing with age in both genders. In both provinces, agriculture,
forestry and fishing are the most common economic sectors in which children are employed,
accounting for 55.3% in Punjab and 51.6% in KP. In Punjab, manufacturing (13.6%) and water
supply (11.8%) follow, while in KP, water collection (19.1%), wholesale and retail trade (9.7%) and
manufacturing (7.7%) are the next most common industrial sectors for child labour.
Given the invisibility of certain forms of child labour, especially when children live with employers
or work on the streets, existing surveys do not fully capture the extent of the issue. Child domestic
setting, for example, is widespread but is hardly recorded in official statistics as it takes place
inside private households, and where children work behind closed doors. The KPCLS 2022
acknowledges the prevalence of child domestic labour in KP, but admits that this form of work has
not been adequately captured in its findings. Similarly, the PCLS 2019-20 provides insights into
the broader landscape of child labour, but highlights the challenges in accurately documenting
child work in the household. There are several reasons for the underreporting, including
respondents not providing information on child servants or misclassifying their work as non-
economic household chores rather than labour.
234
Child Labour Survey Graph | Pakistan Bureau of Statistics. (n.d.). https://www.pbs.gov.pk/content/child-labour-survey-graph

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Table 56: Child Domestic Labour in Punjab

Age Group Total Working Population Children in Domestic Work (%)

5-14 3,834,264 1.80

5-17 6,672,389 1.70
5-9 779,391 1.30
10-14 3,054,873 2.00
15-17 2,838,125 1.50
Source: Punjab Child Labour Survey 2019-20

The PCLS 2019-20 shows that in Punjab, 70,000 children in the age group of 5-14 years and over
110,000 children in the age group of 5-17 years are working as child domestic workers. Alarmingly,
more than 10,000 very young children in the age group of 5-9 years are employed in these roles,
indicating the early age at which children are forced into labour. The data also shows a clear
gender imbalance, with girls clearly favoured as domestic workers. This is consistent with the
findings of an ILO scoping study, which shows that the majority of households employ a girl as a
235
domestic worker in Pakistan, particularly between the ages of 10 and 14.

Table 57: Gender Disaggregation- CDL in Punjab

Gender Age Group Total Working Population Children in Domestic Work (%)

5-14 2,503,689 0.70

Boys
5-17 4,421,067 0.60
5-14 1,330,263 4.00
Girls
5-17 2,251,010 3.90
Source: Punjab Child Labour Survey 2019-20

Key Determinants of Child Labour

The findings of the child labour surveys in Punjab and KP show several overlapping factors that
influence the prevalence of child labour, with education level, economic status and household
236
living conditions playing a central role. In both provinces, there is a clear correlation between
the level of education of the head of household and the incidence of child labour. As the level of
education increases, the likelihood of children working decreases, underlining the important role
of education in protecting children from child labour. Similarly, lower income households have a
higher rate of child labour, with a significant proportion of working children belonging to families
receiving support from the Benazir Income Support Programme (BISP). This indicates that cash
transfers alone are insufficient to eliminate child labour; a "cash-plus" approach is needed,
combining financial support with interventions that address the underlying drivers of child labour.
Other factors include the migration of the head of household and the loss of one or both parents,
which put households under additional economic pressure. Natural shocks, such as disasters,
increase dependence on child labour. The primary reasons cited by parents or guardians for
235
International Labour Organization. (n.d.). Child labour in domestic work: A scoping study in Pakistan. Retrieved from https://www.ilo.org
236
Prevalence of Child Labour in Pakistan – The State of Children in Pakistan. (n.d.-b).
https://stateofchildren.com/child-labour-in-pakistan/prevalence-of-child-labour-in-pakistan/

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allowing children work are to help with household enterprises, to support the family and to
supplement household income. These findings illustrate that poverty, education and socio-
economic challenges interact to perpetuate child labour.
Multidimensional Consequences of Child Labour
Both survey findings highlight the consequences of child labour and show that it has a
detrimental effect on children's well-being and development. Across all age groups, extreme
fatigue is the most frequently cited consequence faced by working children, affecting their
physical and cognitive development. This is followed by injury or poor health, which is particularly
pronounced in older children and has a negative impact on their general health and ability to
perform daily tasks.
A disturbing pattern observed in both surveys is that working children are significantly less likely
to attend school than their non-working peers. This inequality increases with age, suggesting that
child labour remains a major barrier to education, which ultimately affects children's future
opportunities and reinforces the cycle of poverty.
Injuries are disproportionately common among working children and occur much more
frequently compared to their non-working peers. Exposure to health hazards increases with age,
particularly among girls, which enhances their vulnerability.
Both in Punjab and KP, many children engaged in labour face physical, psychological, or sexual
abuse, with boys reporting slightly higher rates than girls. Psychological abuse, such as
intimidation and verbal harassment, can lead to anxiety, low self-esteem, and long-term
emotional distress. Physical violence, including beatings and harsh punishments, can result in
injuries and chronic trauma. Sexual exploitation is also a serious risk, particularly for girls and
vulnerable children, leading to lasting psychological scars and further perpetuating cycles of
abuse and exploitation.

Percentage of children aged 5-14 in child Percentage of children aged 5-17 in child
labour in Punjab that experienced abuse at labour in KP that experienced abuse at
work by type of violence and sex work by type of violence and sex
20 20

16.7 16.7 16.4

16.1
15.0 14.5
% of children in child labour

% of children in child labour

15 15
13.4 13.1

10 10

4.9
5 5 4.1 4.0
2.9
0.7 0.3 0.5 0.7
0 0
Boys Girls Boys Girls

Any abuse Psychological abuse Physical abuse Sexual abuse

Source: PCLS 2019-20 Source: KPCLS 2022

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NCRC Proposes Amendment to Criminalise Child Labour in Domestic Work

In 2024, the NCRC has proposed an amendment to the Pakistan Penal Code and the Code of
Criminal Procedure to criminalise child labour in domestic settings and eliminate slavery-like
practices. The proposal includes the introduction of two new sections in PPC 1860: Section
374A: Engaging a Child in Domestic Work and Section 374B: Punishment for Parents or
Guardians. The proposed amendments provide for severe penalties, including imprisonment
of three to seven years and fines of at least PKR 100,000 for employing children under the age
of 18 as domestic workers. Exceptions are made for children over 16 engaged in light,
supervised and non-hazardous work. Parents or guardians will be held accountable and fined
if they allow children to work in exploitative conditions. The proposed Bill is under review by
the Ministry of Law and Justice.

Legal and Institutional Framework

Pakistan's legal framework for child labour consists of constitutional provisions, federal laws and
provincial laws aimed at protecting children from economic exploitation and hazardous work.
The Constitution of Pakistan 1973 prohibits the employment of children under the age of 14 in
hazardous occupations (Article 11(3)) and mandates free and compulsory education for children
between the ages of 5and 16 (Article 25-A). The PPC, 1860, criminalises child trafficking, forced
labour and cruelty towards children.
At the federal level, the Employment of Children Act,1991 prohibits child labour in hazardous
occupations and regulates working conditions for adolescents (14–18 years). At the provincial
level, Punjab, Sindh, KP and Balochistan have enacted child labour laws that set a minimum age of
employment and regulate hazardous work. While Punjab prohibits child labour under the age of
15, Balochistan, Sindh and KP have set the minimum age at 14. These laws restrict hazardous work
for adolescents between the ages of 14 and 18 (15 and 18 in Punjab) and provide penalties for
violations.
Pakistan's labour laws dealing with child domestic labour (CDL) vary from province to province.
The ICT Domestic Workers Act, 2022 and the Punjab Domestic Workers Act, 2019 prohibit CDL
under the age of 16 and 15 respectively, while Balochistan classifies CDL as hazardous and
prohibits the employment of children under the age of 18. The Sindh Child Protection Authority
Act, 2011 recognises domestic work as a form of exploitation but does not contain a specific legal
prohibition. In KP and Sindh, there is no explicit prohibition of CDL in the laws, leaving gaps in
legal protection for CDL.
Sector-specific laws such as the Factories Act, the Mines Act and the Shops and Establishments
Act regulate child labour in all industries, while the Bonded Labour System (Abolition) Act and the
Prevention of Trafficking in Persons Act (2018) take action against forced and bonded labour of
children.
Various departments at the federal and provincial levels play an important role in combating child
237
labour in Pakistan. At the provincial level, labour departments and labour inspectors play a
central role in enforcing the law. They are tasked with monitoring workplaces, ensuring
compliance with child labour laws and identifying violations. However, their jurisdiction is often

237
Institutional Framework for Child Labour in Pakistan – The State of Children in Pakistan. (n.d.).
https://stateofchildren.com/child-labour-in-pakistan/institutional-framework-for-child-labour-in-pakistan/

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limited to the formal sectors, meaning that a large proportion of child labour workforce in the
informal sectors is not regulated.
The police are tasked with dealing with criminal offences such as abuse, assault, harm, cruelty
and human trafficking. Child protection agencies are responsible for protecting children,
including those involved in CDL, by focussing on rescue, rehabilitation and reintegration. Child
Protection Officers (CPOs) are authorised to intervene when children are at risk and ensure their
protection and access to support services.
Education Departments which provide both formal and non-formal education, play a role in
preventing child labour through education. Social welfare departments and social protection
agencies (Benazir Income Support Programme, Punjab Social Protection Authority, etc.) aim to
reduce economic pressure on families and reduce their dependence on child labour. District
Vigilance Committees (DVCs), established under the Bonded Labour System (Abolition) Act,
1992, are mandated to monitor and provide redressal to children living in bonded labour.
Labour Inspections
Labour inspection systems in Pakistan remain weak and largely ineffective in addressing child
labour. There is no dedicated child labour inspection mechanism. According to the ILO,
enforcement efforts are constrained by insufficient staffing, limited training on child labour issues,
238
and lack of coordination between inspection authorities and child protection systems.
The data on labour inspections in Balochistan and KP show remarkable differences in the
239
enforcement of regulations in the two provinces. However, these differences need to be
interpreted in the context of factors such as population size, economic activity and institutional
capacity. KP consistently reports a higher number of inspections, reflecting greater industrial
activity and a more structured inspection framework rather than stronger enforcement alone.
Despite the difference in inspection volumes, convictions and penalties remain low in both
provinces. Another problem is the inconsistency of the penalties imposed by the courts, which
casts doubt on their deterrent effect. Although fines have increased over time, they remain
relatively low. The low conviction rate also points to systemic challenges, including weaknesses
in enforcement, procedural delays, etc., all of which undermine accountability.

Table 58: Labour Inspections in Balochistan and KP

No. of inspections No. of convictions Fine/Penalties imposed by Court
Year
Balochistan KP Balochistan KP Balochistan KP
2022 241 8,982 5 360 500 385,862
2023 387 10,567 10 245 10,000 600,000
2024 221 2,928 3 17 3,000 51,000
(1 Jan-30 May 2024)
Balochistan
(1 Jan-28 Feb 2024)
KP
Source: Director General of Labour Welfare Balochistan & Directorate of Labour, KP

238
International Labour Organization. (2019). Accelerating action against child labour: Global report on child labour and forced labour.
International Labour Organization.
239
Inspection records were not made available by Punjab and Sindh departments

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Gaps and Challenges

Child labour is widespread in Pakistan, driven by poverty,240 lack of education,241 weak
242
enforcement, and social acceptance. The majority of child labour takes place in the informal
sector, particularly in agriculture, where existing laws are unenforceable, and compulsory
243
education laws are poorly enforced. Low school enrolment rates, a high number of children not
attending school, large family sizes, economic pressure and inadequate social protection
mechanisms further push children into labour. 244 Weak coordination between labour
departments, child protection agencies, and law enforcement hinders effective case
245
management and referrals. Rescued child workers often have no access to rehabilitation,
vocational training and psychosocial support, or social protection schemes, including support for
their families, leaving them trapped in a cycle of vulnerability.
CDL remains a hidden and unregulated form of child labour. Children who work as domestic
helpers usually have no formal agreements or contracts that protect them. As a result, these
children are often ignored by laws and social protection systems, making them easy targets for
abuse and exploitation.246 The lack of data and lack of monitoring mechanisms in private
households means that children working as domestic workers are not counted and are
unprotected.247 Labour inspectors are not authorised to enter private homes without permission,
police and child protection agencies are responsible for responding to cases of abuse and
exploitation. However, their intervention is typically limited to extreme instances, leaving many
248
cases of child labour unaddressed.
Key Recommendations to Address Child Labour in Pakistan
Pakistan must adopt a coordinated approach to eliminate child labour, including its hidden forms
like child domestic labour, through legal reforms, strengthened enforcement, education, and
social protection.
1. Legal and Policy Reforms
• Harmonise child labour laws across provinces to establish a uniform minimum working age
of 16 and prohibit hazardous work for those under 18, in line with Article 25-A of Pakistan
Constitution.
• Explicitly ban child domestic labour in all provincial laws, recognising its exploitative
nature, and amend the PPC, 1860 to criminalise abuse of child domestic workers under
Section 374A.
• Ratify ILO Convention 189 to extend labour protections to domestic workers and empower
authorities to inspect households for violations.

240
World Bank. (2021). Poverty and inequality: Addressing the drivers of child labour in South Asia. Retrieved from
https://www.worldbank.org
241
UNICEF. (2021). Child labour and education: Addressing the barriers. Retrieved from https://www.unicef.org
242
International Labour Organization (ILO). (2023). Tackling child labour in Pakistan: Policies, initiatives, and challenges. Retrieved from
https://www.ilo.org/sites/default/files/wcmsp5/groups/public/%40ed_norm/%40ipec/documents/publication/wcms_888809.pdf
243
National Commission on the Rights of Child. (2021). Policy Brief on the Legal Framework for Child Domestic Labour in Pakistan.
244
SFJ, NCHR. (2023). Situation Analysis of Child Labour in Punjab
245
SFJ, NCHR. (2023). Situation Analysis of Child Labour in Punjab.
246
Anti-Slavery International. (2021). Child Domestic Workers: Hidden Exploitation and Abuse.
247
National Commission on the Rights of Child. (2021a). Policy Brief on the Legal Framework for Child Domestic Labour in Pakistan.
248
National Commission on the Rights of Child. (2021a). Policy Brief on the Legal Framework for Child Domestic Labour in Pakistan.

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2. Strengthening Enforcement and Case Management

• Expand labour inspections to cover informal sectors and private households, with digital
reporting tools for communities to report violations.
• Establish Local Monitoring Committees (LMCs) to identify child labour cases at the
grassroots level and refer them to child protection agencies for intervention.
• Enhance inter-agency coordination between labour departments, child protection units,
and law enforcement to ensure rescued children receive comprehensive case
management, including: immediate removal from hazardous work, psychosocial support
and medical care, legal assistance and reintegration into education or vocational training
3. Education and Social Protection
• Link conditional cash transfers (e.g., BISP) to school attendance, prioritising families in high-
risk sectors (e.g., CDL, brick kilns) to reduce economic dependence on child labour.
• Establish non-formal education centres with flexible timings for working children, coupled
with vocational training (TVET) for adolescents (14–18) to transition into safe employment.
• Address barriers to education by providing free uniforms, meals, and transportation
subsidies to improve retention rates.
4. Awareness and Advocacy
• Launch nationwide campaigns challenging societal norms that normalise child labour,
using media, religious leaders, and survivor testimonials.
• Engage employers and middlemen in awareness programmes to discourage demand for
child labour in domestic work and informal sectors.
5. Data and Research
• Conduct provincial surveys on child labour every five years to provide updated data for
informed policymaking.
• Broaden the scope of the Labour Force Survey conducted by the PBS to include children
aged 5–17, and introduce a focus on CDL to capture data on children engaged in domestic
work across urban and rural areas.

5.4 Street-Connected Children

Street-connected children are among the most marginalised and vulnerable populations in the
world, including Pakistan. These children, for whom the street is a central reference point for their
identity, livelihood or survival, often face multiple challenges ranging from poverty and
exploitation to social exclusion.249 Their existence is inextricably linked to the street environment,
whether they live on the street, work there or rely on its networks for support.
The street-connected children in Pakistan are not a homogenous group. They engage in a range
of activities and face a variety of circumstances. Like all other children, they are entitled to rights
such as protection, education, healthcare, and participation under the UNCRC. Many of these
children belong to the broader category of out-of-school-children, includes children who have

249
NCRC. (n.d.). Causes and Impact of Street Children – The State of Children in Pakistan. Retrieved from
https://stateofchildren.com/street-children-in-pakistan/causes-and-impact-of-street-children/

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been displaced for economic reasons, migrants or survivors of natural disasters. Their
connection to the streets can be understood through the following categories,250 defined by
UNICEF:
1. Children 'of' the Street: Those who live and sleep on the streets, often relying on informal
networks for survival.
2. Children 'on' the Street: Those who work on the streets during the day but return to their
families or shelters at night.
3. Street-Family Children: Those who live with their families on the streets, sharing the street
environment as their primary living space.
Prevalence of Street-Connected Children
The prevalence of street-connected children in Pakistan remains a critical but largely
undocumented problem, as there is no comprehensive data on the actual number of children
living and working on the streets. These children mainly live in urban centres and big cities such
251
as Karachi, Lahore, Peshawar, Rawalpindi and Multan. In Peshawar and Quetta, there is also a
significant number of Afghan children.252
In these urban areas, street-connected children engage in various forms of labour and survival
activities, often under exploitative and hazardous conditions. Many of them are forced into
begging by their families or trafficking networks,253 making them highly vulnerable to abuse,
violence and criminal exploitation. The law prohibits begging in Pakistan, but the practice is still
widespread. A regional survey conducted by the ILO in 2006 found that 34% of beggars surveyed
in Pakistan were forced into begging and controlled by organised mafias. It is estimated that there
are between five and 25 million beggars in the country, a significant proportion of whom are
254
children, but there is no authentic data available to quantify the beggar population.
Other children work as street vendors and hawkers. They have to endure long working hours and
255
extreme weather conditions and have little or no protection. Child waste pickers are among the
most vulnerable groups, as they are exposed to toxic materials, health risks and exploitative
intermediaries. Children working in informal sector, such as in garages, tea stalls or markets, are
also exposed to exploitative wages, physical abuse and unsafe environments.
Many street-connected children are runaways, fleeing domestic violence and neglect, having lost
256
one or both parents. Reports from child protection organisations indicate that once on the
streets, they form links with street communities that provide them with temporary support, but
also expose them to serious risks, including exploitation, violence, drug abuse, trafficking and
forced involvement in organised crime.257
The 2022 study by Wafaqi Mohtasib highlights the extreme vulnerability of street children in
Islamabad and cites poverty, family pressure and human trafficking as the main reasons for their
presence on the streets. Forced begging and organised exploitation, particularly by begging
250
Concept and Types of Street Children – The State of Children in Pakistan. (n.d.).
https://stateofchildren.com/street-children-in-pakistan/concept-and-types-of-street-children/
251
Iqbal, F. (2012). Emotional problems of street children in three major cities of Pakistan. Pakistan Journal of Clinical Psychology, 11(2).
252
Tufail, P., Ahmad, M., & Khan, S. (2004). Child labour among Afghan refugee children: Investigating the underlying drivers. Pakistan
Institute of Development Economics.
253
BBC News. (2013, June 1). Child victims of Pakistan's 'begging mafia'. https://www.bbc.com/news/magazine-22729351
254
The News International. (2020, May 18). Child begging. https://www.thenews.com.pk/print/660213-child-begging
255
Society for the Protection of the Rights of the Child (SPARC). (2018). The State of Pakistan's Children.
256
Zia, H. (2021). A qualitative exploration of abuse among street children. Global Anthropological Studies Review, 1(1), 1–10.
257
The Independent. (2022, July 11). Exploitation, addiction and slavery among Pakistan's street children.

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mafias, were identified as significant threats that expose children to violence, abuse and
hazardous working conditions. Although 91% of street children live with their families, many
remain trapped in exploitative situations. The study also found that most street-connected
children in Islamabad are boys (65%), with an average age of 12 years, who engage in small-scale
economic activities in unsafe and exploitative conditions and have limited access to basic
services such as healthcare and sanitation.
Legal and Institutional Framework
Pakistan’s legal framework for street-connected children includes child protection and labour
laws aimed at protecting their rights and welfare. The child protection laws provide for rescue,
rehabilitation and welfare mechanisms, while the labour laws only apply when children are
working in formal workplaces, leaving informal and unregulated sectors largely unprotected.
Provincial child protection laws establish dedicated bodies to support vulnerable children,
including the Sindh Children Act 1955, Punjab Destitute and Neglected Children Act 2004, KP
Child Protection and Welfare Act 2010, Sindh Child Protection Authority Act 2011, Balochistan
Child Protection Act 2016 and ICT Child Protection Act 2018. These laws provide for child
protection services, case management systems and rehabilitation centres. The Sindh Street
Children Shelter Home Act, 2018 aims to provide specialised interventions in Sindh through
shelter homes that provide education, vocational training and healthcare. In Pakistan, the West
Pakistan Vagrancy Ordinance 1958 is enforced in all provinces except KP. This law categorises
street-connected children as vagrants and allows the police to arrest them without a warrant.
Although these provisions aim to rehabilitate vulnerable children through welfare homes, they
often criminalise poverty rather than tackling its root causes. This approach increases the risk of
violence and abuse by law enforcement, exploiters, and even members of the public, highlighting
the urgent need to prioritise protective and rehabilitative support over punitive measures.
The issue of street-connected children in Pakistan is primarily the responsibility of the child
258
protection authorities and the social welfare department. The police help in rescue operations
to remove children from the streets. Once the children are rescued, they are usually placed in
Child Protection Institutes (CPI) or shelters.259 These facilities, if available in the district, provide a
temporary safe place where the children have access to basic services such as food, healthcare
and psychosocial support. The shelters are usually set up and managed by provincial social
welfare departments. In Punjab, the CP&WB operates its own CPIs and is authorised to issue
licences to private organisations to operate child protection facilities. However, preventive
measures remain limited. Access to education, social protection programmes, and family-
strengthening support is often unavailable, making it difficult to address the underlying factors
that push children to the streets.
Gaps and Challenges
Street-connected children are among the most marginalised and at-risk groups in Pakistan,
facing extreme forms of violence, exploitation, and social exclusion. Systematic gaps in the legal,
institutional and social framework hinder an effective response to the needs of street-connected
children. The lack of reliable data makes it difficult to assess the scale of the issue, leaving many
260
children invisible to policy makers and service providers. While child protection laws exist, they

258
Institutional Framework for Street Children in Pakistan – The State of Children in Pakistan. (n.d.).
https://stateofchildren.com/street-children-in-pakistan/institutional-framework-for-street-children-in-pakistan/
259
Institutional Framework for Street Children in Pakistan – The State of Children in Pakistan. (n.d.).
https://stateofchildren.com/street-children-in-pakistan/institutional-framework-for-street-children-in-pakistan/
260
United Nations Children's Fund (UNICEF). (2019). Situation Analysis of Children in Pakistan.

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often fail to recognise the specific needs of children in street situations. These children require a
rights-based, child-centred approach that prioritises their protection, development, and
reintegration, in line with the CRC Committee General Comment No. 21.
The institutional framework remains fragmented and underfunded while children face severe
social stigmatisation and discrimination, which severely limits their access to essential services
and their integration into society.261 Street-connected children face acute health risks due to their
precarious living conditions and lack of access to health services, exposing them to malnutrition,
262
disease and substance abuse. The establishment of District Child Protection Units (DCPUs),
which provide case management and referral services, is progressing slowly. While some
children live with their families, others lack parental care altogether, requiring different and
customised support mechanisms.263 Moreover, child protection efforts focus on reactive
measures rather than prevention, and fail to address root causes such as poverty, domestic
264
violence, and lack of social protection.
Although police are responsible for rescuing children from harmful environments, law
enforcement responses are often punitive rather than protective,265 with frequent reports of
harassment, unlawful detention, and neglect undermining trust in the system.266 The focus should
be on long-term solutions, including strengthened social protection, access to education, family
support programmes, and safe alternative care options.
Key Recommendations to Protect Street-Connected Children in Pakistan
Pakistan must prioritise comprehensive reforms to protect street-connected children from
systemic neglect and abuse by addressing root causes and undertaking urgent interventions
across key areas: protection, prevention, rehabilitation, and social inclusion.
1. Policy Reforms
• Provinces should expedite the approval of the already drafted Child Protection Policy,
supported by provincial action plans and clear accountability mechanisms.
• Strengthen role of District Child Protection Committees to oversee implementation,
monitoring, and periodic evaluation of interventions
2. Expand and Strengthen District Child Protection Units (DCPUs)
• Establish DCPUs in every district to ensure localised access to child protection services.
• Develop a simple and accessible registration system for migrant families to account for
children during transitions and to ensure continued access to education and social
services.
• Implement the Child Protection Information System in all provinces to ensure coordinated
tracking and follow-up of individual cases across districts.

261
Consortium for Street Children (CSC). (2020). Changing Perceptions: Addressing Stigma and Supporting Street-Connected Children.
CSC.
262
World Health Organization (WHO). (2019). Health and Vulnerabilities of Marginalised Children in Urban Settings: A Focus on South Asia.
WHO Regional Office for South-East Asia.
263
Society for the Protection of the Rights of the Child (SPARC). (2021). Child Protection System in Pakistan: Gaps and Recommendations.
264
United Nations Office on Drugs and Crime (UNODC). (2018). Comprehensive Response to Vulnerability: Prevention as a Key Strategy in
Child Protection. UNODC.
265
Human Rights Watch (HRW). (2020). "No Room to Breathe": Child Rights Violations by Law Enforcement in Pakistan. HRW.
266
Human Rights Watch (HRW). (2020). "No Room to Breathe": Child Rights Violations by Law Enforcement in Pakistan. HRW.

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3. Establish Drop-In and Non-Residential Facilities

• Establish child-friendly drop-in centres in urban areas to provide basic services such as
hygiene, nutrition, healthcare, and recreational opportunities.
• Use these centres as referral hubs for services like psychosocial support, drug
rehabilitation, education, and vocational training.
• Establish flexible, non-formal education programmes at Drop-in-Centres or separate
tailored to the unique needs of street-connected children, enabling their reintegration into
the formal education system.
4. Enhance Data Collection and Research
• Conduct periodic nationwide surveys and district-level assessments to identify trends,
gaps, and emerging challenges. Analyse the root causes, including socio-economic
factors, migration patterns, and systemic failures, to design evidence-based policies.
• Implement innovative and ethical methodologies, such as head counts and participatory
research, to accurately estimate the number of street-connected children.
5. Community Awareness and Social Inclusion
• Launch campaigns to challenge societal stigma and stereotypes against street-connected
children, promoting their inclusion and rights.
• Collaborate with religious leaders, community influencers, and civil society organisations
to advocate for the prevention and protection of street-connected children.

5.5 Child Trafficking

Child trafficking is a grave human rights violation that exploits and endangers the lives of children.
As defined by the United Nations Office on Drugs and Crime (UNODC), child trafficking involves
the recruitment, transportation, transfer, harbouring, or receipt of children for the purpose of
exploitation. Unlike trafficking in adults, the element of consent is irrelevant in cases of child
trafficking. Children are deemed incapable of legally consenting to their exploitation, and the
mere act of recruitment, transfer, or harbouring for exploitative purposes is sufficient to classify an
act as trafficking, regardless of whether the exploitation has occurred.
Child trafficking includes various forms of exploitation, which differ in context and practice but
share a common thread of severe harm and abuse inflicted upon victims. These include sexual
exploitation, forced labour, begging, forced marriage, child soldiers, and organ harvesting,
267
among others.
Prevalence of Child Trafficking
The cases reported by the provincial police departments for the period from 1 January 2024 to 31
December 2024 indicate various forms of child trafficking, including sexual exploitation, forced
marriage and the sale and purchase of children for prostitution. Cases registered under sections
366-A, 367-A, 371-A and 371-B fall under the definition of child trafficking as they involve the
recruitment, movement, and exploitation of children. However, cases under Section 365-B
(kidnapping for the purpose of forced marriage) may constitute trafficking in persons if elements

267
UNICEF. (2018, July 27). Children make up almost one-third of all human trafficking victims worldwide. Retrieved from
https://www.unicef.org/stories/children-make-almost-one-third-all-human-trafficking-victims-worldwide

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of coercion, exploitation or financial gain are present. Notably, this dataset does not include other
common forms of child trafficking such as forced labour and bonded labour, nor does it include
cases registered under the Trafficking in Persons Act 2018, which criminalises internal and cross-
border trafficking for various exploitative purposes.

Table 59: Cases of Child Trafficking in Pakistan (1 Jan 2024 to 31 Dec 2024)
Section ICT KP Punjab Sindh
Details Total
(PPC) M F X M F X M F X M F X
Kidnapping,
abducting or
365-B inducing any 0 268 0 22 218 0 588 6,647 0 0 2,811 0 10,554
woman to compel
for marriage etc.
Procuration of a
366-A 0 0 0 0 0 0 2 3 0 0 18 0 23
minor girl.
Kidnapping or
abducting in order
367-A to subject a 0 0 0 1 0 0 368 24 0 2 3 0 398
person to
unnatural lust.
Selling any person
371-A for purposes of 0 0 0 0 2 0 0 8 0 30 50 0 90
prostitution, etc.
Buying any
person for
371-B 0 0 0 0 0 0 0 8 0 18 48 0 74
purposes of
prostitution, etc.
Total 0 268 0 23 220 0 958 6,690 0 50 2,930 0 11,139
Source: ICT Police, KP Police, Punjab Police, Sindh Police

According to Balochistan Police, only one case of child trafficking was reported between 1
January 2022 and 20 September 2024. Also, 96 cases of child abduction and kidnapping were
registered, involving 49 male and 47 female victims. However, it is likely that offences falling
under provisions such as Section 366-A, 371-A and 371-B were overlooked in reporting or
misclassified under other statutory provisions.
According to TIP Report 2024, the Government of Pakistan investigated 1,936 cases of human
trafficking under the Prevention of Trafficking in Persons Act (PTPA) in 2022, including 856 cases
of sex trafficking and 988 cases of forced labour.268
Cultural and social norms often disguise certain forms of child trafficking, which leads to them
being socially accepted and not reported as a crime. For example, child domestic work is often
seen as providing a job rather than a form of exploitation and is only noticed in extreme cases of
abuse.269 Similarly, children subjected to commercial sexual exploitation remain hidden in illegal
networks and only surface through law enforcement interventions. These factors make it difficult
to quantify the true extent of child trafficking in Pakistan, as many cases do not meet recognised

268
U.S. Department of State. (2024). 2024 Trafficking in Persons Report: Pakistan. Retrieved from https://www.state.gov/reports/2024-
trafficking-in-persons-report/pakistan/
269
International Labour Organization. (2021). Child labour in domestic work in Pakistan: A scoping study.
https://www.ilo.org/sites/default/files/wcmsp5/groups/public/%40asia/%40ro-bangkok/%40ilo-islamabad/documents/publication/
wcms_851153.pdf

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legal definitions, are misclassified as other offences or remain undetected due to deep-rooted
270
societal attitudes.
Legal and Institutional Framework
Article 11 of the Constitution of Pakistan, 1973 explicitly prohibits all forms of slavery, forced labour,
and trafficking. The PPC, 1860 criminalises kidnapping, abduction, and trafficking for exploitation
under Sections 369A, 365B, 366A, 367A, 371A, and 371B, prescribing severe penalties for
offenders. The Prevention of Trafficking in Persons Act (PTPA), 2018 is the primary national law
addressing trafficking of both adults and children, establishing measures for prevention,
prosecution, and victim rehabilitation. It defines a child as anyone under 18 years of age and
imposes strict penalties, with offenders facing up to 10 years' imprisonment and a fine of up to one
million rupees when the victim is a child or woman.
At the provincial level, the child protection laws of Sindh, Balochistan, KP and ICT explicitly
recognise child trafficking and provide mechanisms for the protection, rehabilitation and
reintegration of victims. The Sindh Child Protection Authority Act 2011, the Balochistan Child
Protection Act 2016, the ICT Child Protection Act 2018 and the KP Child Protection and Welfare
Act 2010 recognise child trafficking as a form of exploitation and provide protection services for
trafficked children. While the Punjab Destitute and Neglected Children Act 2004 does not
specifically mention trafficking, it criminalises forced begging and exploitation and allows the
CP&WB to intervene in cases of trafficking.
The FIA plays a leading role in cases of cross-border human trafficking.271 The FIA operates a
dedicated wing to combat trafficking and smuggling in transnational crimes. In cases of internal
trafficking, the police serve as the primary enforcement agency in Pakistan, whereas cases
involving bonded labour and labour exploitation, both the Labour Department and the Police
share responsibilities. The Labour Department is primarily responsible for monitoring
workplaces, identifying cases of bonded labour, and ensuring compliance with labour laws. The
Police, on the other hand, are responsible for the criminal law aspects. Child protection
organisations play an important role in the protection, recovery, rehabilitation and reintegration of
child victims of trafficking.
Gaps and Challenges
Child trafficking is a grave violation of children's rights requiring urgent and child-sensitive
responses. While Pakistan has legal provisions against trafficking, enforcement gaps, weak
victim support services, and deeply embedded social norms continue to leave many children
vulnerable to exploitation. Pakistan is classified as a Tier 2 country by the U.S. Department of
State's Trafficking in Persons (TIP) Report, which means that while efforts are being made to
combat trafficking, the country does not fully meet the minimum standards for the elimination of
272
trafficking in persons.
Pakistan faces a number of challenges in addressing child trafficking, including low awareness
and poor understanding of the different forms of trafficking. Many people do not recognise the
different forms of human trafficking. These include sexual exploitation, forced labour, forced

270
Aga Khan University. (2021, March 12). Majority of child abuse cases in Pakistan go unreported: experts.
https://www.aku.edu/news/Pages/News_Details.aspx?nid=NEWS-002473
271
Institutional Framework for addressing Child Trafficking – The State of Children in Pakistan. (n.d.).
https://stateofchildren.com/child-trafficking-in-pakistan/institutional-framework-for-addressing-child-trafficking/
272
U.S. Department of State. (2024). 2024 Trafficking in Persons Report: Pakistan.
https://www.state.gov/reports/2024-trafficking-in-persons-report/pakistan/

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marriage, organ trafficking and exploitation for criminal activities such as drug smuggling or
begging. This lack of recognition makes it difficult to identify and effectively combat human
trafficking.273 The complexity of exploitation makes the issue even more complicated. For
instance, victims of forced or bonded labour may be forced to work under fraudulent or abusive
274
conditions without this being perceived as trafficking by them or their families. Even in cases of
forced marriage, deeply ingrained cultural norms often mask the fact that the person is being
trafficked for exploitation. Economic hardship and lack of regulation in the informal sector
exacerbate the risk of human trafficking, particularly in agriculture, domestic work and bonded
labour.275
The legal framework dealing with child trafficking is also confusing as laws such as the PPC,
labour laws and provincial child protection laws overlap, leading to confusion in enforcement and
prosecution.276 Law enforcement agencies face resource constraints, including inadequate
infrastructure, training and personnel, which affect their ability to effectively identify, investigate
and prosecute child trafficking cases. Protection and rehabilitation services for victims remain
277
inadequate. They have limited access to shelter, medical care, legal aid and vocational training.
Weak coordination and information sharing between federal, provincial and local authorities
responsible for prevention, investigation, prosecution and victim rehabilitation undermine anti-
trafficking initiatives and child protection services for victims of trafficking.278
A child protection-centred response should include comprehensive prevention efforts (such as
school-based awareness, birth registration, and social protection for vulnerable families), a
strengthened referral system to connect child trafficking survivors to specialised services, and
child-friendly investigative procedures to prevent further trauma. Without these essential
interventions, trafficked children remain at high risk of re-trafficking and long-term harm.
Recommendations to Address Child Trafficking in Pakistan
Child trafficking remains a critical human rights challenge in Pakistan, requiring a multi-sectoral
response to address legislative gaps, institutional weaknesses, and ensure effective prevention
and protection measures for children.
1. Legislative and Policy Reforms
• Harmonise the definition of a "child" (under 18) across all laws, including the PPC, labour
laws, and provincial child protection acts, to eliminate contradictions.
• Amend the PTPA, 2018 to fully align with the Palermo Protocol, explicitly criminalising all
forms of trafficking, guarantee victim compensation and a precedence clause in the PTPA
to override conflicting laws.
• Consolidate fragmented trafficking-related laws into a single Human Trafficking Code to
streamline enforcement and reduce jurisdictional overlaps.

273
United Nations Office on Drugs and Crime (UNODC). (2018). Global report on trafficking in persons 2018. Retrieved from
https://www.unodc.org/unodc/en/data-and-analysis/glotip.html
274
International Labour Organization (ILO). (2017). Global estimates of modern slavery: Forced labour and forced marriage.
275
International Labour Organization (ILO). (2021). Informal economy in South Asia: Challenges and policy responses. Retrieved from
https://www.ilo.org/global/research
276
Policy and Law- Child Trafficking – The State of Children in Pakistan. (n.d.). https://stateofchildren.com/policy-and-law-child-trafficking/
277
International Organization for Migration (IOM). (2020). Assisting victims of trafficking: Standards and practices.
278
United Nations Office on Drugs and Crime (UNODC). (2021). Strengthening the coordination of responses to human trafficking and
bonded labour in South Asia.

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2. Institutional Strengthening and Victim Support

• Child protection agencies across should implement the case management and referral
system framework to connect trafficking victims with service providers, including shelters,
counselling, legal support, and rehabilitation services, ensuring timely and effective
assistance.
• Develop and implement SOPs nationwide to standardise the identification, assistance, and
referral of trafficking victims.
3. Capacity Building
• Conduct capacity-building programmes for the Police and FIA, focusing on technical
investigations, use of digital tools, and application of the PTPA to ensure proper
identification and prosecution of trafficking cases.
• Train judges on the nuances of child trafficking, internal trafficking issues, and the
application of the PTPA, emphasising victim-centred adjudication.
4. Awareness and Public Engagement
• Launch nationwide campaigns using local languages to educate communities about the
signs and risks of trafficking. Incorporate outreach through schools, social media, and
traditional media channels to maximise reach.
• Involve community leaders, teachers, and civil society in identifying and reporting
trafficking incidents. Schools should monitor student attendance to identify early signs of
vulnerability or exploitation and report drop-out to authorities.
5. Economic and Social Safeguards
• Link social protection programmes with school attendance incentives to discourage child
labour and reduce vulnerabilities to trafficking.
• Advocate for and coordinate with relevant sectors to expand employment-generation
schemes for vulnerable families, in order to alleviate economic pressures that increase
children's risk of exploitation.
6. International and Cross-Border Collaboration
• Strengthen collaboration with destination countries and neighbouring states through
information exchange, adoption of best practices, and joint investigations to combat
transnational trafficking.
• Train border security forces to identify trafficking indicators and prevent cross-border
smuggling of children.

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5.6 Juvenile Justice

The juvenile justice system is a specialised child-centred framework designed to uphold the
rights of children in conflict with the law while ensuring their rehabilitation and reintegration into
society. It seeks to divert children away from formal judicial proceedings and prioritise restorative,
279
non-custodial solutions whenever possible. A child in conflict with the law is defined as any
person under the age of eighteen who has committed, or is accused of committing an offence.
Unlike the adult criminal justice system, which focuses on punitive measures, juvenile justice is
centred on rehabilitation and reintegration. Children in conflict with the law often come from
marginalised backgrounds and face systemic barriers such as poverty, abuse, and lack of
education. Juvenile incarceration exposes children to trauma, social stigma, and disruption of
education, significantly reducing their chances of rehabilitation and increasing the risk of
reoffending.280 Without appropriate support systems, diversion programmes, and child-friendly
procedures, the justice system risks criminalising vulnerability rather than addressing its root
causes.
Juveniles in Detention
If children are suspected or accused of having committed an offence, they may be detained, tried
or sentenced. The information available from the Prison Departments primarily relates to children
who are in custody, either as undertrial prisoners or as convicted offenders who have been found
guilty.

Table 60: Juvenile Population in Detention Centres as on 31 Dec 2024

Undertrials Convicted
Regions Total
Male Female Male Female
Balochistan 9 0 14 0 23
KP 292 2 10 0 304
Punjab 684 0 167 0 851
Sindh281 286 0 11 0 297
Total 1,271 2 202 0 1,475
Source: Prisons Department (Balochistan, KP, Punjab, Sindh)

On 31 December 2024, a total of 1,475 juveniles were in custody. These children were detained in
all four provinces of Pakistan, including adult prisons, Youthful Offenders Industrial Schools
(YOIS), Remand Home Karachi and Borstal Institutes. The overwhelming majority of them - 1,473 -
were male, while only 2 female children were reported. The vast majority (86%) were reported as
undertrial and only 14% were convicted. Punjab has the highest number of imprisoned children
and accounts for more than half of all imprisoned children in the country (58%).
The official number of children in detention at any given time does not fully reflect the extent of
children who have come into conflict with the law during the year, as this figure is much higher. For
example, 277 children were in detention in Sindh on 31 December 2024 (excluding Karachi
Remand Home), a total of 1,362 children experienced detention in the province over the course of
279
Committee on the Rights of the Child. (2019). General Comment No. 24 on children's rights in the child justice system. United Nations.
280
State of Children in Pakistan. (2024). Causes and impact of juvenile delinquency.
281
Include children from Remand Home Karachi (20 Juveniles as on 31st Dec 2024)

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 The State of Children in Pakistan 2024

2024. There were also children who were released on bail without being detained and were not
counted in the population of detention centres.

Table 61: Juvenile Population in Detention Centres (YOIS) in Sindh (2024) (01.01.2024 to 31.12.2024)
Undertrials Convicted
Regions Total
Male Female Male Female
Youthful Offenders Industrial 882 0 172 0 1,054
School & C.F Karachi
Youthful Offenders Industrial 152 0 5 0 157
School & C.F Hyderabad
Youthful Offenders Industrial 51 0 5 0 56
School & C.F Sukkur
DP & CF Larkana 93 0 2 0 95
Total 1,178 0 184 0 1,362
Source: Sindh Prisons Department

The types of offences leading to child detention vary in Punjab, KP, Sindh and Balochistan and
reflect regional trends in juvenile delinquency. In Punjab, the most common offence among
detained children is murder, followed by theft, rape, robbery/dacoity and drug offences. Murder is
also the most common offence in KP, with theft and attempted murder also significant. In Sindh,
robbery/dacoity is the most common offence among children, followed by theft and drug
offences. In Balochistan, murder continues to be the most common offence, with cases of drug-
related offences, unnatural offences and theft also being reported.
There have been cases where children have been arrested for committing crimes against other
children. During the reporting period from 1 January 2022 to 30 September 2024, a total of 46
282
children were arrested in ICT for crimes against children. The common offences committed by
these childen were rape/sodomy, kidnapping/abduction and murder.
283
Juvenile Offenders Released on Probation (Punjab, Balochistan)
Probation is a legal measure that allows children to remain in the community under certain
conditions, either with a suspended sentence or a deferred judgement. From 2022 to September
2024, Punjab released 307 children on probation, while Balochistan recorded only 10 releases in
the same period. The lower number of children released on probation in Balochistan is in line with
the overall low number of child offenders in the province.

Table 62: Children Released on Probation (1 Jan 2022- 30 Sep 2024) in Punjab
Age Group Gender
Years Total
11-15 16-17 (under 18) M F X
2022 98 5 93 96 2 -
2023 89 33 56 89 - -
2024 (1 Jan-30 Sep 2024) 120 34 86 120 - -
Source: Punjab Probation and Parole Service, Home Department, Govt. of Punjab

282
Inspector General of Police- Islamabad
283
Data on probation and parole was not provided by other provinces.
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The State of Children in Pakistan 2024

Table 63: Children Released on Probation (1 Jan 2022- 30 Sep 2024) in Balochistan
Age Group Gender
Years Total
11-15 16-17 (under 18) M F X
2022 3 1 2 3 0 -
2023 2 1 1 2 0 -
2024 (1 Jan-30 Sep 2024) 5 1 4 5 0 -
Source: Home Department, Govt. of Balochistan

Legal and Institutional Framework

The PPC of 1860 sets the minimum age of criminal responsibility (MACR) at 10 years (section 82)
and grants conditional immunity to children aged 10–14 years (section 83) if they are not mature
enough to understand the consequences of their actions. However, this MACR falls below
international standards284 and disregards the cognitive immaturity of children and their capacity
285
for rehabilitation. The UN Committee on the Rights of the Child (CRC General Comment No. 24)
recommends a minimum age of at least 14 years and urges states to raise the threshold.
Pakistan’s juvenile justice framework is primarily governed by the Juvenile Justice System Act
(JJSA, 2018) , which establishes juvenile courts and rehabilitation centres, ensures state-funded
legal representation, prohibits the death penalty for children under the age of 18, and introduces
diversion mechanisms to resolve cases outside the formal justice system. The Act establishes a
restorative framework that fundamentally rejects incarceration as a default response to child
offenders. At its core, the system prioritises diversion and community-based rehabilitation
through specialised structures. When police first encounter a child in conflict with the law, they
are legally obligated to immediately notify probation officers and Juvenile Justice Committees
under Section 9, while actively exploring diversion options like counseling or community service
per Section 4. Probation officers play a pivotal role in conducting social investigations to identify
appropriate non-custodial solutions, which may include family mediation, educational support, or
vocational training.
The law mandates that specialised juvenile courts must consider these community-based
286
alternatives as the primary response, with detention permitted only in exceptional cases of
violent offences - and even then, in separate Borstal facilities rather than adult prisons. This
approach reflects the Act's foundational principle that incarceration represents an absolute last
resort, with Section 10(4) explicitly establishing bail as the rule rather than the exception. For the
rare cases where detention occurs, the system incorporates safeguards like 72-hour maximum
preliminary detention and absolute prohibition of joint trials with adults. The framework extends
287
these protections even to cases involving federal agencies like the FIA, requiring compliance
with the JJSA's child-centred protocols regardless of the alleged offense.

284
Pakistan Observer. (2022, August 15). Implementation challenge & Pakistan's juvenile justice system.
https://pakobserver.net/implementation-challenge-pakistans-juvenile-justice-system/
285
Pakistan Observer. (2022, August 15). Implementation challenge & Pakistan's juvenile justice system.
https://pakobserver.net/implementation-challenge-pakistans-juvenile-justice-system/
286
Government of Pakistan. (2018). Juvenile Justice System Act, 2018. Islamabad: Ministry of Law and Justice. Retrieved from
https://www.molaw.gov.pk/
287
Federal Investigation Agency. (n.d.). About FIA. Retrieved from https://www.fia.gov.pk/

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Gaps and Challenges

Despite the passage of the Juvenile Justice System Act (JJSA), 2018, the rights of children in
conflict with the law continue to be undermined by systemic gaps in implementation, legal
288
protection and rehabilitation services.
ICT289 and Kp290 have notified the rules under the JJSA 2018, but other provinces have yet to notify
the necessary rules under the JJSA 2018, hindering the Act's effective implementation. Access to
legal aid remains inadequate as many children have no legal representation during
291
investigations. The CrCP 1898 facilitates bail for children under 16 in non-bailable offences
(Section 497) and JJSA 2018 provides the primary framework for bail and pretrial procedures for
but under 18, but pre-trial detention remains excessive as children accused of bailable offences
are often denied bail due to lack of awareness among law enforcement officials, judicial delays
and non-compliance with legal requirements, exposing them to prolonged detention and
292
potential abuse. It exacerbates overcrowding and expose children to prolonged
293
incarceration.
The age determination process is inconsistently applied, with low birth registration rates often
294
resulting in children being adjudicated as adults. Justice Project Pakistan identified 12 cases
between 2019–2024 where children were sentenced to death after being wrongfully tried as
295
adults due to unverified age claims.
296
Observation homes and rehabilitation centres are not established as required by law. There are
only five juvenile-specific facilities in Pakistan-two in Punjab (Faisalabad, Bahawalpur) and three
297
in Sindh (Karachi, Hyderabad, Sukkur). While Sindh has a remand home in Karachi, no such
facility exists elsewhere in Pakistan. Many children are detained in general prisons, which are
housed in separate barracks but still face harsh conditions. Pakistan's prisons are overcrowded
by 152.2%, some even by 200-300%.298 This has a severe impact on the child inmates and leads to
lack of space, poor hygiene and unsanitary conditions. Child prisoners have limited access to
vocational training, education, and rehabilitation programmes, which undermines their
reintegration into society.
Juvenile Justice Committees (JJCs), which were introduced as diversion mechanisms, remain
299
non-existent in many districts. Only eight committees have been notified in recent years across
300
a few districts, out of the approximately 160 districts where the JJSA requires an active
288
Ijaz, A., Madni, A., & Akhtar, N. (2021). Implementation of Juvenile Justice System Act 2018: Prospects and Challenges for Pakistan.
Review of Politics and Public Policy in Emerging Economies, 3(1), 79-85.
289
State of Children. (2023). KP government approved Juvenile Justice System Act (JJSA) rules. Retrieved from
https://stateofchildren.com/kp-government-approved-jjsa-rules/
290
Office of the United Nations High Commissioner for Human Rights (OHCHR). (n.d.). Treaty body report on implementation of JJSA rules
in ICT. Retrieved from
https://tbinternet.ohchr.org/_layouts/15/TreatyBodyExternal/DownloadDraft.asp x?key=X9WRXYEfPD3YN83O2aJJA07PGcSyfwK5jko
7+HE4i7RrlfcnK5D5EBVNkq2gEO7g
291
Research Society of International Law. (2023). Determination of Age & Maturity under Juvenile Justice System of Pakistan.
https://rsilpak.org/wp-content/uploads/2023/11/Determination-of-Age-Maturity-under-Juvenile-Justice-System-of-Pakistan.pdf
292
Dawn. (2023, April 7). Implementation of juvenile justice system urged. https://www.dawn.com/news/1844669
293
THE PRISONS CRISIS OF PAKISTAN –SOHRIS. (2025, February 24). https://sohris.com/the-prisons-crisis-of-pakistan
294
Legal Awareness Watch. (n.d.). The Juvenile Justice System Act, 2018.
https://legalawarenesswatch.com/wp-content/uploads/2021/10/JUVENILE-JUSTICE-SYSTEM-ACT-2018-final-1.pdf
295
Justice Project Pakistan. (2024). Growing up on death row: Child offenders in Pakistan. https://www.justiceprojectpakistan.org/reports
296
State of Children in Pakistan. (n.d.). The Juvenile Justice System Act of 2018. https://stateofchildren.com/jjsa2018/
297
THE PRISONS CRISIS OF PAKISTAN – SOHRIS. (2025, February 24). https://sohris.com/the-prisons-crisis-of-pakistan
298
THE PRISONS CRISIS OF PAKISTAN – SOHRIS. (2025, February 24). https://sohris.com/the-prisons-crisis-of-pakistan
299
Paradigm Shift. (2020, December 14). The Juvenile Justice System Act, 2018 in Pakistan. https://www.paradigmshift.com.pk/juvenile-
justice-system-act-2018/
300
Bhatti, N. F. (2025, January 19). Where is the tender face of justice. The Express Tribune.
https://tribune.com.pk/story/2523078/where-is-the-tender-face-of-justice

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committee in each. Probation and parole systems remain underutilised due to understaffing,
underfunding, and the lack of proper social investigations in many cases. There are 75 probation
and parole officers in Punjab, including 15 female officers; 30 officers in Balochistan (including 4
female officers); 28 probation officers (including 2 female officers) and 2 parole officers in KP; and
16 probation officers (1 female officer) and 14 parole officers in Sindh. Probation officers, who play
a leading role in rehabilitative sentencing, are often not notified by the police, limiting their ability
to support case management and diversion.301 Although child offenders are released on
probation to some extent, parole has rarely been granted to children. The availability of juvenile
302
courts remains inadequate, with only 13 courts notified which limits children's access to
specialised court proceedings. Moreover, contradictory laws, such as the Anti-Terrorism Act
(1997), expose juveniles to harsh punishments, including life imprisonment, despite the
protection granted under the JJSA.303
Recommendations to Address Gaps in the Juvenile Justice System
Reforms are needed to address the shortcomings in Pakistan’s juvenile justice system and to
ensure its alignment with national laws and international standards.
1. Legal Reforms and Enforcement
• Punjab, Sindh and Balochistan should expedite the enactment of Rules of Business for the
operationalisation of the JJSA 2018 in respective provinces
• Amend the Anti-Terrorism Act, 1997, to ensure that juveniles charged under the Act are
treated in accordance with the protections offered by the JJSA.
• Raise the minimum age of criminal responsibility in Pakistan to align with international
standards and the Committee on the Rights of the Child's recommendations.
• Develop and enforce standard operating procedures (SOPs) for police officers handling
juvenile cases, with a focus on non-violent and child-sensitive approaches.
• Ensure the establishment of Juvenile Justice Committees in all districts, with dedicated
resources and personnel, and conduct training programmes for JJC members.
• Establish exclusive juvenile courts in all districts to handle cases efficiently and reduce the
burden on existing courts.
• Introduce mandatory measures to protect juveniles' privacy during court proceedings,
such as closed hearings and anonymisation of case details.
2. Enhancing Access to Legal Assistance
• Operationalise the Legal Aid and Justice Authority (LAJA) to ensure timely and effective
legal aid for juveniles in need. Establish a dedicated mechanism to link LAJA with children
in need of legal assistance to enable rapid identification and response to cases.

301
State of Children in Pakistan. (n.d.). Gaps and Challenges - Juvenile Justice.
https://stateofchildren.com/juvenile-justice-in-pakistan/gaps-and-challenges-juvenile-justice/
302
State of Children in Pakistan. (n.d.). Where is the tender face of justice? – the state of children in Pakistan.
https://stateofchildren.com/where-is-the-tender-face-of-justice/
303
Pak NGOs. (2018, October 1). The Juvenile Justice System Act 2018 - An Overview.
https://pakngos.com.pk/the-juvenile-justice-system-act-2018-an-overview/

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3. Effective Role of Probation Officers

• Recruit additional probation officers to manage the caseload and provide transport and
communication facilities to facilitate their fieldwork and court appearances ensuring their
presence in all cases.
• Provide regular training to probation officers on child rights, communication with juveniles,
and preparation of Social Investigation Reports (SIRs).
4. Reducing Pre-Trial Detention
• Enforce the provisions of Section 6 of the JJSA to ensure juveniles accused of minor and
major offences are granted bail promptly.
• Establish mechanisms to fast-track juvenile cases, particularly those involving pre-trial
detention exceeding six months.
5. Standardising Age Determination
• Standardise procedures for age determination, including guidelines for using medical
examinations like ossification tests, while minimising reliance on outdated or non-
standardised methods.
6. Establishing Observation Homes and Rehabilitation Centres and Provide Services
• Build observation homes in all districts under JJSA Act, 2018, ensuring compliance with
JJSA requirements for separating juveniles from adult offenders.
• Transform existing Borstal Institutions, YOIS into fully functional rehabilitation centres with
modern infrastructure and trained personnel.
• Increase funding and resources to hire more psychologists and mental health
professionals, ensuring that juvenile offenders receive individualised counselling and
therapeutic interventions.
7. Training and Advocacy
• Raise awareness among law enforcement agencies, lawyers, judges about the provisions
of the JJSA, including the statutory right to bail, diversion, and the alternative to detention.

Children on the Move

The term 'children on the move' includes “children who are directly or indirectly affected by
migration and displacement, either internationally across borders or within the same country,
including child migrants, children in need of international protection such as refugees and
asylum seekers, internally displaced children, unaccompanied or separated children,
stateless children and children who have been trafficked”.304
How many children on the move?
The scope, scale and distribution of children affected by migration and displacement need to
be assessed to determine the prevalence of "children on the move". The main categories of
children on the move are analysed separately, as they each have different processes and
causes. Despite their differences, there is one commonality: all of these children move or
migrate, whether voluntarily or forced, within the country or across borders, for a variety of
reasons.

304
United Nations Children’s Fund (UNICEF). (2017). Children on the move: Key facts and figures.

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5.7 Internally Displaced People (IDPs)

Internal displacement is a recurring issue in Pakistan caused by natural disasters, conflicts and
socio-political instability. These crises have a severe impact on people's lives as they disrupt
access to livelihoods, education, healthcare and basic services, leaving the affected people in a
prolonged precarious situation. Children endure the harshest consequences, including
interrupted schooling, heightened risks of exploitation, and reduced access to nutrition and
healthcare, compounded by significant psychological distress resulting from sudden
displacement. Prioritising child protection services, continuity of education, and psychosocial
support is essential to mitigating these long-term harms.
Displacement Trends
The 2022 monsoon floods triggered 8.2 million internal displacements, making it the world's
305
largest disaster-induced displacement event in the last decade. The floods, which affected 33
million people and caused widespread destruction, forced many displaced families to seek
306
refuge outside official relief camps, complicating the distribution of aid. Provinces such as
Sindh and Balochistan, which accounted for 90% of flood-related displacement, faced prolonged
shelter needs, while recurrent climate shocks such as droughts, extreme heat and flooding from
glacial lake outburst floods further weakened community resilience.307
Conflict and violence have also contributed to internal displacement in Pakistan. Over the years,
insecurity in regions such as Swat, North and South Waziristan and Bajaur has led to mass
displacement, with families fleeing militancy, terrorism and violence, with children among the
most vulnerable groups. According to the International Catholic Migration Commission (ICMC),
there were an estimated 23,000 internally displaced persons in Pakistan in 2023, mainly due to
the conflict in the former Federally Administered Tribal Areas (FATA) between 2002 and 2014.
2,800 new internally displaced persons were registered in 2023 alone, mainly due to clashes
between the military and non-state armed groups in the Tirah Valley (KP) and communal violence
in Punjab.
In 2024, the security situation in Pakistan deteriorated in some parts of KP and Balochistan,
causing families to flee violence and military operations.308 However, the exact number of newly
displaced persons who have sought refuge elsewhere for protection remains unknown.
Legal and Institutional Framework
Internal displacement in Pakistan is primarily due to natural disasters such as floods, earthquakes
and droughts, as well as conflict and violence. While there is no exclusive law for IDPs, their
protection and assistance falls under the disaster management framework at both federal and
provincial levels. The National Disaster Management Act, 2010, serves as the primary legislative
framework that establishes a disaster management system that focuses on risk reduction,
preparedness, response and recovery. This is supplemented by provincial disaster management
laws, including the Punjab Disaster Management Act 2010, the Sindh Disaster Management Act
2014, the Khyber Pakhtunkhwa Disaster Management Act 2012 and the Balochistan Disaster

305
Internal Displacement Monitoring Centre (IDMC). (2023). Global report on internal displacement 2023. Retrieved from
https://www.internal-displacement.org
306
United Nations Framework Convention on Climate Change (UNFCCC). (2023). Loss and damage due to climate change: Case studies
from Pakistan. Retrieved from https://unfccc.int
307
United Nations Office for the Coordination of Humanitarian Affairs (OCHA). (2022). Pakistan floods response plan 2022. Retrieved from
https://www.unocha.org
308
Child Rights Violation Cases – The State of Children in Pakistan. (n.d.-b).
https://stateofchildren.com/category/knowledgebase/crv-cases/

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Management Act 2011, which address region-specific vulnerabilities, and response mechanisms.
Under the National Disaster Management Act of 2010, the National Disaster Management
Authority (NDMA) is the main federal agency overseeing disaster management in Pakistan.
Provincial Disaster Management Authorities (PDMAs) are responsible for implementing
provincial-level response plans, while District Disaster Management Authorities (DDMAs)
coordinate local emergency response, resource mobilisation and rehabilitation of the displaced
population. To address the specific needs of vulnerable groups, including children, the NDMA has
established the Gender and Child Cell (GCC), which focuses on integrating gender and child-
specific considerations into disaster management policy and practice.
Gaps and Challenges
Displacement caused by natural disasters and conflict in Pakistan exposes IDPs, especially
children, to high protection risks. A 2022 Multi-Sectoral Rapid Needs Assessment (MSRNA)
highlights violence against children, family separation, increasing child marriage, human
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trafficking and gender-based violence. Displacement has an impact on the mental health of IDP
children. The MSRNA 2022 reveals that 35% of boys and 31% of girls show signs of mental health
problems. The interruption of schooling during displacement contributes to these mental health
issues.310
BBeyond these concerns, displacement heightened the risk of child labour. In flood-affected
areas of Sindh and Balochistan during and after the 2022 monsoon floods, UNICEF reports that
children faced increased vulnerability to child labour, driven by poverty, entrenched social norms,
and the lack of access to education and social services, disproportionately affecting adolescent
girls and boys.311 Additionally, unaccompanied and separated children in displacement settings
face heightened vulnerabilities, including exposure to abuse, exploitation, and neglect.
Weak child protection systems, including inadequate timely case management and referral
mechanisms, lead to inconsistent and inadequate support for vulnerable children.312 Limited
disaster preparedness and poor coordination between government agencies hinder effective
313
crisis responses. Children are often overlooked in disaster response planning, leaving many
without access to child-friendly spaces, education or essential protection services. Despite their
critical importance in coping with trauma, mental health and psychosocial support (MHPSS)
remains largely unaddressed in disaster responses.314
As IDPs strive to rebuild their lives, they face serious problems such as inadequate shelter,
economic marginalisation, and limited access to education, healthcare, and clean water. The
Guiding Principles on Internal Displacement advocate for durable solutions, including voluntary
return, local integration, or resettlement in safe and dignified conditions.315 However, many IDPs
often remain trapped in protracted displacement, with limited prospects for return or

309
Pakistan: 2022 Multi-Sector Rapid Needs Assessment in Flood-Affected Areas of Khyber Pakhtunkhwa, Punjab and Sindh (September
2022). https://reliefweb.int/report/pakistan/pakistan-2022-multi-sector-rapid-needs-assessment-flood-affected-areas-khyber-
pakhtunkhwa-punjab-and-sindh-september-2022
310
UNICEF. (2023). Mental health in displaced child and youth populations.
https://www.unicef.org/innocenti/media/3741/file/UNICEF-Mental-Health-Displacement-2023.pdf
311
UNICEF Pakistan. (2024). Consolidated emergency report for 2023. https://www.unicef.org/pakistan/media/5846/file/UNICEF%
20Pakistan%20Consolidated%20Emergency%20Report%20for%202023.pdf
312
UNICEF Pakistan. (n.d.). Child protection. https://www.unicef.org/pakistan/child-protection-0
313
ReliefWeb. (2023). Education in emergencies and child protection joint needs assessment Pakistan 2023.
https://reliefweb.int/report/pakistan/education-emergencies-and-child-protection-joint-needs-assessment-pakistan-2023
314
UNICEF. (2023). Mental health in displaced child and youth populations.
https://www.unicef.org/innocenti/media/3741/file/UNICEF-Mental-Health-Displacement-2023.pdf
315
Guiding Principles on Internal Displacement. (1998). https://www.unhcr.org/us/media/guiding-principles-internal-displacement

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316
integration. Poorly planned rehabilitation efforts, insufficient livelihood support, and ongoing
insecurity in conflict-affected areas hinder sustainable recovery.317 Vulnerable groups, including
women, children and persons with disabilities, remain at increased risk of exploitation,
perpetuating the cycle of poverty and vulnerability.318 In Pakistan, there are no specific laws
recognising the particular needs and rights of IDPs. The absence of a specific policy for IDPs
319
leads to fragmented responses and an inability to institutionalise protection mechanisms.
Key Recommendations for Protecting Internally Displaced Persons (IDPs) in Pakistan
Pakistan must take immediate and coordinated action to address the crisis of internal
displacement, with particular focus on protecting children's rights and wellbeing.
1. Strengthen Legal and Institutional Frameworks
• Develop a National IDP Policy to provide a comprehensive legal framework for protecting
displaced populations, ensuring alignment with the UN Guiding Principles on Internal
Displacement.
• Strengthen the role of DCPUs and integrate them into disaster response frameworks to
monitor and safeguard the welfare of displaced children.
• Enforce birth registration in displacement camps to prevent statelessness and facilitate
access to education, healthcare, and social services.
• Strengthen early warning systems for climate-related disasters to minimise future
displacement risks.
2. Enhance Child Protection in Emergencies
• Establish Child-Friendly Spaces (CFS) in all displacement settings to provide safe
environments, psychosocial support, and recreational activities.
• Deploy mobile protection units to identify and assist unaccompanied children, victims of
trafficking, and child labourers.
• Integrate mental health support into emergency responses, training community health
workers to address trauma and anxiety among displaced children.
3. Ensure Continuity of Education
• Implement temporary learning centres in camps and host communities to prevent
dropouts.
• Provide stipends to displaced families to offset economic barriers to education.
• Train teachers in crisis-sensitive pedagogy to support children affected by displacement
and conflict.

316
Mielke, K., & Schetter, C. (2021). Figurations of Displacement in and beyond Pakistan. TRAFIG Working Paper No. 4.
https://trafig.eu/output/working-papers/figurations-of-displacement-in-and-beyond-pakistan
317
Internal Displacement Monitoring Centre. (2011). Permanent Crises? Unlocking the Protracted Displacement of Refugees and Internally
Displaced Persons.
318
UNHCR. (2015). 2015-2017 Protection Strategy Pakistan.
https://www.unhcr.org/pk/wp-content/uploads/sites/103/2018/06/2015-2017-Protection-Strategy.pdf
319
Sayeed, A., & Shah, Z. (2017). Displacement, Repatriation and Rehabilitation: Stories and Perspectives from South Waziristan. SWP
Working Paper.

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4. Improve Livelihoods and Durable Solutions

• Launch cash-for-work and vocational programmes targeting displaced youth and women
to reduce reliance on harmful coping mechanisms such as child labour.
• Prioritise land tenure security for IDPs returning to conflict or disaster-affected areas to
enable sustainable reintegration.
5. Strengthen Coordination and Data Collection
• Improve inter-agency coordination between government, UN agencies, and NGOs to
avoid duplication and ensure equitable aid distribution.
• Establish a centralised IDP database to track displacement trends, needs, and service
gaps, disaggregated by age, gender, and disability.

5.8 Refugee Children

Refugees are persons who, owing to a well-founded fear of persecution on account of their
ethnicity, religion, nationality, membership of a particular social group or political opinion, have
320
been granted protection in another country in accordance with the 1951 Refugee Convention.
This definition includes children who have fled their home country due to conflict, persecution or
serious harm and have been granted refugee status. Asylum seekers are persons who have
applied for international protection in another country and are awaiting a decision on their
refugee status.
Refugee Population in Pakistan
According to the UNHCR, there were 1,362,402 registered Afghan refugees living in Pakistan on
28 February 2025. Children make up the largest proportion of the refugee population. Around
53% of Afghan refugees are under the age of 18.

Table 64: Registered Afghan Refugees in Pakistan (8 February 2025)

Total Population 1,362,402
Years Male (%) Female (%)

0-4 7.30 7.30

5-11 years 12.60 12.10
12-17 years 6.90 6.40
18-59 years 23.80 19.70
60+ 2.30 1.60
Source: UNHCR

KP hosts 52.6% of the total refugee population, followed by Balochistan and Punjab. Between 15
September 2023 and end of February 2025, a total of 842,429 Afghan nationals were repatriated
from Pakistan to Afghanistan. Among the repatriates, children made up about 59% of the
population (UNHCR).

320
United Nations High Commissioner for Refugees (UNHCR). (2023). UNHCR guidelines on child asylum claims under the Refugee
Convention.
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Table 65: Afghan Refugees in Pakistan321 (Feb 2025)

Province/Region Population %

KP 716,406 52.6%
Balochistan 326,763 24%
Punjab 197,086 14.5%
Sindh 74,673 5.5%
ICT 42,995 3.2%
AJK 4,479 0.3%
Source: UNHCR

Educational Status of Afghan Refugee Children

Amidst the education crisis in Pakistan, leading to the declaration of an education emergency by
the government, refugee children face additional barriers, including limited school access due to
insufficient infrastructure and distance, documentation, financial constraints, and gender and
cultural challenges, with girls disproportionately affected. The policy environment in Pakistan
allows for the integration of Afghan refugees into the national systems, yet inclusion happens
unevenly.
The Documentation Renewal and Information Verification Exercise (DRIVE) carried out jointly by
the Government of Pakistan and the UNHCR in 2022 provides important insights into the
educational status of Afghan refugees in Pakistan. Of the total registered refugees, 52% were
children under the age of 18. The data shows that there were significant challenges in education
for refugees at all levels.
• Access to Education
Refugee children in Pakistan primarily attend one of the 142 UNHCR-supported schools or,
in the case of urban refugees, public schools. At the primary level, approximately 22% of
refugee children in Refugee Villages are enrolled in UNHCR-supported institutions.
Overall, based on partner estimates, around 28% of school-aged refugee children have
access to either UNHCR-supported or public schools. All 142 Refugee Village schools now
follow the Pakistani national curriculum. However, education access and quality remain
inconsistent across regions, with higher attainment reported in KP and Sindh (44%), and
critically low levels in Balochistan, where 71% of refugees have no schooling.
• Educational Attainment and Gender Disparities
According to DRIVE (2022), 69% of PoR cardholders reported no education. Of the 31%
who had received some form of education, nearly half (43–49%) had only informal religious
education (e.g. madaris), indicating limited access to formal schooling. Educational
attainment among refugee women remains particularly low: 61% received only religious
education, 27% completed primary school, and just 5% reached secondary level. Overall,
62% of educated individuals were men, and only 38% were women. Education
participation is highest among children aged 5–11 (26%), but declines significantly in the
15–24 age group.

321
Country - Pakistan (Islamic Republic of). (n.d.). https://data.unhcr.org/en/country/pak
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Legal and Institutional Framework

Pakistan is not a signatory to the 1951 Convention relating to the Status of Refugees or its 1967
Protocol, nor has it enacted national laws specifically for the protection of refugees. There are no
formal procedures for determining the refugee status of persons seeking international protection
on Pakistani territory. As a result, these persons are subject to the provisions of the Foreigners Act
322
1946. In the absence of a national legal framework for refugees, the UNHCR carries out refugee
status determination under its mandate as set out in the Statute of the Office of the United Nations
High Commissioner for Refugees (adopted by General Assembly Resolution 428 (V) on 14
December 1950). This arrangement is formalised by the 1993 Cooperation Agreement between
the Government of Pakistan and the UNHCR. Pakistan recognises the UNHCR’s decisions on
granting refugee status and allows both asylum seekers (whose applications are still under
consideration) and recognised refugees to stay within its borders while seeking durable
323
solutions. Pakistan recognises the UNHCR's decisions on granting refugee status and allows
both asylum seekers (whose applications are still under consideration) and recognised refugees
to stay within its borders while seeking durable solutions.
Important state and international agencies are working together to care for the refugees in
Pakistan. The Ministry of Kashmir Affairs and Gilgit-Baltistan and States and Frontier Regions
(SAFRON) oversees refugee policy and coordinates efforts with the Commissionerate for Afghan
Refugees (CAR) and its provincial offices, which are responsible for coordinating with UNHCR and
relevant authorities on refugee affairs. The Ministry of Interior regulates the legal status of
refugees in accordance with the Foreigners Act 1946 and deals with issues such as entry,
residence and movement. NADRA supports the documentation of refugees through record
324
keeping and identity verification, especially for Afghan refugees.
Gaps and Challenges
As a host country, Pakistan has ethical and international obligations to ensure that all children
enjoy protection and access to fundamental rights without discrimination. Children, regardless of
their legal status in Pakistan, whether documented or undocumented, are among the most
vulnerable populations in Pakistan. Born into displacement or forced to migrate due to crises
beyond their control, they bear no responsibility for their precarious circumstances.
The lives of refugee children in Pakistan are anything but safe as they struggle to access basic
rights such as education, healthcare and protection. Undocumented children are even more
vulnerable as they live in constant fear of deportation, family separation and exclusion from
325 326
essential services. Economic hardship forces many refugee children into hazardous labour;
they work as scavengers, street vendors, domestic workers, or are pushed into begging,
exposing them to exploitation and abuse. A significant number, particularly those displaced from
Afghanistan in 2021 or later, or those in protracted displacement situations, are highly vulnerable
to abuse, neglect, violence, exploitation, and family separation. In Pakistan, these children face
multiple protection concerns, including child labour, early marriage, gender-based violence, and
exposure to psychological distress. Many lack proper documentation, which further heightens
their vulnerability to exploitation.

322
UNHCR. (2023). Global trends: Forced displacement in 2022.
323
UNHCR. (1993). Cooperation Agreement between the Government of Pakistan and UNHCR. Retrieved from https://www.unhcr.org
324
Norwegian Refugee Council (NRC). (2023). Collaboration and coordination in refugee management in Pakistan.
325
Norwegian Refugee Council. (2023). The forgotten millions: Afghan refugees in Pakistan. Retrieved from https://www.nrc.no
326
International Labour Organization (ILO). (2023). Child labour among refugee communities in South Asia.

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Education remains out of reach for many refugee children, especially girls, due to cultural
restrictions, security concerns, financial constraints, and systemic exclusion. According to
UNHCR, 61% of Afghan refugees have no formal education.327 Many children rely solely on
religious education, limiting their prospects of integration into formal schooling. Although the
Constitution of Pakistan provides for free and compulsory education for all children between the
ages of five and 16, in practice, admission of refugee children to public schools is at the discretion
of school principals. Forcibly displaced children who arrived after 2021 face even greater barriers
due to ambiguity surrounding their legal status. As a result, public schools often refuse admission
to refugee children, compounding their marginalisation. National and provincial level policy
reforms and a related support strategy are urgently needed to expand educational access to
refugee children.
Many Afghan families, particularly in Islamabad and Rawalpindi, avoid seeking essential services,
including medical assistance and education for fear of prosecution. According to the
International Rescue Committee, these obstacles lead to preventable health crises and
malnutrition, while studies by Refugees International highlight the increased risk of mental health
328
disorders in undocumented children. The political instability in Afghanistan has left many
329
refugee families in a state of uncertainty, they do not want to return home. Discrimination and
harassment, especially under the Illegal Foreigners Repatriation Plan (IFRP), make life even more
difficult and challenging, with families reporting verbal abuse, detention and extortion.330 It
exposes children to significant protection risks throughout the deportation process, particularly
during detention and border crossing. These risks included family separation, physical safety and
security and psychological distress. Children who are separated from their families are more
vulnerable to exploitation, abuse, and neglect. During the IFRP, children along with men and
women were kept in holding sites/transit centers which lacked a mechanism for identifying and
addressing child protection cases.
Integrating asylum-seeking and refugee children into child protection systems would enable
them to receive specialised services aligned with their best interests. However, the absence of
clear government policies and the unclear legal status of newly arrived Afghan children have
significantly hindered their access to basic services. Strengthening the inclusion of refugee
children not only fulfils Pakistan's international obligations but also advances national interests by
fostering social stability and reducing children's vulnerability to exploitation and trafficking.
Key Recommendations for Protecting Refugee Children in Pakistan
Pakistan must strengthen its protection framework for refugee children, ensuring their rights to
safety, education, and healthcare are upheld.
1. Legal and Policy Reforms
• Develop a national refugee policy that explicitly safeguards children’s rights, including
access to education, healthcare, and protection from exploitation.
• Ensure birth registration for all refugee children to prevent statelessness and enable
access to essential services.

327
UNHCR. (2022). Education challenges for Afghan refugee children in Pakistan.
328
International Rescue Committee (IRC). (2023). Healthcare barriers for Afghan refugees in Pakistan.
329
Refugees International. (2022). Afghan refugees: The impact of political instability on displaced families.
330
UNHCR. (2024). Pakistan-Afghanistan returns emergency response: As of 5 November 2024. UNHCR. Retrieved from
https://www.unhcr.org

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2. Education Access and Inclusion

• Mandate the admission of refugee children in public schools, prohibiting discrimination
based on documentation status.
• Expand alternative learning programmes for out-of-school children, including accelerated
education and vocational training.
• Address gender disparities through targeted initiatives to enrol refugee girls, including
community awareness campaigns and safe transportation solutions.
3. Child Protection Services
• Develop child-friendly, safe, and recreational spaces in urban and peri-urban areas to
support the emotional and social well-being of displaced and refugee children.
• Make child protection services accessible based on age and residence rather than
documentation or registration status. This ensures that all children, regardless of their legal
or registration status, can access essential services.
• Establish dedicated child protection units or committees in refugee-hosting areas to
identify cases of abuse, trafficking, and forced labour, and report to DCPUs for action.
• Implement standardised procedures to prevent family separation during deportation or
detention, with special safeguards for unaccompanied minors.
• Provide psychosocial support in schools and communities to address trauma among
refugee children.
4. Healthcare and Nutrition
• Ensure equitable access to healthcare facilities for refugee children, including
immunisation and maternal/child health services.
• Integrate MHPSS services into child protection frameworks to address the psychological
distress caused by displacement
5. Livelihoods and Social Protection
• Extend social safety nets to refugee families to reduce reliance on child labour and early
marriage as coping mechanisms.
• Support livelihood programmes for refugee youth and women to foster self-reliance and
reduce exploitation risks.
6. Cross-Border and Regional Cooperation
• Promote voluntary, safe, and dignified repatriation for refugees while ensuring
reintegration assistance in Afghanistan through bilateral agreements and international
collaboration.
• Collaborate with international organisations to advocate for long-term solutions, including
third-country resettlement where necessary.

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5.9 Alternative Care

Alternative care refers to care arrangements for children who cannot live with their biological
parents and can be broadly categorised into non-residential and residential care settings.331 The
UN Guidelines on Alternative Care emphasise that family-based care should always be
prioritised, with institutional care used only as a last resort and for the shortest possible duration.
Non-residential care includes various forms of child placement outside institutional settings.
Kinship care refers to extended family members or close friends assuming caregiving
responsibilities, providing children with a familiar and supportive environment and is the most
332
common form of alternative care in Pakistan. Foster care, which provides temporary placement
with officially recognised and registered families, remains underdeveloped in Pakistan. There are
no legal provisions covering foster care, limiting its effectiveness as an alternative care option.333
Adoption in Pakistan is limited due to cultural and religious factors, as formal adoption—where a
child legally takes the adoptive family's name and inheritance rights—is generally not recognised
under Islamic law. Instead, guardianship (Kafala) is preferred, allowing families to care for
orphaned or abandoned children while maintaining their original identity and inheritance rights.
These religious and societal norms contribute to the limited practice of adoption in the country.
Organisations such as the Edhi Foundation facilitate the care and placement of orphaned and
abandoned children through guardianship arrangements (Kafala), in line with Islamic principles
and local legal frameworks.334
Children without Parental Care
While most children in Pakistan are raised by their parents, there are a significant number of
children who do not receive parental care often due to parental death or separation, migration or
economic hardship. A 2021 UNICEF report estimates that over 4 million children in Pakistan have
lost one or both parents.335 The MICS surveys shed light on the situation in Punjab, Sindh, KP and
Balochistan and show different categories of children without parental care. Children who have
lost both parents are relatively rare, although their numbers are slightly higher in Sindh and
Balochistan, especially among older children. Some children live apart from both parents, with
Sindh reporting a slightly higher prevalence of this situation. In KP, more children have parents
living abroad, a trend that is less prevalent in other provinces. The largest group consists of
adopted, fostered or stepchildren, particularly in KP and Sindh, where younger children are more
commonly reported, but Punjab and Balochistan also have children in this category, albeit in
smaller numbers.
Table 66: Adopted, Foster, or Stepchild (%)
Province 0-4 years 5-9 years 10-14 years 15-17 years Total

Balochistan 9.3 8.2 2.4 1.7 3.7

KP 32.7 11.8 6.2 2.0 6.9
Punjab - - - - 9.4
Sindh 24.1 13.6 4.0 0.8 -
Source: MICS (Balochistan 2019-20, KP 2019, Sindh 2018-19, Punjab 2017-18)
331
UNICEF. (2010). Guidelines for the alternative care of children.
332
UNICEF. (2004). Kinship care: An overlooked but important care option for children.
333
SOS Children’s Villages International. (2016). Alternative care in South Asia: Challenges and recommendations
334
Edhi Foundation, accessed October 28, 2024, https://www.edhi.org/
335
UNICEF, Situation of Children in Pakistan 2021

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Mapping & Assessment of Residential Care Facilities (RCFs) in Punjab336

The 2022 mapping and assessment of Residential Care Facilities (RCFs) in Punjab conducted by
Burgad with the support of CP&WB and UNICEF provides important insights into alternative care
options for children. The study covered government-run institutions, NGO-run institutions, drop-
in centres and madaris registered as orphanages (excluding educational institutions like
boarding schools). The study found that 5,762 children are accommodated in RCFs. This equates
to 12 children per 100,000 of the child population, with the number of boys (68%) significantly
higher than girls (32%). This disparity reflects societal norms that favour family care for girls. The
majority of the children were between 10 and 14 years old, while the younger girls were between
0 and 4 years old.
The main findings related to the time spent in institutions were: 78% of children spent more than
six months in RCFs. Girls were more likely to be reunited with their families earlier than boys. Over
a 12-month period, 613 children left care, primarily through family reunification (75%), but 16%
were relocated, 5% ran away and 3% died. Notably, 47% of children had lost both parents, but 87%
had relatives nearby, indicating great potential for family reintegration. The report calls for
increased efforts to support family-based care and reduce reliance on institutional care.
Legal and Institutional Framework
Pakistan's legal and institutional framework for alternative care remains fragmented and only
partially aligned with international standards. The system operates through a patchwork of laws,
including the federal Guardians and Wards Act, 1890 and provincial child protection statutes,
which collectively fail to establish a unified, rights-based approach to alternative care. Punjab's
Destitute and Neglected Children Act, 2004 support institutional care through CP&WB, with
limited legal provision for kinship or foster care. Sindh's Child Protection Authority Act, 2011 and
Sindh Orphanages (Supervision and Control) Act, 1976 regulate only registered institutions and
do not cover religious facilities such as madrassas, which house a significant number of children.
Khyber Pakhtunkhwa's Child Protection and Welfare Act, 2010 supports residential “Kafalat
Ghars” but lacks safeguards against long-term institutionalisation. Balochistan's Child Protection
Act, 2016 and the ICT Child Protection Act, 2018 place emphasis on judicial oversight, but fail to
establish clear quality standards for care placements or outline non-institutional alternatives.
The institutional framework spans state-run facilities, private orphanages, and religious
institutions operating under divergent regulatory mandates. At the federal level, the Child
Protection Institute (CPI) in Islamabad offers temporary shelter, rehabilitation, and protection for
children at risk. Punjab's CP&WB manages Child Protection Institutes (CPIs) across districts,
providing shelter, medical and educational services, and oversight of private facilities. KP's Child
Protection and Welfare Commission (KP-CPWC), Sindh's Child Protection Authority (SCPA), and
Balochistan's Child Protection Cell play parallel roles in managing care tough their respective
Social Welfare Departments. However, these structures predominantly support institutional care
and offer limited family-based alternatives.
Between January 2022 and August 2024, provincial child protection agencies in ICT, KP and
Balochistan have taken measures to support vulnerable children, including efforts focused on
kinship care, foster care and community-based care. However, many children remain in
residential care, emphasising the need to further strengthen family reunification efforts and
expand structured family-based alternatives.

336
Comparable data for other provinces is currently unavailable, limiting a broader national assessment of residential care trends.

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Table 67: Child Protection Measures and Alternative Care Interventions (1 Jan 2022 – 31 Aug 2024)

ICT KP Balochistan
Actions Taken
M F X Total M F X Total M F X Total

Number of Children
290 20 - 310 256 129 - 385 65 14 - 79
Reunified with family

Kinship care - - - - 287 91 - 387 - - - -

Foster care - - - - 07 04 - 11 - - - -

Community-Based care - - - - 181 17 - 198 - - - -

Child-Headed Household
04 04 - 08 173 129 - 302 11 03 - 14
(CHH) support

Residential care 02 10 - - 196 131 - 327 04 01 - 05

Source: Child Protection Institute Islamabad, KPCPWC, Balochistan Child Protection Cell (Sept 2024)

Most alternative care providers, including NGOs, trusts, and religious organisations, operate
under broad legislative frameworks such as the Societies Registration Act, 1860 or Trusts Act,
1882, rather than specialised child protection regulations. This has led to a lack of visibility and
accountability for informal and faith-based care settings.
Gaps and Challenges
Pakistan's alternative care system exhibits multiple structural and procedural deficiencies that
compromise the protection and development of children deprived of parental care. A critical
issue is regulatory fragmentation and limited scope. Provincial child protection laws primarily
focus on institutional settings and fail to extend adequate oversight to informal kinship care or
other family-based arrangements. For instance, in the ICT, the ICT Child Protection Act, 2018 and
its associated rules prioritise the regulation of organisations rather than the best interests of
individual children, reflecting an institutional rather than a child-centred approach.
The system is further marked by institutional bias and insufficient gatekeeping mechanisms.
Despite international guidelines favouring family-based care, residential care remains the
dominant model across jurisdictions. There are no statutory prohibitions on the recruitment or
solicitation of children into residential facilities, nor are there formal gatekeeping procedures in
place to assess the necessity of separation from families. This increases the risk of unnecessary
institutionalisation, which contradicts the principles of the UN Guidelines for the Alternative Care
of Children (2009).
Additionally, there is a lack of minimum care standards and independent inspection mechanisms,
particularly for non-institutional forms of care. Data deficiencies and weak monitoring
frameworks also pose significant challenges. Most provinces, including ICT, lack centralised, real-
time data systems to track children in care and assess the quality of placements. The absence of
safe, confidential, and child-friendly complaint mechanisms leaves children in care with little
recourse in cases of abuse or neglect. Informal kinship care, though widely practised, remains
entirely unregulated and unsupported. Children placed through informal channels remain

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outside the state's monitoring frameworks, making them highly vulnerable to exploitation,
neglect, and abuse.
The lack of aftercare services for children ageing out of institutional care presents another
serious gap. There is no formal system ensuring transitional support in areas such as housing,
education, vocational training, or psychosocial care. This omission significantly heightens the risk
of homelessness, re-victimisation, and exploitation for youth exiting care facilities.
The emergency and humanitarian contexts, such as natural disasters or displacement,
exacerbate existing vulnerabilities. The current legal and institutional frameworks do not
adequately address the needs of unaccompanied and separated children (UASC). In the absence
of robust emergency response protocols, these children often fall through the cracks, with limited
assessments or safeguards prior to temporary placements.
Key Recommendations for Strengthening Alternative Care in Pakistan
Pakistan must reform its alternative care system to prioritise family-based solutions and ensure
the protection and well-being of children without parental care.
1. Strengthen Legal and Policy Frameworks
• All provinces should develop and implement alternative care policies that prioritises family-
based care (kinship and foster care) and limits institutionalisation to a last resort.
• Amend provincial child protection laws to include clear standards for kinship and foster
care, ensuring oversight and support for all care arrangements.
• Prohibit unnecessary institutionalisation by introducing gatekeeping mechanisms to
assess family separation cases before placement in residential care.
• Amend the Guardians and Wards Act, 1890, to include broader provisions for adoption,
aligning with international standards such as the Hague Convention on Intercountry
Adoption.
• It should be mandatory to register all children placed in institutions with the provincial child
protection authorities.
2. Promote Family-Based Care
• Expand kinship care support programmes, providing financial assistance, counselling, and
monitoring to relatives caring for children.
• Develop a formal foster care system with trained, accredited foster families and structured
supervision by child protection agencies.
• Strengthen family reunification efforts for children in institutions,
3. Improve Residential Care Standards
• Enforce minimum care standards for all institutions (government-run, NGO-operated, and
religious facilities), covering safety, education, and psychosocial support.
• Mandate regular independent inspections of residential facilities to prevent abuse and
neglect.

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• Require care institutions to implement structured case management tailored to the specific
needs of each individual child and ensure its integration with the provincial child protection
case management and referral system.
4. Enhance Monitoring and Data Systems
• Establish a database or a system to track children in alternative care, including kinship,
foster, and residential placements.
• Develop child-friendly complaint mechanisms to report abuse or neglect in care settings.
• Conduct periodic audits of informal care arrangements (e.g., madrassas) to ensure
compliance with child protection standards.
5. Support Transition to Adulthood
• Introduce aftercare programmes for youth ageing out of care, including housing,
vocational training, and mental health services.
6. Address Emergency Situations
• Develop emergency protocols for unaccompanied/separated children (UASC) in disasters
or displacement, ensuring immediate family tracing and temporary care safeguards.
7. Raise Awareness and Capacity Building
• Launch public campaigns to promote family-based care and discourage unnecessary
institutionalisation.
• Train judges, social workers, and caregivers on children’s rights, trauma-informed care, and
reintegration strategies.

Pakistan Pledges to Ending Violence Against Children at Global Ministerial Conference

Pakistan reaffirmed its commitment to eradicating violence against children when its
delegation attended the first Global Ministerial Conference on Ending Violence against
Children in Bogota, Colombia in November 2024. The delegation, led by Ayesha Raza
Farooq, Chairperson of NCRC, and Sarah Ahmad, Chairperson of CP&WB Punjab, joined
representatives from 143 countries. Hosted by Colombia in partnership with Sweden,
UNICEF, the United Nations and the World Health Organisation, the conference aimed to
accelerate efforts to achieve the SDG of ending violence against children by 2030.
At the conference, Pakistan made two important pledges. First, it pledged to strengthen
integrated child protection services by 2027, strengthen district-level protection units, enact
child protection laws and build a gender-sensitive, child-sensitive workforce to support over
28 million children and their families. Secondly, Pakistan is committed to promoting positive
parenting practises and non-violent discipline by implementing nationwide programmes with
tools to create a nurturing environment for children. In her address, Ayesha Raza Farooq
reiterated Pakistan's determination to protect all children from violence, backed by robust
laws, inter-agency coordination and adequate financial resources.
Source: NCRC

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6. Children's Right to Participation
Right to participation not only recognises children and adolescents as passive recipients of care
and protection by the adults, but also enables them to become active agents of change capable
of influencing their own lives and contribute meaningfully to their communities. Child
participation is one of the four guiding principles of UNCRC. This right is explicitly articulated in
Article 12 of the UNCRC which states that children have the right to express their views freely in all
matters affecting them and that these views must be given due weightage keeping in mind their
age and cognitive abilities. This chapter examines the right to child participation in Pakistan,
identifying obstacles that hinder its fulfilment and proposing ways to strengthen its
implementation for a more inclusive and equitable society.

6.1 Situation in Pakistan

Child participation is an evolving area globally and in Pakistan which is increasingly being
recognised as a crucial part of decision and policy making processes. According to General
Comment No. 12 of the UNCRC, effective child participation must be voluntary, respectful,
inclusive, and safe.
The participatory process can be seen in the sector of education, family decision-making, legal
and judicial processes, policy and advocacy, and the media. The degree of participation and
effectiveness varies according to the socio-economic, cultural and institutional context but there
is no officially disaggregated data on number of children participating in the aforementioned
domains, making it challenging to quantify their involvement or assess the impact of their
contributions. A holistic, lifelong and rights-based skills-building at an early age is essential for
meaningful participation of children and adolescents at social and policy level and promote
volunteerism. Life-based skills enhance the potential of children and adolescents and enable
them to apply knowledge meaningfully and make constructive contributions to their communities
and society.
Children's Participation in Schools
Children's participation in policy interventions in their respective educational institutes includes
multiple levels of engagement, from formal structures such as student councils to informal
mechanisms such as classroom discussions and extracurricular activities including debates,
declamations and sports. At the highest level, student councils serve as elected bodies where
children represent their peers in discussions about school rules, events or policies. Similarly,
class representatives, often elected within the class, act as intermediaries between students and
teachers and the management and voice the concerns of the class. Many schools also encourage
students to participate in clubs and societies, such as sports, drama, debating, hiking and
environmental clubs, where children can explore and hone their leadership skills, creativity and
teamwork. In schools, participation may also include students providing feedback on teaching
methods used in schools, curriculum preferences, school facilities and complaints handling
337
system, thus fostering a sense of ownership and student involvement.
337
Fielding, M. (2011). Student voice and the possibility of radical democratic education: Renewing our commitment to an education for the
common good. Discourse: Studies in the Cultural Politics of Education, 32(3), 399–412

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In a notable demonstration of child participation and democratic practice, students across Punjab
elected 61,212 student council office bearers on 16 May 2024. More than 3.47 million students
participated in the elections, which were held in 15,303 middle and high schools for boys and girls
of Punjab, and cast their votes to elect presidents, vice-presidents, general secretaries and class
338
representatives. The voting process mirrored that of general elections and included candidate
nomination, campaigning and even the use of ballots. This fostered a sense of civic engagement,
importance of democratic values and empowerment among students.
The implementation of participatory mechanisms also varies across government, private, and
339
religious schools as well as urban and rural areas, and between boys and girls. Well-established
private schools, especially in urban areas, have student councils and engage children in
extracurricular activities/clubs, however, this is not necessarily the case for all private schools.340
Community-level platforms in rural regions, such as child rights clubs or village committees, exist
only sporadically, often limited to NGO-supported initiatives. Initiatives such as the Girl Guides
and Boy Scouts provide valuable opportunities for participation, focusing on civic responsibility,
leadership, and life skills. Multilateral and bilateral organisations, including UN agencies and the
EU, have contributed to promoting participatory platforms, particularly through technical
assistance and pilot models in public schools and community settings. However, participation in
such initiatives is often limited by school engagement, socio-cultural norms, and resource
constraints, particularly for girls in rural areas.341
Children's Participation in Family Contexts
Children's participation within families refers to their inclusion in decision-making processes that
directly impact their lives. Key areas may include decisions about their education, healthcare or
other important matters concerning the family such as migration. Participation may also extend to
daily household dynamics and responsibilities, which vary across families, particularly in the roles
traditionally assigned to boys and girls.
The extent of children's participation varies based on socioeconomic status, gender, rural-urban
divides, and family structures. In urban, middle-class families, children are often involved in
education-related decisions. Family dynamics in joint families tend to dilute individual voices,
while nuclear families may provide more space for children to be heard.342 Societal expectations
often limit children's participation to specific areas deemed “appropriate” by adults, rather than
allowing them to engage in broader decision-making processes.343 Gender significantly
influences participation dynamics, with boys typically granted greater freedom of expression and
autonomy in domestic decision-making compared to girls.
Several structural and cultural bottlenecks hinder effective child participation in the family
context in Pakistan. Many households function within hierarchical norms, where decisions are
made solely by adults and questioning them is considered disrespectful. In rural or low-literacy
settings, there is often limited awareness among parents of children's right to be heard as
enshrined in the UNCRC. In economically marginalised families, poverty and survival needs take
precedence, leaving little space to consider children's views in choices related to work,
338
Dawn (2024). Student councils elect officials in Punjab – The State of Children in Pakistan. https://stateofchildren.com/student-
councils-elect-officials-in-punjab/
339
Shier, H. (2001). Pathways to participation: Openings, opportunities and obligations. Children & Society, 15(2), 107–117.
340
UNICEF. (2019). A World Ready to Learn: Prioritizing quality early childhood education. UNICEF.
341
United Nations Educational, Scientific and Cultural Organization (UNESCO). (2012). Education for All Global Monitoring Report: Youth
and skills—Putting education to work.
342
Save the Children. (2020). Barriers to children's participation: Socio-cultural dynamics in South Asia.
343
Save the Children. (2020). Barriers to children's participation: Socio-cultural dynamics in South Asia.

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schooling, or healthcare. Gender norms, particularly in rural communities, reinforce control over
girls' voices and movements, making their participation even more restricted.
One area of particular concern- where child participation is not only neglected but also frequently
misrepresented- is child marriage. Pakistan is home to one of the highest numbers of child brides
globally, with an estimated 21% of girls married before the age of 18 and 3% married before the
344
age of 15. With the exception of Sindh, all other provinces legally allow the minimum
345
marriageable age of girls to be 16 years. While marriage, as a legal contract, requires the free
and informed consent of both parties, in cases involving children, this principle is routinely
undermined by familial pressure, cultural expectations, and gender-based power dynamics.
Children, especially girls, are often coerced into giving consent without fully understanding the
346
consequences, such as health risks, disruption to education, or loss of personal autonomy. In
some cases, children appear to consent voluntarily, but this is often the result of cultural
347
conditioning or familial authority rather than a conscious decision. UNICEF's Knowledge,
Attitudes and Practices (KAP) study shows that most girls have no say in determining when or
whom they marry. As the CRC Committee emphasised in its 2020 observations, any perceived
involvement of children in decisions related to marriage should not be interpreted as
348
participation; rather, it constitutes a violation of their rights. Child marriage remains a harmful
practice that obstructs education, compromises health, and erodes autonomy, particularly in rural
and low-income contexts, where such practices are most prevalent.
Addressing the structural and cultural barriers that hinder children's participation in family
contexts such as hierarchical decision-making, limited parental awareness, gender
discrimination, and harmful practices, requires a combination of awareness-raising, legal
enforcement, and community-based interventions that foster a culture of listening to children.
Promising practices in Pakistan include parenting education programmes, such aspositive
parenting initiatives, which encourage dialogue and respect for children's views in family
settings. Community mobilisation efforts led by NGOs and local child protection committees have
also created safe spaces for girls to express their concerns. Religious and community leaders,
when engaged constructively, can play a pivotal role in shifting harmful social norms by endorsing
children's rights to be heard and protected.
Children's Participation in Legal and Judicial Processes
Children's participation in legal and judicial proceedings falls into two main categories: children in
conflict with the law (accused of a criminal offences) and children in contact with the law (victims,
349
survivors, witnesses or parties in civil disputes such as custody or welfare cases). In the context
of juvenile justice for children in conflict with the law, the Juvenile Justice System Act (JJSA), 2018
mandates child-friendly procedures, including the right to legal representation and participation
in hearings.350 For children in contact with the law, such as victims and survivors of abuse, their
testimony is often pivotal in legal proceedings as it can provide critical evidence to support their
case which may affect the case's outcome. Additionally, in family law matters like custody
disputes, courts may consider the child's preferences and best interests when determining living

344
Girls Not Brides. (2020). Pakistan country profile. https://www.girlsnotbrides.org
345
Girls Not Brides. (2020). Pakistan country profile. https://www.girlsnotbrides.org
346
UNICEF. (2021). Child marriage in South Asia: An evidence review. UNICEF Regional Office for South Asia. Retrieved from
https://www.unicef.org
347
Sustainable Development Policy Institute (SDPI). (2018). Policy gaps in addressing child marriage in Pakistan. SDPI.
348
CRC, General Comment No. 12, 2009; CRC, Concluding Observations: Pakistan, 2020.
349
United Nations Convention on the Rights of the Child (UNCRC). (1989). Articles 12, 37, and 40.
350
Juvenile Justice System Act (JJSA), 2018. (Government of Pakistan).

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arrangements or guardianship.351
In practice, the implementation of children's participation rights varies across different contexts.
In custody disputes, the Guardian and Wards Act, 1890, prioritises the welfare of the child. Under
Section 17(3), if a child is mature enough to form an intelligent preference, the court may consider
child's preferences when making custody decisions. For instance, in the case of Raja Muhammad
Owais v. Mst. Nazia Jabeen and others (2022 SCMR 2123), the Supreme Court of Pakistan ruled
that when a child is mature and capable of expressing reasoned preferences, their views should
be considered, always keeping the child's best interests as the guiding principle.
For juveniles in conflict with the law, specialised courts and probation services exist but are
limited in scope and unevenly distributed across Pakistan, often resulting in delays and
352
intimidation during proceedings. The implementation of juvenile justice provisions under the
JJSA, 2018, remains inconsistent, with many children treated similar to adults during legal
proceedings.353 Moreover, all children in contact with the law, whether as victims, witnesses, or
parties to disputes like custody cases, have the right to be heard in judicial and administrative
proceedings, either directly or through a legal representative, and their views must be given due
weight in accordance with their age and maturity, as affirmed by the CRC Committee. However, in
practice, they often face environments that are intimidating and unsuitable for their participation.
Most police stations, courts, and administrative offices lack child-friendly spaces or trained
personnel to handle children sensitively. For victims or witnesses, especially in cases of abuse or
exploitation, the legal process often retraumatises them, as they are required to testify in the
presence of the accused or face invasive questioning.
It is therefore important to adapt legal environments to reduce fear and intimidation. Child-
friendly measures—such as judges wearing informal attire, court staff sitting at the same level as
the child, and allowing children to be accompanied by a trusted adult—can significantly improve a
child's confidence and comfort during proceedings. Familiarising children with the courtroom
layout and introducing them to the roles of key personnel before the hearing begins can further
enhance their ability to participate meaningfully.
Children's Participation in Policy and Advocacy
Children's participation in policy and advocacy refers to their engagement in shaping laws,
policies, and programmes that directly impact their lives. This participation is facilitated through
formal mechanisms such as advisory groups, consultations, or representation in decision-making
bodies. An example of this is the NCRC's Child Advisory Panel (CAP). The NCRC plays an
important role ensuring structural inclusivity by making child participation an integral part of its
structure. The NCRC has two children, a girl and a boy, as its commission members, and has
established a Child Advisory Panel (CAP) to further strengthen the voice of children in decision-
making processes.354 Similarly, there is a Parliamentary Caucus on Child Rights, a parliamentary
group comprising members of the National Assembly that focuses on advocating for legislative
reforms, policies, and oversight mechanisms related to children's rights. While the caucus
consists of adult parliamentarians, it consults with children and child rights organisations to
ensure that children's voices are heard in policy-making process. These initiatives empower
children to contribute to discussions on issues like child protection, education, and healthcare
etc. NGOs and civil society organisations also engage children through workshops, policy
351
Guardian and Wards Act, 1890. (Government of Pakistan).
352
Save the Children. (2019). Juvenile justice in Pakistan: Challenges and reforms.
353
SPARC. (2021). State of Pakistan's Children 2020
354
National Commission on the Rights of Child. (n.d.). Official website. Retrieved from http://www.ncrc.gov.pk

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dialogues, and advocacy campaigns, providing platforms for them to influence decision-making.
For example in 2024, The Thar Alliance launched a Children's parliament in Sindh focusing on
education and child rights.
While efforts to involve children in policy matters have grown, their participation remains
355
inconsistent across Pakistan. Children's involvement and engagement are more common in
urban areas, where they occasionally participate in consultations on child protection, education,
health etc, however such opportunities remain limited and are often ad hoc, with rural areas
lacking similar platforms for children to voice their opinions and contribute to decision-making
processes. Marginalised and vulnerable children, including those from low-income families,
minority communities, transgender children and children engaged in labour, face even greater
barriers to participation at each level.
Children's Participation in Media
Children's participation in media includes the use of traditional and digital platforms to express
their views, advocate for their rights, and influence public discourse. While traditional media, such
as television, radio, and print, occasionally provide opportunities for children to share their stories
or raise awareness about child rights issues, but their viewership is declining.356 The rise of digital
media has transformed the landscape of participation. Platforms such as Facebook, Instagram,
TikTok and YouTube now allow children and adolescents to create and share content, participate
357
in online campaigns, and connect with broader audiences on issues affecting them.
In Pakistan, the potential of digital platforms to support youth-led advocacy and civic participation
is increasingly being recognised. Initiatives such as the Digital Youth Hub, launched under the
Prime Minister's Youth Programme (PMYP), and the Policy Innovation Lab, developed in
partnership with UNICEF, UNDP, and UNFPA under Generation Unlimited (GenU), aim to create
enabling environments for digital participation and social action. These platforms offer
opportunities for young people to contribute ideas, co-design solutions, and engage with policy
processes, particularly through digital means.
However, access to and effective use of media remain deeply unequal. Urban children, especially
from better-off households, are more likely to utilise digital platforms for participation and self-
expression. In contrast, rural and underprivileged children face multiple barriers, including poor
internet connectivity, limited digital literacy, and societal restrictions on technology use. The
gender digital divide is particularly concerning, with girls less likely to have access to digital
devices or autonomy in using them due to restrictive cultural norms and parental concerns. While
digital platforms offer unprecedented reach, they do not always guarantee meaningful or
constructive participation. Adolescents' engagement online can be undermined by
misinformation, harmful content, and superficial participation. The internet can also expose
children to cyberbullying, online harassment, and exploitation, making digital safety a critical
concern for any strategy promoting online child participation.
It is recommended that the government invest in digital literacy, safe access, and inclusive
content creation, while also strengthening child-centred media policies. These efforts can help
promote responsible online engagement and ensure that children's voices are heard and
protected across both traditional and digital platforms.

355
UNICEF. (2021). A global agenda for children's participation. UNICEF. Retrieved from https://www.unicef.org
356
Digital Rights Foundation (DRF). (2020). Barriers to digital inclusion in Pakistan.
357
Livingstone, S., & Bulger, M. (2014). A global research agenda for children's rights in the digital age. Journal of Children and Media

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6.2 Legal Framework for Child Participation

Pakistan's legal framework does not include an exclusive law on child participation. Some of the
relevant legal provisions include:
• Constitution of Pakistan (1973) - Article 19 guarantees freedom of speech and expression
for all citizens, including children.
• National Commission on the Rights of Child (NCRC) Act, 2017 - Provides for the inclusion
of two child members as part of the Commission, ensuring representation and direct
participation of children in national-level decision-making on issues related to their rights.
• Juvenile Justice System Act (JJSA), 2018 - Provides that children in conflict with the law
are heard during judicial and administrative proceedings and mandates child-friendly
environments in legal proceedings to ensure their participation and protection.
• The Guardian and Wards Act, 1890 - Section 17 allows courts to consider a child's
preference, age, and welfare while appointing a guardian.
• Free and Compulsory Education Acts (ICT, Punjab, Balochistan, KP, Sindh) - All
provinces have enacted compulsory education Acts that include provisions allowing
children to address grievances.
• Child Protection Laws (ICT, Punjab, Balochistan, KP, Sindh) - All provinces and ICT have
enacted child protection laws that allow children to participate in case management and
encourage their involvement in decisions affecting their protection and welfare.

6.3 Recommendations to Enhance Children's

Participation in Pakistan
Enhancing children's participation in Pakistan requires a holistic and inclusive approach to create
an environment where every child's voice is heard and valued. This is essential not only for
empowering children but also for fostering a more equitable and progressive society.
Institutionalise Platforms for Meaningful Child Participation
• Map and scale up existing models of engagement, volunteerism and participation through
public, private and youth partnership with a multisectoral lens.
• Leverage technology to ensure children have access to online platforms that could help
them connect to their peers and collaborate on social action initiatives and voice their
opinion.
• Students' councils may be established in all schools- formal and nonformal, including
government and religious institutions, to provide children with a platform to voice their
concerns and contribute to school governance.
• Schools should be encouraged to establish clubs and societies to promote participation in
various fields, such as arts, sports and civic engagement. Ensure that student councils
operate under clear codes of conduct that promote diversity, inclusion, and respect for all
groups, including children from minority, religious, ethnic, gender, and disability
backgrounds.

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 The State of Children in Pakistan 2024

• All educational institutions, including private schools, must establish complaint-handling

systems as part of their school policy to ensure that children's grievances are addressed in
a timely and effective manner.
• Community child rights committees may be established to facilitate children's input in local
governance and development projects, empowering them to actively engage in decisions
that affect their lives and communities.
• Meaningful child participation should be strongly encouraged in consultations for
developing child-related policies and programmes at both national and provincial levels to
ensure that children's opinions shape outcomes that directly affect them.
• Life-based skills development should be part of the curriculum to enable students to
enhance their cognitive, analytical and communication skills for meaningful participation.
• Establish systematic evaluation processes to assess the effectiveness of participation
mechanisms, ensuring that strategies are adapted based on children's feedback and
changing circumstances
• Train schools and community leaders on best practices for engaging children in a
meaningful and ethical manner.
Child-Focused Media
• Electronic and print media should create dedicated programmes and sections for children,
promoting voices of children on societal issues.
• The government should support children in creating content on platforms like YouTube and
TikTok by offering mentorship and providing necessary resources, such as digital literacy
training, content creation workshops, access to safe online spaces, and grants for
educational and creative projects.
• Implement strict ethical standards for engaging children in media contexts.
Make Judicial and Administrative Processes Child-Friendly
• All provincial governments must ensure the effective implementation of the JJSA, 2018, in
both letter and spirit.
• Establish specialised juvenile courts in all districts to ensure timely and sensitive handling
of cases involving children.
• Provincial governments should develop child-friendly spaces in courts, police stations, and
administrative offices to create a safe and supportive environment for children.
Empower Minority and Marginalised Groups
• Ensure the inclusion of minority and transgender children in school and community
activities, addressing discrimination through awareness and capacity-building
programmes, while also exploring the implementation of admission quotas to promote
equitable representation and access.

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The State of Children in Pakistan 2024

• Develop programmes for marginalised and vulnerable children such as sport activities,
drop-in-centers and other platforms where they can share their experiences and advocate
for promoting and protecting child rights.
Legal Protections
• Reform and strengthen the enforcement of laws against child marriage, while ensuring that
the voices of affected children are heard, respected, and integrated into protection and
response mechanisms.
• Provide training for the judiciary, law enforcement agencies, and social workers on trauma-
informed approaches to sensitively engage with children, ensuring their rights and well-
being are prioritised.
• Mandate in-camera hearings for children in contact with the law to safeguard their privacy,
minimise trauma, and ensure a child-sensitive judicial process that upholds their dignity
and rights.
Enhance Policymaking and Governance Involvement
• Expand opportunities for children to serve on advisory bodies, ensuring equitable
participation across all provinces and districts.
• Develop mechanisms to incorporate children's feedback meaningfully into final policy
documents and decisions.
• Implement systems where children receive regular updates on how their input is being
used.
• Introduce capacity-building programmes to train and prepare children for effective
participation in policymaking. This training should focus on developing their understanding
of issues, communication skills, and decision-making processes to ensure their
contributions are informed, constructive, and impactful.

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 National Commission on the Rights of Child (NCRC)
5th Floor, Evacuee Trust Complex, Agha Khan Road, F-5/1, Islamabad
Tel: +92-51-920-2733 | Email: [email protected] | Website: www.ncrc.gov.pk
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