Children in Pakistan are subjected to the worst forms of child labor, including forced domestic work. Children also engage in forced labor in brick manufacturing, and agriculture. (1,2) Table 1 provides key indicators on children's work and education in Pakistan. Data on some of these indicators are not available from the sources used in this report.

Source for primary completion rate: Data from 2019, published by the UNESCO Institute for Statistics, 2022. (3)
Source for all other data: International Labor Organization's analysis of statistics from Labour Force Survey (LFS), 2017–2018 and from the Multiple Indicator Cluster Survey 5, 2014.(4)

Based on a review of available information, Table 2 provides an overview of children's work by sector and activity.

† Determined by national law or regulation as hazardous and, as such, relevant to Article 3(d) of ILO C. 182.
‡ Child labor understood as the worst forms of child labor per se under Article 3(a)–(c) of ILO C. 182.

Pakistan consists of the Islamabad Capital Territory (ICT), which is governed by federal law, and four provinces—Balochistan, Khyber Pakhtunkhwa, Punjab, and Sindh—each of which is responsible for all social services, including those related to labor, within their areas. Law enforcement responsibilities are shared between the federal and provincial governments. (37,38)  When available, data and information are included for the federal and provincial governments in this report. Pakistan's federal and provincial governments, with technical assistance provided by UNICEF, continued conducting nationwide child labor surveys through 2021. (2) These surveys—the first conducted since 1996—are expected to address the lack of available child labor data that has hampered the federal and provincial governments' ability to accurately assess the scope and prevalence of child labor. (2,25) The COVID-19 pandemic has delayed the completion of the survey until 2022. (2)

Child laborers in Pakistan are sometimes subjected to sexual abuse at their places of employment, including in factories, workshops, or while scavenging on the streets. (39) They are also sometimes subjected to sexual exploitation to obtain or keep their jobs or accommodations. (39,40) According to reports, 35 percent of reported child abuse cases across Pakistan occurs in the workplace. (41) Traffickers promise Pakistani boys admittance to Afghan religious schools but then sell them to members of the Afghan security forces for bacha bazi, a practice in which boys are forced to provide social and sexual entertainment for older men. (31,37)

While there is limited data collection and underreporting to assess the extent of commercial sexual exploitation of children in Pakistan, research has found there were almost 3,000 cases of child right abuses in the reporting year of which 1,800 were related to sexual abuse. Child domestic workers sometimes work under conditions of forced labor, including debt bondage, sexual assault, and extreme physical abuse. (9,25,26,31) Poor rural families sometimes sell their children into domestic servitude or other types of work, or pay agents to arrange for such work, often believing their child would work under decent conditions. Some children are also kidnapped or sold into organized begging rings, domestic servitude, gangs, and child sex trafficking. (37,31) Children in domestic servitude are vulnerable to violence because they work in private residences outside the purview of labor inspectors. (2) Reports estimate that around 70 percent of bonded laborers in Pakistan are children, and they make up one-third of the 4 million people working in brick kilns. (2,22) Some children work with their families as bonded laborers in the production of bricks. (9,10,22,31) In Sindh Province, almost 700,000 children work as bonded laborers in the agricultural sector. (2)

Begging ringmasters sometimes maim children to earn more money or force children to steal. (31) Organized criminal groups reportedly force Afghan, Iranian, and Pakistani children, particularly from Dalbadin and Quetta in Balochistan into drug trafficking in Sindh and Balochistan Provinces, and in parts of Karachi. (9,31,37) Children are also used in smuggling operations along the Afghan border with Khyber Pakhtunkhwa. (2,8) In Karachi, an estimated 20,000 children, the majority of them from Afghan origin, are found engaged in scavenging. (2) Various factors can compound vulnerability to child labor, including religious minority and caste status. Marginalized minority communities, such as Christian and Hindu Dalits, are likely to be less educated, to lack land or other assets, and to be discriminated against by their surrounding communities, police, and judicial systems. (8,31)

Children in Pakistan face several barriers to education. In line with global trends, the pandemic exacerbated lack of access to education during the reporting period. Some schools were intermittently closed, offering only online classes. (2,42) There was insufficient internet coverage in many rural areas, especially in Khyber Pakhtunkhwa Province, which hampered children's' access to meaningful learning. (2,42) A recent survey found that 3.7 million children ages 5 to16 in Khyber Pakhtunkhwa did not attend school during the reporting period, an increase from 2.1 million in 2018. Similarly, studies reported that 7.7 million children in Punjab and 6.4 million children in Sindh did not attend schools. (2) Many other children face barriers to accessing education, including high rates of teacher absenteeism, inadequate facilities, lack of transportation, school fees, and corporal punishment, which may deter children from attending school. (2,11,43)

Sexual abuse of children in Pakistan's madrassas—Islamic religious schools that provide free education and meals to Pakistan's poorest children—is also of significant concern. (44-47) Pakistan currently has around 36,000 registered and unregistered madrassas; sexual abuse in madrassas significantly hinders the ability of a large number of Pakistani children to attend school and receive an education. (44,45,47) A report on a school-based sexual abuse prevention program from 2018 found that there were approximately 18,000 children who were victims of child sexual abuse in Pakistan in the past five years. (2,48)

Non-state armed militant groups reportedly kidnap children as young as age 12, coerce parents with threats, and recruit children forcibly from madrassas to spy, fight, and carry out suicide attacks. (31,49,50) Schools in Pakistan may still be vulnerable to attacks by unknown armed groups, disrupting children's access to education. (2,9,11,13,37,51) The government operated a center in Swat, Khyber Pakhtunkhwa, to rehabilitate, educate, and reintegrate former child soldiers. (52)

According to reports, the Taliban in Afghanistan recruited at least 34 children for various roles with its organization in the first half of 2021, including for use in combat, making and transporting improvised explosive devices, and acting as bodyguards. (53) Information on the Taliban's recruitment and use of children during the second half of the year could not be documented due to the departure of UN organizations and other monitoring entities from the country. (53)

As the Taliban took over Afghanistan, the Pakistani military provided new fighters to the Taliban from inside Pakistani sanctuaries. Pakistan government provided the Taliban with services, including safe havens, medical assistance, and real estate deals. (54,55)  In June 2021, the U.S. Department of State released its annual list mandated by the Child Soldiers Prevention Act that included Pakistan as a government that recruited and used child soldiers or supported armed groups that do so. (56)

Pakistan has ratified most key international conventions concerning child labor (Table 3).

The government has established laws and regulations related to child labor (Table 4). However, gaps exist in Pakistan’s legal framework at federal and provincial level to adequately protect children from the worst forms of child labor, including the minimum age for work and for hazardous work.

* Country has no conscription (82)
† The minimum age for work in shops and establishments is 14 years old. The minimum age for work in factories and mines is 15 years old. (57-59)
‡ The minimum age for work in brick kilns is 14 years old. The minimum age for work in domestic work is 15 years old. (66,68)

The Eighteenth Amendment to the Pakistani Constitution permits provinces to pass laws that govern labor law and children’s welfare. (88,89) Federal law applies only until the province passes a law on the same subject. (88) The ICT administration banned child domestic labor in the capital territory in 2020 in response to an employer's fatal beating of an 8-year-old girl who was being illegally employed as a domestic worker. The government also added child domestic labor to the list of occupations defined as hazardous work prohibited for children under the Employment of Children Act 1991. (2,90,91) In 2021, the Khyber Pakhtunkhwa provincial assembly approved the Khyber Pakhtunkhwa Home Based Workers (Welfare and Protection) Bill, 2021, which bans domestic work and forced labor of children under age 14 years in the province. (2,92) In addition, the Punjab Domestic Workers Act instituted a ban on child domestic work for any child under age 15. (93)

In 2021, the Pakistan National Assembly passed the National Commission on the Rights of the Child (Amendment Bill), 2021 and the Islamabad Capital Territory Child Protection (Amendment Bill), 2021. The amendments allow appropriate government ministries to administer relevant issues related to child rights and protection instead of the federal cabinet. (94) This legislation would ensure that child rights issues are addressed in a timely and effective manner. (94) However, the bills are pending passage in the Senate. (2) Additionally, in February and September 2021, the government enacted a law that prohibits corporal punishment of children in all workplaces and education institutions in the ICT, providing a new way to address the physical abuse of child domestic workers under the law. (2,95) In Sindh, the government passed the Sindh Child Protection Authority (Amendment) Bill, 2021,which requires law enforcement to file the first information report regarding a missing or abducted child within 4 hours. A section of the bill entitled Establishment of Special Courts requires the creation of special courts for child protection in each district in Sindh that would try cases under the Sindh Child Protection Authority Act within 120 days. (96) However, the implementation of the law has not yet begun. (2) ln April, the Balochistan Assembly passed the Balochistan Forced and Bonded Labor System (Abolition) Act 2021 and the Balochistan Employment of Children (Prohibition and Regulation) Act 2021. The Bonded Labor Act banned hazardous work for children under age 14 and established a Committee on the Rights of the Child. (2) Furthermore, the act made it punishable for employers to pay wages to children and adolescents that are not equal to adults. (2)

Some of Pakistan’s federal and provincial laws are not in compliance with international standards on child labor. The federal minimum age for work provisions and the minimum age for work laws in Balochistan, Khyber Pakhtunkhwa, and Sindh Provinces are not in compliance with international standards because they do not extend to informal employment, such as household work. (57-62,64-71) The federal government’s minimum age for hazardous work is age 14, which does not comply with international standards. (61) The federal minimum age for hazardous work still applies in Balochistan Province, as Balochistan has not established a minimum age for hazardous work. (61,97)

Hazardous work prohibitions for the federal government and the four provinces do not cover brickmaking, for which there is evidence that children are exposed to environmental health hazards. (17,98,99) Additionally, hazardous work prohibitions for the federal and provincial governments do not cover child domestic work, for which there is evidence that children are exposed to physical abuse. (2,100) However, the federal government, at the request of the Ministry of Human Rights expanded the hazardous occupation list to include child domestic labor in the ICT. (2) Although laws in Khyber Pakhtunkhwa, Punjab, and Sindh Provinces prohibit children under age 18 from working in underground mines or above-ground quarries, federal law—which also still applies in Balochistan—does not prohibit children ages 15 to 18 from working in mines. There is evidence that children in Balochistan are engaged in coal mining, which involves exposure to hazardous substances, work underground, and lethal accidents. (23,59,62,66,71,97,101)

Federal and provincial laws, with the exception of Punjab and Sindh Provinces, do not prohibit the use of children in drug production and drug trafficking. (67,71,79)The federal and provincial governments, with the exception of Punjab and Sindh Provinces, have not enacted laws that prohibit the recruitment and use of children by non-state groups for armed conflict. (7,62,67) As the minimum age for work is lower than the compulsory education age, children may be encouraged to leave school before the completion of compulsory education. (62,83-87)

The government has established institutional mechanisms for the enforcement of laws and regulations (Table 5). However, gaps exist within the operations of enforcement agencies that may hinder adequate enforcement of their child labor laws.

District Vigilance Committees (DVCs) are functioning in all of Punjab Province's 36 districts (conducting 367 meetings during the reporting period), and in 29 districts in Sindh Province (only 14 DVCs convened once each during the reporting period). (2,31,37,94,104) On December 31, 2021, the Khyber Pakhtunkhwa government issued orders to establish DVCs in all of Khyber Pakhtunkhwa's districts to monitor and implement laws related to child and bonded labor. (94)

However, research has found that though the Bonded Labor System (Abolition) Act (BLSA) mandated the creation of DVCs in each province to ensure implementation of the BLSA, including reporting and filing cases, the government relied on bonded labor victims to have knowledge of the BLSA, proactively leave their landowners, and file their own cases in the court. Even when bonded laborers did so, the courts either did not act on such claims or handled them administratively, and, as a result, human trafficking survivors who came forward often faced retaliation from their exploitative employers. (31,40)

Labor Law Enforcement

In 2021, labor law enforcement agencies in Pakistan took actions to address child labor (Table 6). However, gaps exist within the operations of the provincial labor departments that may hinder adequate labor law enforcement, including lack of research on the number of labor inspections conducted and child labor violations found. 

Pakistan's provinces are responsible for enforcing labor laws, including those relevant to child labor law. (7) Provincial labor departments collect comprehensive data on labor law enforcement at the district level. However, there is neither a centralized federal repository for the data nor any regular mechanism for reporting them to the federal government; therefore, limited labor inspection data were available for inclusion in this report. (2,11) Although the number of labor inspectors is unknown, according to the ILO's technical advice of a ratio approaching 1 inspector for every 15,000 workers in developing economies, Pakistan would need to employ roughly 4,135 labor inspectors as its workforce consists of more than 62 million workers. (110)

Current labor laws do not apply to domestic workers, even though the ICT recently recognized domestic labor as a hazardous occupation, and despite reports of more than 264,000 child domestic workers in Pakistan. (2,31) Reports of physical abuse, sexual abuse, and forced labor by employers are commonplace; however, provincial labor laws and protections do not extend to adult or child domestic workers. (31) Provincial labor inspectorates do not receive sufficient resources, a shortfall that may hamper labor inspectors' ability to inspect workplaces. For example, labor departments in Khyber Pakhtunkhwa, Punjab, and Sindh Provinces did not provide funds to cover the cost of transportation to conduct inspections. (9,11) In Sindh, labor inspectors do not receive funding to travel outside Karachi and Hyderabad to conduct labor inspections, which is only a small portion of the whole province. Labor inspectors use their personal resources to carry out inspections. (2)

While labor inspectors receive some initial training depending on their assigned province, this training is insufficient, as there is very little information provided that is specific to child labor issues and laws. (9,17,90,111) In addition, labor inspectorates sometimes failed to conduct inspections at worksites owned by influential citizens. For instance, coal mines in Balochistan that are owned by influential politicians who oversee mine regulations operated with impunity, increasing risks of child labor. (24) Labor inspectors in Punjab reportedly do not inspect private farms owned by influential landlords for child or bonded labor. (2,36) In the Sindh region, labor inspectors frequently announce labor inspections, unless a complaint has been filed. (2) Moreover, due to the pandemic, labor inspectors have faced restrictions to conducting inspections. (2) Research found that in the Provinces of Sindh, Punjab, and Balochistan, the industries of agriculture, brick kiln, fisheries, poultry, mining, construction, domestic labor, and carpet making often failed to follow labor laws with no or little government oversight. Small- and medium-size businesses—particularly those operated in private homes and not subject to inspections, such as shops, garages, and jewelry manufacturers—employed child labor. (8) Department of Labor officials sometimes reportedly received monthly bribes to avoid factory inspections. Additionally, research supports that labor inspectors do not have the authority to remove children from exploitation situations. (31)

In 2021, a judicial decree ordered freedom for 1,451 bonded laborers between January and September 2021. In April and July 2021, a court order in Sindh ordered law enforcement to free 33 bonded laborers from different family units working in farms across the Sindh Province. (112) The Labor Department also signed an MOU with the Sindh government to ensure all the 29 DVCs in Sindh accurately followed the Sindh Bonded Labor Abolition Act of 2015. Similarly, the Balochistan Provincial Assembly passed the Balochistan Forced and Bonded Labor System Act on May 4, 2021.The law states that “the bonded labor system shall stand abolished and every bonded laborer shall stand freed and discharged from any obligation to render any bonded labor.” (112)

A majority of the estimated 18,000 brick kilns in Pakistan continued to operate without registration and required benefits for workers, particularly those ages 14 to 18. (40) Additionally, in most cases, survivors of bonded labor settled for financial arrangement rather than criminal prosecution because there is a of lack of guidance on a mechanism to pursue a formal civil or criminal case. (31)

In January 2021, the Islamabad High Court established a commission to examine the enforcement of labor laws related to the operation of brick kilns in the capital territory. The commission was mandated to inspect all brick kilns in the ICT, conduct a survey of brick kiln workers, and submit a report on its findings. (113) The commission's report, which was submitted in February 2021, found that the practice of debt bondage was widespread throughout the sector, no brick kilns or their laborers possessed the registrations required under the law, workers were not paid beyond a meager subsistence allowance and most lacked identity documents, and few children of brick workers were receiving an education. (114) The Islamabad High Court has ordered all bonded labor be eradicated from the ICT region, but research was unable to determine whether the ICT government took any action to carry out the order. Additionally, the ICT government has not taken action on the report's recommendations to register all brick kilns, ensure the execution of employment contracts for all workers, and issue national identity cards to all workers and their children. (115)

Criminal Law Enforcement

In 2021, criminal law enforcement agencies in Pakistan took actions to address child labor (Table 7). However, gaps exist within the operations of the criminal enforcement agencies that may hinder adequate criminal law enforcement, including reports of corruption and indifference on the part of investigative officials.

The federal and provincial governments do not publish data on efforts to enforce criminal laws prohibiting the worst forms of child labor; it is unknown how many investigations, penalties imposed and collected, initial refresher training, or convictions were undertaken for child labor crimes in 2021. (1,2) However, some reports have shown that the Cyber Crime Circle of the Federal Investigation Agency (FIA) apprehended 13 people in 4 raids in Faisalabad and Punjab. (2) The alleged perpetrators were charged with child pornography. In October 2021, the FIA also arrested two people in Faisalabad for involvement in child pornography. (2,116) Additionally, in January 2021, police in Lahore arrested employers for torturing a 12-year old maid to death. (117) Similarly in October 2021, two minor domestic workers were tortured by employers in Lahore. The children were subsequently rescued. (2,118)

During the reporting period, the FIA provided in-person and online training on human anti-trafficking standards procedures with Pakistani police and social welfare departments, labor departments, and child protection bureaus at the central and provincial levels. The FIA also worked with the IOM to deliver trainings on identifying, screening, and referring human trafficking victims, which included child labor survivors. (2) While training is provided to new criminal investigators, the training is inconsistent across Pakistan, and may not include information on child labor, child trafficking, or sexual exploitation of children. (2) The government did not publish data on criminal labor law enforcement in the reporting period. (2) In 2021, the Khyber Pakhtunkhwa region opened four additional child protection courts, bringing the total number of child protection courts in the province to eight. However, the courts have not prosecuted any child labor cases. (2) Additionally, there is no reciprocal mechanism between law enforcement and social services. (2)

Police corruption—particularly the taking of bribes from suspected perpetrators to ignore alleged crimes or police refusing to open investigations without bribes—continued to hamper Pakistan's ability to address child sex trafficking and child labor. (8,31) Some police and other local officials, for instance, colluded with farm and brick kiln owners to create falsified criminal cases against individuals who attempted to escape from situations of bonded labor. (8) In Sindh, local officials perpetrated bonded labor in brick kilns with impunity. (31)

The government did not credibly act against reports of official complicity with human trafficking crimes. (31) Reports indicated that police sometimes refused to file cases of child sexual exploitation, including sex trafficking, unless the victims paid a bribe. (31) Moreover, children, parents, or family members who report child labor incidents often doubt that police will act in pursuit of justice. (22,23,29-45,119)

Research has found that due to the consistent lack of law enforcement efforts against those who exploited street children, including in forced labor and sex trafficking, traffickers operated openly and with impunity. (9,31,37) Police sometimes acted indifferently to reports of child labor or sexual exploitation, pointing to cultural differences as a rationale for abuse. (22,45,119)

The government has established mechanisms to coordinate its efforts to address child labor (Table 8). However, gaps exist that hinder the effective coordination of efforts to address child labor, including fulfilling mandates to establish coordinating mechanisms.

* Mechanism to coordinate efforts to address child labor was created during the reporting period.

A parliamentary task force on "Uplift and Mainstreaming of Street Children and Bonded Labor" was created in 2020. However, the task force did not take significant actions in 2021. (2) Additionally, CPUs were unstaffed and non-functioning caused due to lack of funding and hiring delays in the Khyber Pakhtunkhwa Province because the Chief Child Protection Officer position has remained vacant for 4 years. (2)

The Child Protection Welfare Bureau in Punjab declared plans to establish five new CPUs at every district in the province. (2)The bureau rescued 1, 054 children from begging in Punjab. (2) The Child Protection Welfare Bureau also referred 1,500 to 2,000 children for psychological counseling lasting around 15 days. It signed an MOU with Punjab Vocational Training Center to provide children with phone repair, tailoring, and cooking skills as well as electrician-related, beautician, and nursing courses. (2)

Balochistan has not instituted the remaining 33 CPUs despite passing legislation in 2016 to establish units in each district. (37,40)

The government has established policies related to child labor (Table 9). However, policy gaps exist that hinder efforts to address child labor, including lack of implementation of key national policies.

Both the federal and provincial governments have education policies and sector plans. Although the Pakistan Education Policy 2017 (draft) and National Education Policy Framework 2018 (draft) recognize the role of child labor in limiting student enrollment and present strategies to reach out of school children and disadvantaged groups, including children who have dropped out of school to work, they do not offer child labor elimination and prevention strategies. (122)

The former Pakistan Tehreek-e-Insaf-led Punjab government announced a 5-year education policy, “The New Deal 2018-2023,” to transform school education and focus on improving learning, access, retention, equity, and government; the policy does not mention explicitly the elimination or prevention of child labor. (122) There are no education policies in Sindh and Balochistan that target specifically the elimination or prevention of child labor. (122)

In 2021, the government funded and participated in programs that include the goal of eliminating or preventing child labor (Table 10). However, gaps exist in these social programs, including the inadequacy of programs to address the full scope of the problem.

† Program is funded by the Government of Pakistan.
‡ Program launched during the reporting period. 

In 2021, the Sindh Social Welfare Department established two rehabilitation centers for street workers, vulnerable children, and those highly at risk of human trafficking. The shelter has the capacity to house 400 street children. (2) The Sindh government has allocated $250,000 for the project, which includes providing access to education to youth who are vulnerable to child trafficking. (2) One shelter was completed in February 2021, and the other is expected to open in 2022. (2)

In 2019, the provincial labor departments of Khyber Pakhtunkhwa and Balochistan dedicated approximately $1.53 million and $1.37 million of their budgets, respectively, to conduct surveys on child labor. (37,104) The Khyber Pakhtunkhwa labor department began conducting its child labor survey in 2019. (37,104) Child labor surveys are also being carried out in Sindh and the ICT, and Balochistan. Gilgit- Baltistan completed its survey in 2021, and Punjab is in the final stages of the report, whereas Khyber Pakhtunkhwa is expected to reveal its finding in early 2022. (2,141) Surveys are expected to be completed in 2022 due to pandemic-related delays. (1)

The social programs of the federal and provincial governments are insufficient to address the prevalence and scope of Pakistan's child labor problem. Existing programs do not provide sufficient protection and rehabilitation services for bonded child laborers and child survivors of human trafficking. (40,142) Government initiatives do not specifically target child labor in the informal sector, including child labor and forced child labor in domestic work. (2) In addition, there is no significant social program to address sexual abuse of child workers or children attending madrassas in Pakistan. Social Welfare Departments in all provinces are responsible for providing shelter and rehabilitation to distressed children. (122)

Based on the reporting above, suggested actions are identified that would advance the elimination of child labor in Pakistan (Table 11).

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