Rape and Domestic Violence: Rape is a criminal offense, with punishment that ranges from a minimum of 10 to 25 years in prison and a fine to the death penalty. The penalty for gang rape is death or life imprisonment, but sentences, when convictions occurred, were often less severe. Although rape was frequent, prosecutions were rare. According to data presented by the Ministry of Interior to the senate in 2014, there had been no rape convictions in the country during previous years. Spousal rape is not a crime. During the year Parliament passed a new antirape law that provides for collection of DNA evidence and includes nondisclosure of a rape victim’s name, the right to legal representation of rape victims, and enhanced penalties for rape of victims with mental or physical disabilities.
As in previous years, the government did not effectively enforce the 2006 Women’s Protection Act. The act brought the crime of rape under the jurisdiction of criminal rather than Islamic courts. By law police are not allowed to arrest or hold a female victim overnight at a police station without a civil court judge’s consent. The law requires a victim to complain directly to a sessions court, which is considered a trial court for heinous offenses. After recording the victim’s statement, the sessions court judge officially lodges a complaint, after which police may then make arrests. NGOs reported the procedure created barriers for rape victims who could not afford to travel to or access the courts. Rape was a severely underreported crime.
The provincial government of Punjab passed the Punjab Protection of Women Against Violence Act (2016) in February to provide greater legal protections for domestic abuse victims, including judicial protective orders and access to a new network of district-level women’s shelters, the first of which was scheduled to open in Multan.
There were no reliable national, provincial, or local statistics on rape due to underreporting and a lack of any centralized law enforcement data collection system.
According to the Aurat Foundation and others, prosecutions of reported rapes were rare. Police and NGOs reported individuals involved in other types of disputes sometimes filed false rape charges, reducing the ability of police to identify legitimate cases and proceed with prosecution. NGOs reported police were at times implicated in rape cases. NGOs also alleged police sometimes abused or threatened victims, demanding they drop charges, especially when police received bribes from suspected perpetrators or the perpetrators were influential community leaders. Some police demanded bribes from victims before registering rape charges, and investigations were sometimes superficial. The use of postrape medical testing increased, but medical personnel in many areas did not have sufficient training or equipment, which further complicated prosecutions. Accusations of rape were often resolved using extrajudicial measures, with the victim often forced to marry her attacker.
No specific federal law prohibits domestic violence, which was widespread. Husbands reportedly beat and occasionally killed their wives. Other forms of domestic violence included torture, physical disfigurement, and shaving the eyebrows and hair off women’s heads. In-laws abused and harassed the wives of their sons. Dowry and other family-related disputes sometimes resulted in death or disfigurement by burning or acid.
Women who tried to report abuse faced serious challenges. Police and judges were sometimes reluctant to take action in domestic violence cases, viewing them as family problems. Instead of filing charges, police typically responded by encouraging the parties to reconcile. Authorities routinely returned abused women to their abusive family members.
To address societal norms that disapprove of victims who report gender-based violence and abuse, the government established women’s police stations, staffed by female officers, to offer women a safe haven where they could safely report complaints and file charges. Men were also able to use these police stations. These women’s police stations, however, struggled with understaffing and limited equipment. Training female police and changing the cultural assumptions of male police also remained challenges. Due to restrictions on women’s mobility and social pressures related to women’s appearance in public, utilization of women’s police centers was limited, but NGOs and officials reported that use was growing and more centers were needed. Many women remained unaware of the centers.
The government continued to operate the Crisis Center for Women in Distress, which referred abused women to NGOs for assistance. Twenty-six government-funded Shaheed Benazir Bhutto Centers for Women across the country provided legal aid, medical treatment, and psychosocial counseling. These centers served women who were victims of exploitation and violence. Victims later were referred to “Dar-ul-Amans,” or shelter houses, and funds from provincial Women Development Departments had established approximately 200 such homes for abused women and children. These provided shelter and access to medical treatment. According to NGOs the shelters did not offer other assistance to women, such as legal aid or counseling, and primarily served as halfway homes for women awaiting trial for adultery, even though they were the victims of rape and domestic abuse.
Government centers lacked sufficient space, staff, and resources. Conditions in the Dar-ul-Amans did not meet international standards. They were severely overcrowded with, in some cases, more than 35 women sharing one toilet. Few shelters offered access to basic needs such as showers, laundry supplies, or feminine hygiene products. Some shelters were given a daily food allowance of nine rupees ($0.09) to feed nearly 100 women.
There were some reports of women being trafficked and prostituted out of shelters. Shelter staff reportedly sometimes discriminated against women in shelters; they assumed that if women fled their homes, it was because they were women of ill repute. In some cases women were reportedly abused at the government-run shelters, found their movements severely restricted, or were pressured to return to their abusers.
Female Genital Mutilation/Cutting (FGM/C): No national law addresses the practice of FGM/C. According to human rights groups and media reports, between 70 and 90 percent of Dawoodi Bohra Muslims practiced various forms of FGM/C, often in private homes and without medical supervision. A population of approximately 40,000 Dawoodi Bohra Muslims lived in Karachi, with smaller pockets in Lahore, Islamabad, and other cities. Some Dawoodi Bohras spoke publicly and signed online petitions against the practice. Some isolated tribes and communities in rural Sindh and Balochistan also practiced FGM/C.
Other Harmful Traditional Practices: At times women were victims of various types of societal violence and abuse, including so-called honor killings, forced marriages, imposed isolation, and being used as chattel to settle tribal disputes. There were cases in which husbands and male family members treated women as chattel.
A 2004 law on honor killings and the 2011 Prevention of Anti-Women Practices Act already criminalize acts committed against women in the name of traditional practices. Despite these laws hundreds of women reportedly were victims of honor killings. Many cases went unreported and unpunished. The practice of “karo-kari” or “siyah kari”–a premeditated honor killing that occurs if a family, community, tribal court, or jirga determines that adultery or some other “crime of honor” occurred–continued across the country. Karo-kari derives from “black male” (karo) and “black female” (kari), metaphoric terms for someone who has dishonored the family or is an adulterer or adulteress. In many cases the male involved in the alleged “crime of honor” is not killed but allowed to flee. In October the government passed the antihonor killing law, closing the loophole that allowed perpetrators in “honor killings” to go free so as long as the victim’s family pardoned the perpetrator.
Police in Sindh established karo-kari cells with a free telephone number in the districts of Sukkur, Ghotki, Khairpur, and Nausharo Feroze for persons to report karo-kari incidents. Because honor crimes generally occurred within families, many went unreported. Police and NGOs reported that increased media coverage enabled law enforcement officials to take some action against a limited number of perpetrators. In July social media celebrity Qandeel Baloch was killed by her brother at their family home in southern Punjab. The brother said his sister had shamed the family with her “liberal” lifestyle and for posing in photographs with a famous mullah. The government charged Baloch’s brother and accomplices with her murder and invoked Section 311 of the penal code, which made the state a party against the brother. This effectively barred the family from “forgiving” the brother and setting him free, a common outcome in these types of murders.
The practice of cutting off a woman’s nose or ears, especially in connection with honor crimes, was reported, but legal repercussions were rare.
Although prohibited by law, the practice of buying and selling brides also continued in rural areas. Many tribes, communities, or families practiced sequestering women from all contact with men other than their relatives. Despite prohibitions on handing over women as compensation for crimes or as a resolution of a dispute (also known as “vani” or “swara”), the practice continued in Punjab and KP. In rural Sindh landowning families continued the practice of “marriage to the Quran,” forcing a female family member to stay unmarried to avoid division of property. Property of women “married to the Quran” remained under the legal control of their fathers or eldest brothers, and such women were prohibited from contact with any man older than age 14. Families expected these women to stay in the home and not contact anyone outside their families.
In February the Sindh Assembly approved the Hindu Marriage Act, which creates a specific legal mechanism to register Hindu marriages and to prove the legitimacy of marriages under the law. Observers viewed these new bills as the step forward in protecting Hindu minorities, particularly Hindu women who are disproportionately targeted for abductions and forced conversions. One controversial provision of the Sindh law provides that a marriage between Hindus is to be dissolved if either party converts to a different religion; some members of Hindu communities worried this provision could be used to break up marriages by forcing women to convert to Islam, which would then nullify the marriage and permit the women to marry Muslim men.
The 2011 Prevention of Anti-Women Practices Amendment Act criminalizes and punishes giving a woman in marriage to settle a civil or criminal dispute; depriving a woman of her rights to inherit movable or immovable property by deceitful or illegal means; coercing or in any manner compelling a woman to enter into marriage; and compelling, arranging, or facilitating the marriage of a woman with the Quran, including forcing her to take an oath on the Quran to remain unmarried or not to claim her share of an inheritance.
The 2010 Acid Control and Acid Crime Practice Bill makes maiming or killing via corrosive substance a crime and imposes stiff penalties against perpetrators. As with other laws, these measures are not applicable in FATA and PATA unless the president issues a notification to that effect. Nevertheless, there were numerous acid attacks on women across the country, with few perpetrators bought to justice. In July media reported that a spurned suitor threw acid at the family who rejected his marriage proposal, injuring six individuals.
The 2012 National Commission on the Status of Women Bill provides for the commission’s financial and administrative autonomy to investigate violations of women’s rights. According to women’s rights activists, however, the commission lacked resources and remained powerless. The position of the commission’s chairperson remained vacant for most of the year.
Sexual Harassment: Although the 2010 Criminal Law Amendment Act and the Protection Against Harassment of Women at Workplace Act criminalize sexual harassment in the workplace and public sphere, the problem was widespread. The law requires all provinces to establish provincial-level ombudsmen. Sindh was the first province to do so, in 2012. Punjab Province and administrative district Gilgit-Baltistan also established ombudsmen. Neither Balochistan nor KP had an ombudsman. Press reports indicated harassment was especially high among domestic workers and nurses. According to press reports, some women were harassed via social media. In August police charged a man in Nowshera, KP, with online harassment under the recently passed cybercrimes legislation.
Reproductive Rights: Couples and individuals have the right to decide the number, spacing, and timing of children, but they often lacked the information and means to do so. Young girls and women were especially vulnerable to problems related to sexual and reproductive health and reproductive rights. They often lacked information and means to access care. According to a survey by the Women’s Empowerment Group released in 2013, only 25 percent of adolescents were aware of their sexual and reproductive rights. Spousal opposition also contributed to the challenges women faced in obtaining contraception or delaying pregnancy. According to UN Population Division estimates in 2016, 29 percent of women of reproductive age used a modern method of contraception. Access by women, particularly in rural areas, to health and reproductive rights education remained difficult due to social constraints. For these same reasons, data collection was also difficult.
According to the National Institute of Population Studies’ 2012-13 Demographic and Health Survey, 27 percent of women received no prenatal care; however, the report showed a substantial improvement in the proportion of mothers receiving antenatal care over the prior 13 years, increasing from 43 percent in 2001 to 73 percent in 2013. The survey also revealed that skilled health-care providers delivered 52 percent of births and that 48 percent of births took place in a medical facility.
According to the most recent UN research, the maternal mortality ratio was 178 deaths per 100,000 live births, a rate attributed to lack of health information and services. Few women in rural areas had access to skilled attendants during childbirth, including essential obstetric and postpartum care. According to UNICEF, deteriorating security caused displacement and affected access to medical services, especially in KP and FATA.
Discrimination: Women faced legal and economic discrimination. The law prohibits discrimination on the basis of sex in general, but authorities did not enforce it. Also, women faced discrimination in family law, property law, and the judicial system. Family law formulates protection for women in cases of divorce, including requirements for maintenance, and sets clear guidelines for custody of minor children and their maintenance. Many women were unaware of these legal protections or unable to obtain legal counsel to enforce them. Divorced women often were left with no means of support, as their families ostracized them. Women are legally free to marry without family consent, but society frequently ostracized women who did so, or they risked becoming victims of honor crimes.
The 2011 Prevention of Anti-Women Practices Act makes it illegal to deny women inheritance of property by deceitful means. The law entitles female children to one-half the inheritance of male children. Wives inherit one-eighth of their husband’s estate. Women often received far less than their legal entitlement. Women faced significant discrimination in employment and frequently were paid less than men for similar work.
Birth Registration: Citizenship is derived by birth in the country, although for children born abroad after 2000, citizenship may be derived by descent if either the mother or the father is a citizen and the child is registered with the proper authorities (see section 2.d.). Reporting of births is voluntary, and records are not kept uniformly, particularly in rural areas. While the government reported that it registered more than 75 percent of the population, observers believed actual figures were lower. Public services, such as education and health care, were available to children without a birth certificate.
Education: The constitution mandates compulsory education provided free by the government to all children between the ages of five and 16. Government schools often charged parents for books, uniforms, and other materials. Parents of lower economic means sometimes chose to send children to madrassahs, where they received free room and board, or to NGO-operated schools.
The most significant barrier to girls’ education was the lack of access. Public schools, particularly beyond the primary grades, were not available in many rural areas, and those that existed were often too far for a girl to travel unaccompanied. Despite cultural beliefs that boys and girls should be educated separately after primary school, the government often failed to take measures to provide separate restroom facilities or separate classrooms, and there were more government schools for boys than for girls. The attendance rates for girls in primary, secondary, and postsecondary schools were lower than for boys. Additionally, certain tribal and cultural beliefs often prevented girls from attending schools.
Medical Care: Boys and girls had equal access to government facilities, although families were more likely to seek medical assistance for boys than girls.
Child Abuse: Child abuse was widespread. Employers, who in some cases were relatives, abused young girls and boys working as domestic servants by beating them and forcing them to work long hours. Many such children were trafficking victims. While there was no official count of street children, SPARC estimated they numbered 1.5 million.
Local authorities subjected children to harmful traditional practices such as “swara,” treating girls as chattel to settle disputes and debts.
In February the government updated its definition of statutory rape and expanded the previous definition, which was sexual intercourse with a girl younger than age 16, to include boys.
Early and Forced Marriage: Despite legal prohibitions, child marriages occurred. The law sets the legal age of marriage at 18 for men and 16 for women and prescribes punishment for violators of imprisonment for up to a month, a fine of 1,000 rupees ($9.90), or both.
In 2014 the Council of Islamic Ideology declared the marriage laws to be un-Islamic and noted they were “unfair and there cannot be any legal age of marriage.” The council stated that Islam does not prohibit underage marriage since it allows the consummation of marriage after both partners reach puberty. Decisions of the Council are non-binding.
Many young girls and women were victims of forced marriages arranged by their families. Although forced marriage is a criminal offense and many cases were filed, prosecution remained a problem. In 2012 the Family Planning Association of Pakistan estimated that child marriages constituted 30 percent of marriages. In rural areas poor parents sometimes sold their daughters into marriage, in some cases to settle debts or disputes.
In 2013 Sindh passed the Child Marriage Restraint Act, which criminalizes marriages to children under the age of 16. Despite this legislation Sindh had not effectively stopped the practice of early child marriage. In March, three men were arrested under the act after one of the men married a 15-year-old girl. In June a 61-year-old man was arrested for marrying an 11-year-old girl in Jacobabad district. The Punjab provincial assembly passed a law in March 2015 increasing the penalties for parents and clerics who assisted in marriages between children, although the law left the legal minimum age for women to marry at 16.
Female Genital Mutilation/Cutting: Information on FGM/C is provided in the women’s section above.
Sexual Exploitation of Children: In March, Parliament amended the criminal code to protect further children from specific crimes of child pornography, sexual abuse, seduction, and cruelty. The 1961 Suppression of Prostitution Ordinance and portions of the penal code are intended to protect children from sexual exploitation. Authorities did not regularly enforce these laws. Child pornography is illegal under obscenity laws. Socioeconomic vulnerabilities led to the sexual exploitation of children, including trafficking for sexual exploitation. Many children, including trafficking victims forced to beg at bus terminals and on the side of the road, experienced sexual and physical abuse. In May a sex abuse scandal involving the kidnapping, drugging, sexual abuse, and filming of young boys for child pornography by a gang in Swat was reported by media and civil society; however, the March amendment to the criminal code was reportedly not applicable to PATA, FATA, Gilgit-Baltistan, and AJK.
Infanticide or Infanticide of Children with Disabilities: By law anyone found to have abandoned an infant may be jailed for seven years, while anyone guilty of secretly burying a deceased child may be imprisoned for two years. Murder is punishable by life imprisonment, but authorities rarely prosecuted the crime of infanticide.
Displaced Children: According to civil society sources, it was difficult for children displaced by military operations to access education or psychological support. SPARC and other child rights organizations expressed concern that children displaced by flooding and conflict were vulnerable to child labor abuses as some families relocated to urban areas. Doctors working in IDP camps reported difficulty in treating the large influx of patients, including children and elderly persons, because they were especially sensitive to disease, malnutrition, and other unhealthy conditions. Poor hygiene and crowded conditions found in the IDP communities caused some children to contract skin rashes, gastroenteritis, and respiratory infections. The government provided polio vaccinations to many displaced children who were not inoculated, since they came from areas where militant groups banned vaccination campaigns (see section 2.d.).
International Child Abductions: The country is not a party to the 1980 Hague Convention on the Civil Aspects of International Child Abduction. See the Department of State’s Annual Report on International Parental Child Abduction at travel.state.gov/content/childabduction/en/legal/compliance.html.
There is a very small Jewish population in the country. Anti-Semitic sentiments were widespread in the vernacular press. Hate speech broadcast by traditional media and through social media derogatorily used terms such as “Jewish agent” and “Yahoodi” to attack individuals and groups.
Trafficking in Persons
See the Department of State’s Trafficking in Persons Report at www.state.gov/j/tip/rls/tiprpt/.
Persons with Disabilities
The law provides for equal rights for of persons with disabilities, but authorities did not always implement its provisions. After the Ministry of Social Welfare and Special Education was dissolved in 2011, its affiliated departments–including the Directorate General for Special Education, National Council for the Rehabilitation of the Disabled, and National Trust for the Disabled–were transferred to the Capital Administration and Development Division. The special education and social welfare offices, which devolved to the provinces, are responsible for protecting the rights of persons with disabilities.
In the provinces social welfare departments worked for the welfare and education of persons with disabilities. In Sindh the law mandates the minister for bonded labor and special education to address the educational needs of persons with disabilities. According to civil society sources, most children with disabilities did not attend school. At the higher-education level, Allama Iqbal Open University, the University of the Punjab, and Karachi University had programs to train students as educators for individuals with disabilities.
The government’s 2003 National Disability Policy designated the federal capital and provincial capitals as disability-friendly cities and granted permission to persons with disabilities to take central superior service exams to compete for entry to the civil service. The policy also provided for 127 special education centers in main cities. Employment quotas at the federal and provincial levels require public and private organizations to reserve at least 2 percent of jobs for qualified persons with disabilities. Authorities only partially implemented this requirement due to lack of adequate enforcement mechanisms. In Lahore, beginning in 2014 and continuing sporadically thereafter, persons with vision disabilities held protests against the lack of jobs, which were in short supply despite the legal quota. Families cared for most individuals with physical and mental disabilities.
Organizations that did not wish to hire persons with disabilities could instead pay a fine to a disability assistance fund. Authorities rarely enforced this obligation. The National Council for the Rehabilitation of the Disabled provided job placement and loan facilities, as well as subsistence funding. There were no legal restrictions on the rights of persons with disabilities to vote or participate in civil affairs. Voting was challenging for persons with disabilities, however, because of severe difficulties in obtaining transportation and access to polling stations.
Acts of Violence, Discrimination, and Other Abuses Based on Sexual Orientation and Gender Identity
Consensual same-sex sexual conduct is a criminal offense; however, the government rarely prosecuted cases. The penalty for same-sex relations is a fine, two years’ to life imprisonment, or both. Lesbian, gay, bisexual, transgender, and intersex (LGBTI) persons rarely revealed their sexual orientation or gender identity. No laws protect against discrimination on the basis of sexual orientation or gender identity. Discrimination against LGBTI persons was widely acknowledged privately, but insufficient data existed for accurate reporting, due in part to severe societal stigma and fear of recrimination on the part of any who came forward. In 2013 the Pakistan Telecommunications Authority blocked the country’s first online platform for the LGBTI community to share views and network, but social media pages working on LGBTI rights and related issues continued to function.
Violence and discrimination continued against LGBTI persons. Police generally refused to take action on cases involving members of the LGBTI community. In November a gang of 20 men in Sialkot assaulted and physically abused five transgender women. After a video of the attack appeared online and the transgender community protested, police arrested members of the gang. In April a transgender woman received delayed medical treatment in Peshawar following multiple gunshot wounds and later succumbed to her injuries. The provincial government launched an investigation against the hospital administration that refused to treat her and police officials who allegedly would not file charges against them. In July, three transgender women reportedly were raped in Faisalabad.
Society generally shunned transgender persons, eunuchs, and intersex persons, collectively referred to as “hijras,” who often lived together in slum communities and survived by begging and dancing at carnivals and weddings. Some also were prostitutes. Local authorities often denied hijras places in schools or admission to hospitals, and landlords often refused to rent or sell property to them. Authorities often denied hijras their share of inherited property. A 2012 Supreme Court ruling recognizes hijras as a “third gender” and allows them to obtain accurate national identification cards. Because of the ruling, hijras fully participated in the 2013 elections for the first time as candidates and voters. In June a group of muftis (religious leaders) issued a fatwa (religious ruling) that allows transgender persons to marry other transgenders.
HIV and AIDS Social Stigma
Societal attitudes toward HIV-positive individuals were changing, but discrimination persisted. Cases of discrimination often went unreported due to the stigma faced by HIV/AIDS patients. In addition to operating treatment centers, the National Aids Control Program held rallies and public campaigns and spoke in mosques about birth control and AIDS awareness. The government established 13 HIV treatment and care centers nationwide, which provided comprehensive HIV-care services.
Other Societal Violence or Discrimination
Societal violence due to religious intolerance remained a serious problem. Occasionally, there were reports of mob violence against religious minorities, including Christians, Ahmadiyya Muslims, Hindus, and Shia Muslims. In July rioting occurred in Mehrab Samejo in Sindh’s Ghotki district after an incident in which a previously Hindu convert to Islam was accused of desecrating the Quran. Two Hindu men were subsequently shot during a mob attack.
In late June a mob of local residents clashed with members of the small Kalash tribe in Chitral after a teenage Kalash girl alleged that she was forced to convert to Islam; the Kalash people are adherent to pre-Islamic beliefs. Local law enforcement responded quickly and dispersed the mob; some minor injuries to Kalash villagers in the Bumburate valley were recorded.
Members of the Hazara ethnic minority, who are Shia Muslim, continued to face discrimination and threats of violence in Quetta, Balochistan. According to press reports and other sources, they were unable to move freely outside of Quetta’s two Hazara-populated enclaves. Consumer goods in those enclaves were available only at inflated prices, and Hazaras reported an inability to find employment or pursue higher education. They also alleged government agencies discriminated against Hazaras in issuing identification cards and passports. To avoid causing violent incidents, authorities confined Shia religious processions to the Hazara enclaves. Anti-Shia graffiti was common in Quetta. According to press reports, there were several attacks on Hazaras during the year. Media reported that three Hazaras were killed and nine others injured in separate attacks in Quetta in May. In June, five Harazas were killed in Quetta. Two Hazara men were shot in Quetta on August 1.