Challenges for Women Empowerment in

Pakistan: Archival Data

Farah Adil
Shehla A.Yasin
Sarah Shahed

This review evaluates empowerment of women in Pakistan.

Women make half of the world population and are integral to the
progress of any country. This is one reason women empowerment
has become a central issue for national and global developments
with great many efforts to improve its effectiveness. Empowerment
advances women and enhances their strength socially,
economically and politically; protecting them from insecurities
and violence. The current review uses secondary data to assess the
level of empowerment of women in Pakistan, which is based on
indices like literacy, economic and political participation and
safety against violence. The review includes a discussion on pro-
women laws and policies initiated by the Government of Pakistan.
The data analysis reveals that women empowerment is being
cultivated in Pakistan, but strong socio-cultural barriers are
hindering this process. Government of Pakistan has ratified
international commitments and undertaken important national
initiatives to raise the status of women in Pakistan but still there is
a long way to go. We conclude education for all especially for
women, economic development and changing social perceptions
will promote women empowerment in Pakistan.

Key Words: Women, empowerment, participation, economic, political,

policies, standpoint, government, society
Challenges for Women Empowerment in Pakistan: Archival Data 215

Schecter (1982) suggested, “empowerment is achieved if we turn

individual defeats into victories through giving women tools to better control their
lives and joining in collective struggle". West and Parent (1992) add empowerment
is conversion of power and authority that increases motivation to participate and
succeed; and adds greater dignity for the individuals. Empowerment is a concept
that is associated with social power and skills, support system and practical
approach to policy and societal change or simply a process through which
individuals achieve control over their lives, and autonomous participation in the
development of their community (Rappaport, 1987). More aptly said
empowerment is “a process through which women and men in disadvantaged
positions increase their access to knowledge, resources, and decision-making
power, and raise their awareness of participation in their communities, in order to
reach a level of control over their own environment,” and disempowerment its
antithesis is “any action, policy development and/or relief program or process
through which women’s and men’s priorities, needs and interests are further
ignored, reducing their participation in decision-making and representing an
obstacle to their economic, political and social improvement” (UNHCR, 2001).
This powerlessness (disempowerment) obstructs the socio-economic and political
development of people, and can be converted into empowerment through
education, awareness and skills.

In the modern world, the concept of women empowerment was presented at

International Women’s Conference (1985) at Nairobi; where women
empowerment was described as a re-allocation of social power and control of
resources for women with the following parameters:

• Self-esteem and self-confidence

• Building a positive image of women in development
• Enhancing critical thinking
• Give decision-making power
• Providing equal status in education, health and employment
• Ensuring equal participation in the development process
• Providing facts, awareness and technical skills for economic development
• Enhancing the access of legal support of rights and responsibilities
• Personal contributions and co-operation

With this list in mind, we defined empowerment of women in Pakistan, when

equal rights to education, personal development, ownership of property and
business, equal opportunities in seeking jobs, non-violence and harassment both at
home and work place are given.
216 Pakistan Vision Vol. 22 No. 1

Theoretical framework

Standpoint theory describes the evolution of human societies in various

groups of social order and focuses on the construction of relationship among
diverse groups (gender, race, class, and sexual identity) in term of their experience,
knowledge, feelings and performance, as well as their understating about the whole
social life (Collins, 1986; Harding, 1991,1998; McClish& Bacon, 2002; Wood,
2005). The most important concept of standpoint theory is based on an individual’s
own perspective that are shaped by their political and social experiences which
examines systems and practices of the marginalized groups (women and other
minorities); and illustrates ways to distinguish socio-cultural expectations and
prejudices that formulates a milieu for transformation in the society and culture
(Swigonski, 1994).As the marginalized groups of people can produce distinctive
perceptions (standpoints) about how society works; women, minorities and people
from lower socio-economic status may perceive the society from a less distorted
and less biased view than those who occupy more central positions. Therefore,
socially constructed roles for men and women are required to develop specific
abilities, approaches, thinking ways and understanding about their lives to achieve
a standpoint. That is why the theory could be effective in understanding factors
that make women subjugated and elaborate factors that could liberate them
(Bookman &Morgen, 1988). In doing so women are not to snatch away
empowerment from men, “the goal of women is to develop their own power while
respecting men for who they are" (Hall, 1992). The theory also emphasizes that
women’s standpoints, give a chance for objective analysis, rather than viewing
standpoints through the advantaged lens of men (Martin, 2001), for example
enlightenment can be a standpoint, and women can learn in their social
environment through awareness of rights, better living standards; equal control
over productive resources, healthcare facilities of mother and child, achievements
in education of all levels, more recognized contribution in economic productivity
and realization of autonomy, self-assurance and self-esteem (Pant, 2007).

Kabeer (2001) argued that women could realize their capabilities and
potentials to control their lives in all spheres of life through empowerment; that is a
dynamic process of power distribution. The process is persistent in an encouraging
environment for the insight/enlightenment that is to be confirmed first. In this way,
empowerment is deliberated as insight or enlightenment that could not be possible
without reasoning. Therefore, women empowerment is the value of life that is
achieved not only by growing incomes or health but also by the independence and
safety relished by women, universally.

Literature Review
Recent literature on women empowerment in Pakistan was reviewed in the
fields of education, political participation, economic contribution and violence.
Challenges for Women Empowerment in Pakistan: Archival Data 217

Tembon and Fort (2008) found gender inequality in higher education of

Pakistan because of persistent discrimination; and distance from school
(Sathar&Haque, 2000); and lack of personal security and incidents of sexual
harassment and sexual abuse (World Bank, 2007; UNESCO, 2010). Yasin and
Aslam (2018) replicated these reasons and argued discrimination was the main
cause for low literacy in women along with poverty, school distance and domestic
responsibilities.
Bano (2009) claimed participation of women in a political system is barely
associated with economic empowerment and representation of women in Pakistani
politics is not beneficial for common women that have low literacy to begin with,
this prevents them from casting a vote. Mumtaz (2007) reports literate women
casted fewer votes; 20 percent less votes than illiterate males in the 2013 election.
One reason for women casting fewer votes was non-listing of 11 million women
voters in this election (Yusuf, 2013). Socio-cultural and financial reasons also
hamper political participation of women in Pakistan, and even with women quotas
for political participation they remain a small group in the political system, not
helping women to uplift spirits in political decision-making (True et al., 2014).
Similarly, women participation in work force is not very encouraging, for
example Kabeer (2012) reports Pakistani women in the labour force are low, with a
market where gender inequality exists. Women have challenges of illiteracy and
skills to run a personal business. Lack of awareness and access to personal loans,
challenges of property ownership, difficulty to register personal businesses, and
lack of female entrepreneurs’ networking are major obstacles (Amnesty
International, 2002; Jilani& Ahmed, 2004). . Female entrepreneurs also experience
challenges to access and compete in the markets of developing countries due to
lack of mobility, ability and lesser professional skills as compared to men (World
Bank, FAO & IFAD, 2009). With a small number to begin with economic
contributions remain invisible, unrecognized and uncounted for their benefit
(Khan, 2007).
Pakistan is included in those countries where violence against women is
extreme largely caused by men (Zakar, 2004). As Express Tribune (2017) reported
that in Pakistan 70% of women and young girls experienced sexual and physical
violence in their lives by their intimate partner and 90% women faced some type of
sexual violence in public places. Similarly, HRCP Report (2018) pointed out that
mostly domestic violence was widespread in Pakistan that was committed by
fathers, brothers, husbands and in laws and according to USSD HR (2018) report
domestic violence included physical beating, and extreme form was homicide and
burning with acid etc.
Keeping in view the above literature about challenges faced by women
empowerment, the aim of present review is to analyze indicators that empower
women in Pakistan and utilize theoretical lens to explain them. In this context
Bookman and Morgen (1988) emphasize empowerment requires recognition and
overcoming factors that subjugate women to go-ahead.
218 Pakistan Vision Vol. 22 No. 1

Need for this Review

The significance of this review is to present statistical data which is
classically implicated in the empowerment of women of Pakistan. The review is
needed because it would provide a way (standpoints) for Pakistani women to focus
on positions that would open move them forward to attain their goals. In addition,
the review provides agendas formulated by external agencies like pro-women laws
and policies initiated by Government of Pakistan to aid women in their goal to
empowerment.

Method
This is an archival study in which the secondary data have been analyzed.
Three archives were selected to analyze differences in women and men that are
associated with women empowerment. We selected three secondary datasets on
educational, socio-economic and political status of women in Pakistan published
representing 2013-2016 (Pakistan Economic Survey (2016-17); Free and Fair
Election Network (FAFFN; Election 2013) and Pakistan Economic Survey, (2014-
15). In addition, statistics on violence against women were also analyzed (Aurat
Foundation Report, 2014; and data collected from national and local newspapers of
Pakistan, Jan-Dec 2014). The data are reliable and valid with large sample sizes
from the all provinces of Pakistan.
Results
Table 1
Provincial and State Literacy (Rural and Urban Combined) in Pakistan (2013-16)
2013-14 2015-16
Province/Sta Tot Femal Mal Differenc Tot Femal Mal Differenc
te al e e e al e e e
Punjab 61* 52 71 19 62 54 72 18
Sindh 56 43 67 24 55 44 67 23
KPK 53 36 72 36 53 36 72 36
Baluchistan 43 25 59 34 41 24 56 32
Pakistan 58 47 70 23 58 48 70 22
Source: Household Integrated Income and Consumption Survey (HIICS) Pakistan
Bureau of Statistics (Pakistan Economic Survey, 2016-2017).
*All values are in percent.

Table 1 presents HIICS data for the years 2013-16. Overall literacy in
Pakistan remained steady for the two years at 58%; for males it remained at 70
percent and for females it marginally increased from 47 to 48 percent. This rise
was largely due to more female literacy in Punjab, where other provinces either
showed no change (KPK) or showed a decrease (Sindh and Balochistan). Overall
literacy rate for the two years in Punjab (61.5%) was followed by Sindh (55.5%),
KPK (53%), and Baluchistan (42%). Male literacy in KPK (72%) was highest
followed by Punjab (71.5%), Sindh (67%) and Baluchistan (57.5%); and females
Challenges for Women Empowerment in Pakistan: Archival Data 219

literacy was highest in Punjab (53%), followed by Sindh (43.5%), KPK (36%) and
Baluchistan (24.5%).
100
Male

Femal
80 e
Percent Literacy

60

40

20

0
Punjab Sindh KPK Baluchistan Pakistan
Province/State

Figure 1.Shows a comparison of female-male literacy across provinces and the

State of Pakistan.

For two consecutive years (2013-16) overall female literacy (22.5%) in Pakistan
lagged behind male literacy; and female literacy lagged behind males in Punjab
(18.5%) followed by Sindh (23.5%), Baluchistan (33%) and KPK (36%), see
Figure 1 above.

Table 2
Gender differences in all Labour Force of Pakistan
Labor Force 2012-13 2013-14 2014-15
Total 45.7* 45.5 45.2
Female 21.5 22.2 22.0
Male 68.9 68.1 67.8
Difference 48.4 45.9 45.8
Source: Pakistan Bureau of Statistics (Pakistan Economic Survey, 2014-
2015).
*All values in percent.

Table 2 presents Pakistan labour force for three years (2012-15) and
categorizes them by genders. Pakistan Economic Survey (2012-15) shows on
220 Pakistan Vision Vol. 22 No. 1

average, male labour force was about 68.3 percent, and female labour force was
21.9 percent and the two rates were more or less steady in these three years.
Female labour force was a third to male labour force during these years with a
steady difference of 46.7 percent.

Table 3
Political Candidates by Gender (General Election, 2013)
Region Total Male Female Difference
Punjab 3,335 3,180 (95.4*) 155 (4.6) 3025 (90.7)
Sindh 1.643 1,590 (96.8) 53 (3.2) 1537 (95.7)
KPK 870 849 (97.4) 21 (2.4) 828 (95.2)
FATA 446 445 (99.8) 1 (0.2) 444 (99.8)
Baluchistan 378 374 (98.9) 4 (1.1) 370 (97.9)
ICT 147 143 (97.3) 4 (2.7) 139 (94.6)
Total 6,819 6,581 (96.5) 238 (3.5) 6,343 (93.0)
Source: Free and Fair Election Network (FAFEN, 2013)
FATA: Federally Administered Tribal Areas; ICT: Islamabad Capital Territory
*All values in parentheses are in percent.

Table 3 indicates the number of political candidates by gender in different

regions for 2013 elections. Male candidates in Punjab numbered 3,180 compared
to 155 female candidates, followed by Sindh where male candidates numbered
1,590 to 53 female candidates; male political candidates in KPK were 849
compared to 21 females. Similarly, in Federally Administered Tribal Areas
(FATA) male political candidates were 445 to just one female candidate, in
Baluchistan 378 male candidates were elected to four female candidates and finally
in Islamabad Capital Territory (ICT) 147 male candidates got elected to four
female candidates. Figure 2 shows percent differences in elected male and female
candidates in all the regions mentioned above for the 2013 election. These
differences range from 90.7 (Punjab) to 99.8 (FATA) percent. In other words,
overall all difference in male and female political candidates translates as for every
nine male political candidates there is just one female political candidate (see
Figure 2 below).
Challenges for Women Empowerment in Pakistan: Archival Data 221

Punjab Femal
e
Sindh
KPK
Region

FATA
Baluchistan
ICT

Total

0 20 40 60 80 100 120
Percent Political Candidates
Figure 2. Shows percent differences in the number of male and female political
candidates in regions of Pakistan.
Table 4
Offences Against Women in Different Regions of Pakistan
Region
Baluchist FAT
Offence
Punjab Sindh KPK an ICT A Total
Kidnappin 1866 161 75 6(.3) 62 0(.0) 2170(20.
g/ (86.0) (7.4) (3.5) (2.9) 9)
Abduction
Rape/GR/ 1439 447 7 (.4) 4(.2) 18(.9 0(.0) 1915(18.
SA (75.1) (23.3) ) 4)
964 249 324 46(2.9) 18 9(.6) 1610(15.
Murder
(59.9) (15.5) (20.1) (1.1) 5)
“Honour” 362 212 60 77(10.8) 2(.3) 0(.0) 713(6.9)
Killing (50.8) (29.7) (8.4)
Domestic 191 202 66 30(6.1) 5(1.0 0(.0) 494(4.8)
Violence (38.7) (40.9) (13.4) )
Acid 53 (96.4) 0 (.0) 2 (3.7) 0(.0) 0(.0) 0(.0) 55(0.5)
Throwing
54 (83.1) 3 (4.6) 2 (3.1) 5(7.7) 1(1.5 0(.0) 65(0.6)
Burning
)
All Other 1977 344 94 1(.04) 17(.7 0(.0) 2433(23.
Offences (81.3) (14.1) (3.9) ) 4)

7548 1773 736 130 10386(10

Total 190(1.8) 9 (.1)
(72.7) (17.1) (7.1) (1.3) 0)
222 Pakistan Vision Vol. 22 No. 1

Source: Aurat Foundation (2014)

FATA: Federally Administered Tribal Areas; ICT: Islamabad Capital Territory;
GA/SA: Gang Rape/Sexual Assault
*All values in parentheses are in percent.

Table 4 shows overall cases of violence against women in Pakistan, are

highest (72.7%) in Punjab, followed by Sindh (17.1%), KPK (7.1%), Baluchistan
(1.8%), ICT (1.3%) and FATA (.1%). And in descending order highest rate of type
of violence was kidnapping/abduction (20.9%), followed by rape/gang rape/sexual
assault (18.4%), murder (15.5%), “honour” killing (6.9%), domestic violence
(4.8%), acid throwing (.6%), burning (.5%) and all other offenses combined
(23.4%).

Discussion
Education is the most important indicator of women empowerment and
basic right of every individual in a society. The sex-disaggregated data from
Pakistan Economic Survey (2016-17) showed a consistent gender disparity for two
consecutive years (2013-16); for every ten literate men there were seven literate
women. Since women make almost half the population of Pakistan, this disparity
in literacy is significant. Stated differently it says that a third of women that could
be educated remain illiterate. Reasons include resistive attitudes of people towards
women education and lack of interest/motivation on the part of women to get
education (EFA, 2015) national review report of Pakistan. Empowerment is
directly associated with education, and is an act of empowerment (Lincoln et al,
2002). The standpoints (thinking, action, and approaches) about position of women
in the modern society can reduce gender disparities from educational levels and
that is why research suggests that both women and men have to learn specific
abilities, approaches, thinking ways and considerations about life to engender
exceptional understandings about how society works (Collins, 1986).
As said above women is almost half of Pakistani population, their
participation in labour force can play a major role in the financial uplift of the
country. The results indicated extreme disparity of paid labour force across gender;
males (67%) were three times more than female (22%) paid labour during the year
2014-15. Sharma and Rasaili (2016) suggest this labour disparity is due to gender
inequality, lower status of women, gender discrimination, inadequate knowledge
about opportunities, assets and services, lack of recognition of work, mobility
constraints, working conditions, and low pay jobs etc. Work place harassment is
also a hindrance for women (Jamil, 2010). Therefore, it is essential to change and
achieve multiple standpoints about women economic empowerment for making
their lives more productive for families, societies and for themselves. Government
has initiated policies and laws against work place harassment but a lot more is yet
to be achieved (see below).
Globally, women political participation is considered one of the leading
indicators of women empowerment. It can enhance the political consciousness of
Challenges for Women Empowerment in Pakistan: Archival Data 223

women about their strategic needs in the society and they can be a part of decision-
making to eliminate the women discriminatory contents at policy level and may
contribute in development of more gender equitable policies and plans with the
growing women participation in all spheres of life. Women political participation
(3.5%) in 2013 election was extremely small to men (96.5%). Reasons for low
political participation of women included stereotypical image of women (domestic
role), gender discrimination, and illiteracy level, unawareness of political or civil
rights, limited access to economic resources, and absence of female political
networks. In addition, political parties are reluctant to trust female candidates
(Yusuf, 2013). With so many external pressures for women to vertically move up
the political arena many believe women of Pakistan should gain and use political
consciousness and analyze their situation so that they may achieve this standpoint.
World has shown women can be enthusiastic leaders and common women can be a
part of politics.
Among socio-cultural barriers, violence against women is another major
challenge towards empowerment. The researchers found that violence affects
women not only physically abut also harm them psychologically (reduction in self-
confidence) and socially (lower views about womanhood). Social locations shape
identities of women (like all others) affecting their actions, thoughts and feelings in
a society.
In the battle for empowering women, a number of agencies in the world
have proposed ways to achieve their status these include pro-women laws, policies,
schemes and initiatives (see below for more details). The Government of Pakistan,
signatory on international commitments such as International Labour Organization
(ILO), Universal Declaration of Human Rights (UDHR), The Convention on the
Elimination of all Forms of Discrimination Against Women (CEDAW),
Millennium Development Goals (MDGs), Sustainable Development Goals (SDGs)
and International Covenant on Civil and Political Rights (ICCPR) is sensitive to
the status of women in all spheres of life and following is a list of milestones
achieved by the State.

Federal and Provincial Government Initiatives for Women

Mazari (2017) presented Pakistan gender budgeting at regional forum on gender-
responsive budgeting in Asia and the Pacific in Bangkok and highlighted the
following schemes and pro-women laws that are considered the milestones for
empowering women in Pakistan.
 1973 – The Constitution of Pakistan, “"there shall be no discrimination on
the basis of sex alone… [and] full participation of women in all spheres of
national life.”
 1979 - Women's Division in the Cabinet Secretariat
 1989 - Ministry of Women Development
 1989 - The First Women Bank
 1989 - Women's Studies centres at five universities in Islamabad, Karachi,
Quetta, Peshawar, and Lahore.
224 Pakistan Vision Vol. 22 No. 1

 2009 – Twenty-five Shaheed Benazir Bhutto Welfare Centres (SBBWC)

established over time throughout the country.
 2011 - Zakat &Ushr Act (2011) Guzara Allowance and Marriage
Assistance to the deserving females, under The Khyber Pakhtunkhwa
 2012- Benazir Income Support Programme
 2012-16 - Women Empowerment Package.
 2013 - ‘Waseela-e-Rozgar’ (Technical & Vocational Training) program
 2013 - ‘Waseela-e-Haq’ (Micro-finance) program
 2014 - Provincial Commission on the Status of Women.
 2014 - Punjab Women Empowerment Initiative.
 2015 - ‘Waseela-e-Sehet’ (Life & Health Insurance)
 2017 (January) - Punjab launched a “Women Safety Smart Phone App”
project.
 2017 - Chief Minister’s Self Employment Scheme
 2017 - ‘Waseela-e-Taleem”

Pro-Women Laws
 The Criminal Law Act (Amendment, 2004)
 The Protection of Women (Criminal Law Amendments Act, 2006)
 The North-West Frontier Province Establishment of a Commission on the
Status of Women Act (2009)
 Criminal Law Act (Amendment, 2010)
 The Protection Against Harassment of Women at the Workplace Act
(2010)
 Criminal Law Act (Second Amendment, 2011)
 Criminal Law Act (Third Amendment, 2011)
 Women in Distress and Detention Fund Act (2011)
 National Commission on the Status of Women Act (2012)
 Elimination of Custom of Ghag Act (Government of KPK, 2013)
 Domestic Violence (Prevention and Protection) Act, (Government of
Sindh, 2013)
 Punjab Commission on the Status of Women Act (Government of Punjab,
2014)
 The Balochistan Domestic Violence (Prevention and Protection) Act,
(Government of Baluchistan, 2014)
 Deserving Widows and Special Persons Foundation Act (Government of
KPK, 2014)
 The Punjab Fair Representation of Women Act (Government of Punjab,
2014)
 The Balochistan Protection and Promotion of Breast-Feeding and Child
Nutrition Act (Government of Balochistan, 2014)
Challenges for Women Empowerment in Pakistan: Archival Data 225

 The Sindh Commission on the Status of women Act (Government of

Sindh, 2015)
 Hindu Marriage Act (Government of Sindh, 2016)
 The Punjab Protection of Women against Violence Act (Government of
Punjab, 2016)
 Anti-Rape Law (Criminal Law Amendment) Act (2016)
 Anti-honor killing Act (2016)

Conclusion
Based on four parameters analyzed above, Pakistani women lag behind men in
education, work force, political representation and violent offences against them.
These measures partially represent levels of empowerment compared to men; and
to apples a qualitative gap is large. With good intentions women friendly laws and
policies have been and continue to be established by the federal and provincial
governments to improve the status of women and their empowerment. This should
be taken with a grain of salt where outcomes of these milestones have been meager
and slow. Consistent supervision and implementation of these policies is required;
and women need to develop positive standpoints and reanalyze their position in the
society to gain empowerment. This could be achieved through recognizing
problems etched in patriarchal framework. Women should develop self-advocacy
and support groups to fight for their rights so that they can resist dominant socio-
cultural dichotomies (Hahn, 1991) and be more vocal in demanding recognition
and respect (Brunk, 1991). Counts (1932) exquisitely stated, “We are convinced
that education is the one unfailing remedy for every ill to which man is subject,
whether it is vice, crime, war, poverty, riches, injustice, political corruption, race
hatred or class conflict”. Similarly, researchers claimed that media is a strong agent
of socialization that can transform social surroundings and change individual
cognitions (Plungė, 2011; McLuhan, 2003; Oliver, 2009 et al.). Recognizing the
importance of media as a source of transmitting standpoints among women can be
effective, productive and a change spreader for societal development.
226 Pakistan Vision Vol. 22 No. 1

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