When Pakistan launched its National Alien Registration Authority (NARA) in January 2002 to address the perceived problem of illegal immigration, an estimated 3.3 million non-citizens were residing unlawfully in the country, close to two million in the southern city of Karachi alone. NARA received a mandate of three years to document illegal residents in Pakistan, specifically those in Karachi, and to issue work permits to non-citizens "who will get themselves registered". But, perhaps not surprisingly, 18 months into its mission and halfway to its deadline of December 2004, NARA has registered only 35,000 people, just one percent of the estimated total.
The reasons for NARA's poor performance to date are numerous, though many relate to difficulties inherent in differentiating 'real' Pakistanis from non-citizen 'impostors'. Immigrants and their children have blended into Karachi's bustling urban life, and many have secured government-issued National Identity Cards (NICs), often with the help of other non-citizens elected (illegally) to local administrative bodies. More broadly, they have created their own patronage networks and ensconced themselves into Karachi's existing ones, gaining access to jobs, political connections and social services that make them as much residents of the city as any native-born citizen.
Owing to the scale and diversity of the immigrant population, estimates of its size and composition remain rough. In Karachi, the largest segment – about 1.3 million – hails from Bangladesh, while totals from Africa, Burma and India reach into the hundreds of thousands. Most Bangladeshi migrants travel overland to Pakistan via India, where they are sometimes able to make arrangements in advance for work in Karachi, where supposedly pays are higher than anywhere else in South Asia. Karachi is also home to 80,000 Afghans, who are counted as refugees rather than as aliens on the assumption that they will return to their native country once conditions improve.
In a sprawling city of 12 million-plus people, Karachi's non-citizen residents represent about 15 percent of the total population, and because many of them have secured voting rights, they constitute a significant electoral block. A report prepared by NARA's Karachi office states that at least 80 unnaturalised immigrants have been elected to a cluster of 20 union councils in the city, six of which are led by non-citizens, though local government officials put the number of elected immigrants at closer to 130. Another three dozen such candidates are believed to have gained office in the interior of Sindh. And while about half of the non-citizen population in Karachi is concentrated in the city's western district, it has spread effectively throughout the entire metropolis, often in small squatter settlements, making identification of 'illegals' all the more difficult.