Developing simplified and consolidated labour codes in Pakistan's Punjab and Sindh Provinces
0-1 Original language
English
I-1 Name of the initiative
Developing simplified and consolidated labour codes in Pakistan's Punjab and Sindh Provinces
I-2 Geographical coverage
PAK
I-2-A Region/country
Pakistan
I-2-R Region
Asia and the Pacific
I-2-T Geographical scope
Country
I-3-A Initiative start date
2024
I-3-B Initiative end date
__EMPTY__
I-4 Leading entity/organization
Government
I-5 Collaborating entities/organizations
Employer and Business Membership Organization
I-5 Collaborating entities/organizations
Workers' organization
I-5 Collaborating entities/organizations
Civil society, including NGOs
I-6 Has the ILO been involved in the initiative?
Yes
I-6-A Specify how the ILO was involved
In partnership with the Delegation of the European Union to Pakistan, the ILO’s International Labour and Environmental Standards Application in Pakistan’s Small and Medium Enterprises (ILES) project provided financial and technical support for the development of consolidated and simplified labour codes in Pakistan's Punjab and Sindh Provinces. This support helped align legislative frameworks with ILO standards and address outstanding concerns raised by the ILO supervisory bodies.
I-7 Is there collaboration with other agencies of the United Nations System or other partners?
Yes
I-7-A Specify agency names
There was a collaboration with UN Women and UNDP on advocacy efforts to support the promulgation and adoption of the legislation.
II-1 Justification of the initiative
The initiative responds to the need to modernize and harmonize provincial labour legislation to ensure coherence, clarity, and stronger alignment with international labour standards, including ILO Workers with Family Responsibilities Convention, 1981 (No. 156) and ILO Maternity Protection Convention, 2000 (No. 183). Attention was given to strengthening legal protections for workers with family responsibilities and safeguarding the rights of pregnant and nursing mothers. In Punjab and Sindh, fragmented and overlapping labour laws were consolidated into streamlined, accessible legal codes, creating a clearer and more rights-based framework.The reform significantly enhanced alignment with ratified ILO Conventions and related Recommendations, including Conventions Nos. 156 and 183, by reinforcing provisions on non-discrimination, employment protection during maternity, maternity leave and benefits, health protection, and measures enabling workers with family responsibilities to engage in employment without conflict between work and care responsibilities. It also addressed pending observations from ILO supervisory bodies, thereby strengthening compliance with international commitments.By clarifying legal provisions and reducing fragmentation, the initiative supports more effective enforcement of maternity rights and protections for workers with family responsibilities, improves regulatory predictability for employers, and fosters a more enabling environment for gender equality, decent work, social dialogue, legal certainty, and sustainable economic development.
II-10 Focus on other branches of economic activity
Agriculture, forestry and fishing
II-10 Focus on other branches of economic activity
Manufacturing industries
II-10 Focus on other branches of economic activity
Electricity, gas, steam and air conditioning supply
II-10 Focus on other branches of economic activity
Construction
II-10 Focus on other branches of economic activity
Wholesale and retail trade, repair of motor vehicles and motorcycles
II-10 Focus on other branches of economic activity
Transportation and storage
II-10 Focus on other branches of economic activity
Accommodation and food service activities
II-10 Focus on other branches of economic activity
Information and communication
II-10 Focus on other branches of economic activity
Financial and insurance activities
II-10 Focus on other branches of economic activity
Real estate activities
II-10 Focus on other branches of economic activity
Professional, scientific and technical activities
II-10 Focus on other branches of economic activity
Administrative and support service activities
II-10 Focus on other branches of economic activity
Education
II-10 Focus on other branches of economic activity
Arts, entertainment and recreation
II-11 Focus on certain categories of enterprises or economic units according to their size
Micro enterprises
II-11 Focus on certain categories of enterprises or economic units according to their size
Small enterprises
II-11 Focus on certain categories of enterprises or economic units according to their size
Medium enterprises
II-11 Focus on certain categories of enterprises or economic units according to their size
Large enterprises
II-11 Focus on certain categories of enterprises or economic units according to their size
Multinational enterprises
II-12 Focus on specific status in employment
Employees
II-12 Focus on specific status in employment
Employers
II-12 Focus on specific status in employment
Own-account workers
II-12 Focus on specific status in employment
Contributing family workers
II-12 Focus on specific status in employment
Workers not classifiable by status
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Domestic workers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Primary and secondary school teachers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Personal care and/or assistance workers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Nurses
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Long-term care / geriatric care workers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Personal assistants / disability support workers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Other education workers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Other health workers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Digital platform workers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Home-based workers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Workers in the informal economy
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Other specific category of workers not captured elsewhere
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Employers of care workers
II-14 Focus on specific groups of population / persons prioritized in the initiative
Women
II-14 Focus on specific groups of population / persons prioritized in the initiative
Men
II-14 Focus on specific groups of population / persons prioritized in the initiative
Mothers
II-14 Focus on specific groups of population / persons prioritized in the initiative
Fathers
II-14 Focus on specific groups of population / persons prioritized in the initiative
Pregnant women
II-14 Focus on specific groups of population / persons prioritized in the initiative
Older persons
II-15 Has the initiative been developed through effective social dialogue processes and inter-institutional coordination mechanisms?
Yes, through social dialogue
II-2 Objectives and description of the initiative
Pakistan’s Punjab and Sindh provinces undertook a comprehensive legislative reform process to consolidate and simplify their labour laws. The initiative included a systematic review of fragmented statutes to identify gaps, overlaps, and inconsistencies, followed by the harmonization of provisions in line with international labour standards. The reform process incorporated technical guidance to ensure consistency with ILO Conventions and relevant Recommendations, as well as to address observations issued by the ILO supervisory bodies. Through structured stakeholder consultations and targeted legal drafting support, the provinces developed consolidated labour codes that enhance clarity, coherence, and accessibility.The specific objectives were to:Modernize and harmonize provincial labour legislation in line with international labour standards, including ILO Convention Nos. 156 and 183.Consolidate and simplify fragmented labour laws into coherent, accessible, and user-friendly labour codes.Strengthen alignment with ILO Conventions and Recommendations.Address outstanding observations of the ILO supervisory bodies and enhance compliance with international obligations.Improve legal clarity, strengthen enforcement, and enhance the protection of workers’ rights, including workers with family responsibilities and pregnant and nursing women, while ensuring regulatory predictability for employers.Enhanced protection for women during pregnancy and after childbirth, leading to improved retention in the workforce and greater recognition of shared care responsibilities.Promote social dialogue, legal certainty, and sustainable economic development.
II-3 Type of initiative
National/local law
II-4 Which of the Rs in the 5R Framework for Decent Care Work guides this initiative?
Recognition, reduction and redistribution of unpaid care
II-4 Which of the Rs in the 5R Framework for Decent Care Work guides this initiative?
Reward care workers
II-5 Which is the main policy area of the 5R Framework for Decent Care Work does the practice focus on?
Labour Protection policies
II-6 Which other policy areas of the 5R Framework for Decent Care Work does the practice focus on?
Care policies
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Design and implement integrated and coherent care policies and systems for decent work and gender equality
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Formalization of informal care jobs and enterprises
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Addressing the unequal gender distribution of paid and unpaid work, and promoting women’s economic inclusion and autonomy beyond caregiving
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Comprehensive maternity protection and care leave and protection policies, including paternity, parental leave and long-term care leave
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Work-life balance policies and measures, including organization, time and location of work, and other terms and conditions of employment
II-8 Which beneficiaries in the care economy does the practice focus on?
Unpaid carers (workers or persons with care responsibilities, parents, other family members, etc.)
II-8 Which beneficiaries in the care economy does the practice focus on?
Paid care workers (nurses, domestic workers, teachers, childcare workers, personal assistants, etc.)
II-9 Geographical scope
Urban and rural
III-1 In a short paragraph, summarize the main results and impacts obtained
Adoption of Consolidated Labour Codes: Punjab province successfully enacted simplified and harmonized labour codes, replacing fragmented legal frameworks with coherent and accessible legislation.Improved Alignment with International Standards: The revised legislation strengthened compliance with ILO Conventions and Recommendations, including Conventions Nos. 156 and 183, addressing previously identified gaps and inconsistencies.Response to ILO Supervisory Observations: Outstanding comments and concerns raised by ILO supervisory mechanisms were substantively addressed, improving the provinces’ reporting status and demonstrating commitment to international obligations.Enhanced Legal Clarity and Enforcement: Streamlined provisions and reduced duplication improved legal certainty, facilitating more consistent interpretation, application, and enforcement by labour authorities and courts.Stronger Protection of Workers’ Rights: The reform reinforced safeguards related to fundamental rights at work, working conditions, and dispute resolution mechanisms, contributing to improved labour standards.Greater Predictability for Employers: A clearer and more coherent regulatory framework enhanced transparency and reduced compliance complexity for businesses.Promotion of Social Dialogue and Decent Work: The initiative fostered collaboration among government, workers’ and employers’ representatives, strengthening tripartite dialogue and advancing decent work objectives.Gender Responsive legislation: This was aligned with ILO normative frameworks and key international instruments, including the ILO Conventions Nos. 156 and 183. This code now include provisions on maternity protection, parental leave, non-discrimination, and work-life balance, supporting gender-equitable employment policies.Overall, the initiative contributed to a modernized and internationally aligned provincial labour governance framework, strengthening compliance with ILO Conventions No. 183 (Maternity Protection) and No. 156 (Workers with Family Responsibilities) while promoting legal certainty, more effective enforcement of maternity and work–family protections, improved regulatory compliance, and sustainable economic development.
III-2 Explanation of the innovative element of the initiative for advancing decent work in the care economy
The Punjab Labour Code contributes to a more coherent, enforceable, and internationally aligned labour governance framework that benefits the care economy by:Expanding effective coverage.Strengthening worker protections, including for workers with family responsibilities.Enhancing compliance and enforcement.Improving predictability for care service providers.Advancing gender equality and decent work.By incorporating provisions on maternity protection, parental leave, non-discrimination, and work–life balance, the Code formally recognizes unpaid care responsibilities as a structural labour market issue. This shifts care from the informal/private sphere into the realm of regulated employment policy—an important normative innovation aligned with ILO Convention No. 156.While legal reform alone does not resolve informality or structural underinvestment in care services, the Code establishes a critical enabling foundation for formalization, social dialogue, and progressive improvement in working conditions within the care economy.
IV-1 What were the main challenges or difficulties during the design and implementation? How were they faced/ addressed?
The design and implementation of the Punjab Labour Code reform faced several structural, institutional, and political challenges. One major difficulty was the fragmentation of labour legislation across multiple outdated and overlapping laws, which created inconsistencies and institutional resistance to consolidation. This was addressed through a comprehensive legal mapping and harmonization process supported by technical expertise and comparative analysis, with drafting undertaken in phases to ensure coherence while preserving worker protections. Another challenge was balancing alignment with ILO Conventions and supervisory observations with provincial administrative realities. This required careful calibration to ensure that provisions were both compliant with international labour standards and practically enforceable within existing institutional capacities.Building consensus among government, employers' and workers’ organizations also required sustained effort, particularly on sensitive issues such as enforcement powers, penalties, and worker protections. Structured tripartite consultations, transparent dialogue, and evidence-based discussions helped foster trust and shared ownership of the reform. At the same time, some employers expressed concerns about increased regulatory burdens. These concerns were addressed by emphasizing simplification, reduced duplication, and improved legal clarity, demonstrating that consolidation would enhance predictability and reduce long-term compliance uncertainty. Institutional capacity constraints within labour departments posed additional implementation risks, which were mitigated through clearer mandates, streamlined procedures, and orientation and capacity-building measures. Finally, high levels of informality, including in care-related services, limited effective coverage. The Code responded by strengthening legal clarity, reinforcing protections, and improving dispute resolution mechanisms, thereby creating a more solid foundation for gradual formalization and the advancement of decent work.
IV-2 Lessons learned and good practices, including room and opportunities for improvement
The Punjab Labour Code reform demonstrated that comprehensive legal consolidation is more effective than piecemeal amendments, as it improves clarity, coherence, and enforceability. A key lesson was the importance of sustained tripartite dialogue, which built trust, reduced resistance, and strengthened ownership of the reform. Proactively aligning the Code with ILO Conventions and addressing supervisory observations enhanced international credibility, while adapting provisions to local capacity ensured practical implementation. Simplifying procedures and clarifying enforcement mandates were important good practices that improved consistency and predictability.However, legal reform alone is not sufficient. Continued investment in institutional capacity, labour inspection, data systems, and awareness-raising is essential to ensure effective implementation. There is room to strengthen gender-responsive application, expand outreach to informal and care-related sectors, and establish stronger monitoring and review mechanisms. The main opportunity going forward lies in translating legal modernization into tangible improvements in working conditions and rights in practice.
IV-3 Key conditions for success
The success of the Punjab Labour Code reform depended on strong political commitment and sustained technical leadership to guide comprehensive legal consolidation. Inclusive tripartite dialogue ensured legitimacy, trust, and stakeholder ownership. Rigorous legal mapping and alignment with ILO standards strengthened coherence and credibility, while capacity-building and clarified enforcement mandates supported effective implementation. Clear communication emphasizing simplification and improved governance helped secure broader acceptance.
IV-4 Key conditions for sustainability
Sustainability of the Punjab Labour Code reform depends on continued political commitment and strong institutional ownership to support regular review and adequate resourcing. Effective enforcement capacity, including trained labour inspectors and improved data systems, is essential to translate legal provisions into practice. Institutionalized social dialogue helps maintain stakeholder trust and address emerging challenges. Ongoing awareness and outreach, particularly to informal and care-related sectors, will support compliance and formalization. Finally, linking the Code to broader employment, gender equality, and social protection strategies strengthens its long-term impact and relevance.
IV-5 Potential for transferability, expansion and replicability in other countries and contexts
The Punjab Labour Code reform has strong potential for transferability to other countries, particularly those with fragmented labour laws or decentralized systems. Its model of consolidating legislation, aligning with international labour standards, and integrating ILO supervisory observations provides a clear and adaptable framework for legal modernization. The emphasis on inclusive tripartite dialogue enhances legitimacy and sustainability, making the approach replicable across different contexts.