Purpose of assignment:
The Convention on the Rights of the Children (Article 7) categorically states and makes it binding upon the States Parties, to which Pakistan is a signatory, to undertake all appropriate legislative, administrative and other measures for a child to be registered immediately after birth and have the right from birth to a name, the right to acquire a nationality and, as far as possible, the right to know and be cared for by his or her parents.
In its most recent concluding observations, the Committee on the Rights of the Child notes that while many efforts have been implemented by the Government of Pakistan to promote timely birth registration, still more than 70 per cent of children are not registered at birth, especially girls, children belonging to a religious or minority group, refugee children and children living in rural areas. It further recommends that full implementation of measures are needed to be “taken to remove structural obstacles to birth registration, launch a mass cost-free birth registration campaign and simplify the procedures for birth registration in order to cover all persons in the country, regardless of sex, religion, status or nationality, in accordance with article 7 of the Convention. Accordingly UNICEF’s Child Protection Section, in consultation and coordination with stakeholders, has identified birth registration as one of the priority action areas for supporting national and provincial child protection systems in Pakistan.
Importantly, as reflected in various legislative and administrative steps taken in recent past on the universalization of birth registration in Pakistan, both federal and provincial governments recognise birth registration as a human right, which can strengthen children’s access to legal protection and basic social services. Birth registration supports the implementation of national legislations on minimum ages, including for child labour, child recruitment and child marriage, and is valuable for tracing efforts when children are separated from their parents. Birth registration helps in preventing statelessness by facilitating the acquisition of nationality by birth or descent through documenting the relationship between the child, his or her parents and place of birth. UNICEF has been working with NADRA and local governments, including civil society and non-governmental organisations (NGOs), to increase knowledge on the importance of birth registration and strengthen support for birth registration through technical backstopping of concerned government functionaries, placing special emphasis on vulnerable and excluded groups.
The status of birth registration in Pakistan is far less than satisfactory. National statistics show that just over a quarter of births (27.0%) are registered, with 32.0% and 24.0% birth registration in urban and rural areas respectively [UNICEF Pakistan Factsheet]. Within these figures there is huge disparity, with less than 1.0% of births being registered in Baluchistan (MICS Baluchistan 2003-04) but more than 77.0% of births being registered in Punjab (MICS Punjab 2007-08). As for Khyber Pakhtunkhwa, latest MICS shows that only 20% of births get registered. Since the creation of Pakistan, a universal birth registration system has never been fully implemented; forcing government functionaries to frequently overlook their own rules requiring proof of birth to access
different services i.e. school enrolment.
With the promulgation of the National Database and Registration Authority (NADRA), 2000 (VIII of 2000) Ordinance and Local Government Ordinance 2001, the system governing birth registration has undergone a significant transformation in the last few years. The newly promulgated Khyber Pakhtunkhwa Local Government Act, 2012 also recognises the registration of Birth as one of the basic functions of Union Councils and Municipal Committees. In parallel with these systemic challenges, there is a renewed need at the community and household levels to improve knowledge on the benefits and process of registering children’s births.
Addressing this situation requires, on the one hand, advocacy and technical support for strengthening and harmonizing birth registration systems and, on the other hand, a concerted social mobilisation and communication campaign for promoting and changing behaviours related to birth registration. Unfortunately, at the present time there is little or no information available at the household, community and facility levels to support the design of a holistic and sustainable approach for achieving universal birth registration in Pakistan, especially in rural areas.
The purpose of this assignment, therefore, is to conduct a multilevel gap analysis study at facility, community and household levels with regards to the registration of births in two districts of Pakistan, namely Abbottabad and Upper Dir in Khyber Pakhtunkhwa province. The study is to be conducted in lines with a similar analysis already conducted in two districts of Balochistan province earlier this year. The salient features of this study are as follows:
The study will have three broad components.
Analysis of major impediments in achieving universal registration of children soon after birth at the household level, both conceived through supply-side or originating from demand-side issues, i.e. knowledge attitudes and practices or perceptions and experiences; with emphases on gender and equity aspects of such impediments;
Assessment of knowledge, attitudes and practices as well as existing coordination and/or supporting mechanisms for the promotion of birth registration among key community individuals and institutions in relation to the promotion of birth registration, including of concerned government officials and departments at the district and provincial levels, i.e. NADRA; and
Capacity audit of Union Council offices, municipality offices and cantonment offices, if any, in terms of their accessibility, visibility and overall capacity in relation to the goal of universalization of birth registration as well as their linkages with other organs of the state in regards to the promotion of birth registration.
Note: This assignment/study is to be conducted by a team of two consultants/investigators [male and female], dividing responsibilities on carrying out the three components according to their backgrounds.
Study Tools and Instruments:
At least 32 (or more if information remains inconsistent in any homogenous groups) Focus Group Discussions will be conducted per District to elucidate the issues experienced at the household level. Sessions will be conducted with homogenous groups of parents in rural and urban areas, with groups segmented by a range of criteria including:
- Fathers/mothers with at least two living children under the age of 18
- Those who have had at least one of their children registered (subject to participant identification and availability) / those who have had no children registered.
25-30 in-depth interviews per District with key individuals from distinct local groups including:
- Concerned district government officials and NADRA staff (also at provincial level)
- Community health workers / Traditional birth attendants
- School teachers
- Religious leaders
- Social workers
- Other community notables.
Where possible, selected informants should represent an even mix of males and females.
A capacity audit conducted in all Union Council offices, Municipality Offices, Cantonment Offices or any other Government functionaries operating as a public service outlet for birth registration of each District including:
- Visual documentation of the exterior of the office
- Audit checklist and interviews with the Registrar and/or the Secretary of the Union Council. In case of unavailability of either the Registrar or the Secretary of the Union Council, at least one follow-up visit will be made to conduct the interview.
- Ensure feedback of Local Government, NADRA and UNICEF counterparts on the broad study outline, selection of respondents, and work plan.
- Semi-structured questionnaires and broad interview guidelines will be used to conduct all interviews with government officials and communities.
- Focus group discussion will comprise 8 to 10 individuals and should not last more than 40 minutes.
- In-depth interview should not be of more than 30 minutes’ duration.
- Audit checklist is to be prepared / adapted in consultation with a competent official.
- All new study tools, if any, will be pretested before being applied in the field.
- All data collection must comply with the principle of informed consent, as well as the ethical guidelines documented in UNICEF’s Principles and Guidelines for Ethical reporting on Children and Young People under the age of 18 years (see http://www.unicef.org/eapro/Reporting_on_children_and_young_pp.pdf).
Selection of Respondents:
As a primarily qualitative study of a specific issue, respondent selection should be based on appropriate purposive sampling methods.
Component 1: For focus groups, three villages from primarily rural and a ward from urban union councils will be selected. Community health workers/social workers and Union Council Secretaries may provide support in participant identification and recruitment. In each randomly selected village and ward two focus group discussions (one male, one female) on each of the criterion will be held.
Component 2: A total of 25-30 in-depth interviews will be conducted across each district with at least five different groups of key individuals, one to comprise concerned district government officials and NADRA staff, also at provincial level. It will be ensured that key individuals of different distinct groups are not from the same Union Council. At least two interviews will also be conducted at the NADRA provincial office with concerned staff.
Component 3: The capacity audit of Union Council offices, Municipality Offices, Cantonment Offices or any other government functionary operating as a public service outlet for birth registration (and follow-up visits as needed) will be conducted during office hours. The audit checklist may be filled out with the assistance of any competent official at the Union Council office but it is essential that either the Registrar or the Union Council Secretary is interviewed, preferably both.
Objectives of the consultancy:
This study will contribute to the goal of universalization of birth registration in Pakistan:
1. Develop understanding on the range of issues of low birth registration in the rural and urban contexts of Khyber Pakhtunkhwa province;
2. Identifying major capacity (inclusive of all aspects i.e. training, supplies, human resources, etc.) gaps in all relevant departments and provide realistic and workable guidelines and recommendations assisting the government to develop comprehensive capacity development strategy / programmes;
3. Identify and provide comprehensive understanding on the key barriers / constrains pertinent to the knowledge, attitude and practices at the community and household levels in the registration of births; and
Providing an evidence base on demand and supply-side gaps existing and originating at the community level to inform the development of an advocacy and program approach on achieving universalization of birth registration in Pakistan, especially in Khyber Pakhtunkhwa.
The lead consultants may be based anywhere in Pakistan but needs to have a demonstrated capacity for undertaking quality fieldwork in adherence with UNICEF’s security regulations in Khyber Pakhtunkhwa province. He/she may also be required to visit Islamabad/Peshawar offices of UNICEF for any consultation meetings.
Major tasks to be accomplished:
The interrelated parts of the assignment are as follows:
Project Plan: Revision, documentation and approval of the methodology and project plan for the collection, analysis and presentation of data and findings, including area selection in selected districts and preparation of a detailed field plan in consultation with identified government and UNICEF’s counterparts; as well as in light of field experience from other similar studies;
Study Tools: Revision of interview guidelines, informed consent forms, audit checklist and other study tools, including monitoring tools;
Undertake fieldwork and transcribe interviews;
Collate and analyse gathered information and prepare report outline;
Prepare the first draft report. Note that findings must conform to the qualitative research standards of ‘trustworthiness’, possessing the attributes of:
Credibility; Dependability; Conformability and Transferability
Finalize study report in light of feedback received through the peer review process and review by the Working Group;
Present report and a summary PowerPoint presentation outlining key findings, analysis of central themes and recommendations about next steps.
Make presentation to the Working Group and final one to the Steering Committee for endorsement of the findings and results of the study.
[Component 1 and 2]
Detailed project plan for implementation of gap analysis study at household and community levels;
Revised interview guidelines and monitoring tools;
Digital interview recordings, participant profiles and transcripts of interviews;
Final study report; and
Summary PowerPoint presentation.Time-Frame:
The study is to be conducted over the duration of two months in 50 workdays time by a team of two consultants: