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.