UNITED STATES COMMISSION on

INTERNATIONAL RELIGIOUS FREEDOM

POLICY UPDATE:
PAKISTAN’S BLASPHEMY LAW
Tony Perkins By Harrison Akins, Policy Analyst
Chair
Gayle Manchin Overview
Vice Chair
Pakistan’s blasphemy law, inherited from British colonial rule and expanded during the
Nadine Maenza 1980s, has long been a point of criticism against successive Pakistani governments. The
Vice Chair October 2018 acquittal of Asia Bibi, a Christian Pakistani woman imprisoned for nearly a
decade on blasphemy charges, and her subsequent immigration to Canada in May 2019
Commissioners renewed a spotlight on this pressing issue.
Kristina Arriaga Although the U.S. Commission on International Religious Freedom (USCIRF)
Gary Bauer welcomed the decision by the Pakistani Supreme Court to overturn Asia Bibi’s death
sentence and was relieved she was able to safely depart Pakistan for Canada, the
Anurima Bhargava
Commission also notes that Pakistan’s blasphemy law remains a key challenge to
Tenzin Dorjee ensuring religious freedom for the country’s religious minorities. This policy update
Andy Khawaja provides an overview of the blasphemy law and how its provisions are used to target
Johnnie Moore individuals from religious minority communities; highlights selected examples of
ongoing blasphemy cases; and concludes with policy recommendations.

Erin D. Singshinsuk Background

Executive Director Declared an Islamic Republic in 1956, Pakistan has institutionalized the relationship
between the state and the Islamic faith and accordingly sought to protect the beliefs
and practices of its majority religion against any actions “intended to outrage religious
feelings.” Under sections 295 and 298 of Pakistan’s Penal Code, individuals are prohibited
USCIRF’s Mission
from verbal and nonverbal actions deemed insulting to religious belief and practice.
These provisions extend to protect physical documents such as copies of the Qur’an
and other religious texts, places of worship, the reputation of the Prophet Muhammad,
To advance international and other religious symbols. The burden of proof required in these cases is minimal.
Unsubstantiated, wildly implausible, or outright false accusations stemming from
freedom of religion or
personal or domestic disputes are fairly common, especially against religious minorities.
belief, by independently This fact was recognized by the Supreme Court in its decision to acquit Asia Bibi. As
assessing and unflinchingly noted in USCIRF’s December 2018 report, Limitations on Minorities’ Religious Freedom
in South Asia, blasphemy laws have also been used in Pakistan to limit and criminalize
confronting threats to this
religious conversions and proselytization.
fundamental right.

www.USCIRF.gov 732 N. Capitol Street, NW, Suite #A714

@USCIRF Washington, DC 20401
1 USCIRF Policy Brief: Pakistan's202-523-3240
Media@USCIRF.gov Blasphemy Law: October 2019
(p) 202-523-5020 (f) October 2019
 Islamabad

Pakistan

Pakistanis, including children and the mentally ill, have The mere accusation of blasphemy is often all that is
been formally charged with blasphemy for a myriad of needed to spark disruptive public reactions, including
alleged reasons, including: rioting and mob violence, with the UN Committee against
ƒƒinflicting physical damage on the Qur’an or other Torture reporting that Pakistani authorities have made
Islamic religious text, even if unintentional; “inadequate efforts” to protect vulnerable individuals.
For example, in April 2017, an angry mob killed a
ƒƒsending and receiving text messages, sometimes
university student at Abdul Wali Khan University in
unsolicited, which are later deemed insulting to the
Mardan, Pakistan following accusations that he posted
Prophet Muhammad or the Islamic faith;
blasphemous content online. Individuals remain in danger
ƒƒtranslating and uploading content to personal blogs even in police custody. Those incarcerated as alleged
and non-Muslim websites or writing Facebook posts blasphemers often report torture and coercion during their
deemed to be insulting to the Islamic faith; and interrogation, death threats, or attacks by guards and other
ƒƒmaking comments in personal conversations that inmates while they are incarcerated.
witnesses attest to be blasphemous in nature. The accused’s family, friends, and legal counsel often fall
USCIRF is aware of nearly 80 individuals in Pakistan victim to intimidation from extreme religious groups
who remain imprisoned on blasphemy charges. Many as well. In the past, such groups have threatened and
of these individuals face a death sentence, though none even murdered judges, lawyers, and politicians for their
have yet been legally executed by the government for involvement in blasphemy cases or for expressing their
blasphemy. Pakistan is one of only three countries in opposition to blasphemy laws. In January 2011, Punjabi
the world—the others being Iran and Mauritania—that governor Salman Taseer was killed by his bodyguard
enforce the death penalty against individuals for insulting following his public opposition to the blasphemy law and
the Prophet Muhammad and the Islamic faith. (For public defense of Asia Bibi. A number of extremist groups
further information about blasphemy laws around the hailed Taseer’s murderer, who was executed in February
world, see USCIRF’s Legislation Factsheet: Blasphemy and 2016, as a hero with thousands protesting to express
the USCIRF-commissioned report, Respecting Rights? support for him.
Measuring the World’s Blasphemy Laws.)

2 USCIRF Policy Brief: Pakistan's Blasphemy Law: October 2019

Select Blasphemy Cases Sawin Masih: In March 2013, authorities arrested Sawin
Sunny Mushtaq and Noman Asghar: On June 29, 2019, Masih, a Christian street sweeper in Lahore, for allegedly
authorities arrested Sunny Mushtaq and Noman Asghar, insulting Islam in a private conversation with a Muslim
both Christian teenagers from Punjab, for allegedly friend. A local mosque broadcast the allegation over its
receiving blasphemous images depicting the Prophet loudspeakers in the days leading up to his arrest. A mob
Muhammad via the social media platform WhatsApp. of more than 3,000 attacked Masih’s home, then looted
Local authorities have not taken any action against the and vandalized numerous Christian homes, shops, and
sender, Bilal Ahmad, who is Muslim. churches in the immediate vicinity. Hundreds of Christian
families were reportedly displaced. Masih was sentenced to
Ramesh Kumar: On May 27, 2019, authorities in Sindh
death in March 2014. He remains in prison following his
Province arrested Ramesh Kumar, a Hindu veterinarian,
most recent appeal hearing on September 17, 2019, with
and charged him with blasphemy. A local cleric claimed
the judge referring his case to an Anti-Terrorism Court for
that Kumar sold medication packaged in paper bearing
further review.
Islamic religious text. Riots broke out after news of his
arrest spread throughout the neighborhood, and a local Abdul Shakoor: In addition to Asia Bibi’s high-profile
mob reportedly damaged at least three Hindu-owned acquittal, USCIRF similarly welcomed the March 2019
shops in the area. He remains in government custody release of Abdul Shakoor, an Ahmadiyya Muslim who
awaiting trial, in which he faces life in prison if convicted. had been unjustly imprisoned since December 2015.
Until his release, Shakoor was serving a prison sentence
Taimoor Raza: In June 2017, an anti-terrorism court
after being charged under section 298(c) of Pakistan’s
in Bahawalpur, Punjab sentenced Taimoor Raza, a Shi’a
Penal Code, which prevents Ahmadis from preaching and
Muslim, to death for blasphemy after he allegedly insulted
calling themselves Muslims; he was also charged under the
the Prophet Muhammad on Facebook; he was the first
Anti-Terrorism Act for allegedly selling religiously divisive
person to receive the death sentence for comments made
materials. USCIRF advocated for Mr. Shakoor as part of its
on social media. The alleged comments were made
Religious Prisoners of Conscience Project.
during a debate about Islam on the social media site.
The debate involved an individual who was revealed as Conclusions and Recommendations
a counterterrorism official. Raza was initially charged
While the Supreme Court and other Pakistani officials
under section 298(a) of Pakistan’s Penal Code for using
have recognized the growing problem of false blasphemy
derogatory remarks in reference to holy figures, which
accusations being used to target religious minorities,
carries a prison term of up to two years. However, this
political leaders—under pressure from certain religious
charge was later amended to insulting the Prophet to
groups—have made no serious steps to repeal the
ensure the maximum penalty. He remains in prison.
blasphemy law. Prime Minister Imran Khan has even
Ayaz Nizami and Rana Noman: On March 24, 2017, publicly defended it. In a July 2018 campaign speech
authorities in Karachi arrested Ayaz Nizami, vice president to Muslim leaders in Islamabad, he stated, “We are
of the Atheist & Agnostic Alliance Pakistan, along with standing with Article 295c and will defend it,” referencing
blogger Rana Noman, for allegedly translating literature the constitutional clause mandating the death penalty
critical of Islam into Urdu and posting it online. The for blasphemy.
case is ongoing, but the bloggers face the death penalty if
In its 2019 Annual Report, USCIRF provided a number of
convicted. The hashtag #HangAyazNizami was trending
recommendations for improving the situation of Pakistan’s
on social media within Pakistan following their arrest.
religious minorities. The recommendations related to the
Qamar Ahmed Tahir: In November 2015, police in blasphemy law included urging the Pakistani government
Jhelum arrested Qamar Ahmed Tahir, the head of to take the following actions:
security for a local factory and an Ahmadiyya Muslim,
ƒƒRelease blasphemy prisoners and other individuals
on blasphemy charges after he was accused of burning a
imprisoned for their religion or belief; and
bag of scrap paper that contained pages from the Qur’an.
Following the accusation, a mob formed outside the
factory in response to an announcement at a local mosque
and burned down the factory and workers’ housing. Tahir
was the only person arrested from the incident. In July
2017, he was sentenced to life imprisonment.

USCIRF Policy Brief: Pakistan's Blasphemy Law: October 2019 3

 UNITED STATES COMMISSION on INTERNATIONAL RELIGIOUS FREEDOM

ƒƒRepeal its blasphemy and anti-Ahmadiyya laws; until This policy update was completed with the assistance of
repeal can be accomplished, enact reforms to make former USCIRF researcher Alex Iverson.
blasphemy a bailable offense, require evidence by
accusers, and allow authorities to dismiss unfounded
accusations, and also urge the enforcement of existing
Penal Code articles that criminalize perjury and
false accusations.
While USCIRF welcomes efforts in Pakistan to highlight
the problems associated with false blasphemy accusations, it
remains concerned with the lack of concrete action toward
the repeal of this problematic law. USCIRF praised the U.S.
Department of State’s designation of Pakistan as a “country
of particular concern” in 2018 but recommends that the U.S.
government negotiate a binding agreement, as authorized
under the International Religious Freedom Act, with
the Pakistani government to improve religious freedom
conditions in the country. This approach should focus
on nullifying Pakistan’s blasphemy law and immediately
acquitting all individuals imprisoned on blasphemy charges.

Professional Staff

Harrison Akins Roy Haskins Dominic Nardi

Policy Analyst Director of Finance and Office Management Policy Analyst
Ferdaouis Bagga Thomas Kraemer Jamie Staley
Policy Analyst Director of Operations and Senior Congressional Relations Specialist
Keely Bakken Human Resources Zachary Udin
Policy Analyst Kirsten Lavery Research Project Specialist
Dwight Bashir International Legal Specialist Scott Weiner
Director of Outreach and Policy Jason Morton Policy Analyst
Elizabeth K. Cassidy Policy Analyst Kurt Werthmuller
Director of Research and Policy Tina L. Mufford Supervisory Policy Analyst
Patrick Greenwalt Deputy Director of Research and Policy
Researcher

The U.S. Commission on International Religious Freedom (USCIRF) is an independent, bipartisan federal government entity established by the
U.S. Congress to monitor, analyze, and report on threats to religious freedom abroad. USCIRF makes foreign policy recommendations to the President,
the Secretary of State, and Congress intended to deter religious persecution and promote freedom of religion and belief.

www.USCIRF.gov 732 N. Capitol Street, NW, Suite #A714

@USCIRF Washington, DC 20401
Media@USCIRF.gov 202-523-3240 (p) 202-523-5020 (f)