The State of Food Security in Pakistan
World Food Day 2025, celebrated this month with the theme “Hand in Hand for Better Foods and a Better Future,” highlights the pressing challenges facing global agri-food systems. These systems are under immense pressure from conflicts, climate extremes, economic instability, and social inequality. An estimated 673 million people worldwide live with hunger, while food waste, dietary imbalances, and fragile supply chains reveal significant flaws in how food is produced, distributed, and consumed. In this context, it is crucial to examine Pakistan’s National Food Security Policy (2018), which aims to ensure resilience and self-sufficiency but continues to face implementation and equity challenges.
Pakistan, an agricultural country, must ensure food security for over 230 million people. Access to micronutrient-rich food is essential for a balanced diet. Food security is defined by four key dimensions: availability, accessibility, stability, and utilisation. The agriculture sector, along with its sub-sectors such as livestock and fisheries, plays a critical role in meeting national food security needs.
Key Challenges in Food Security
According to the Food Security Assessment Survey (FSA) 2016, 18% of Pakistan’s population is undernourished. The National Institute of Population Studies (NIPS) reported severe malnutrition issues, including stunting (45%), wasting (15%), and underweight prevalence (30%). Malnutrition rates are particularly high in rural areas (46%) and regions like erstwhile FATA (58%), Gilgit-Baltistan (51%), and Balochistan (52%). Additionally, nearly half of the population consumes less than the recommended dietary intake of Vitamin A and Iron.
Food insecurity in Pakistan is primarily driven by economic constraints and limited access to food, especially among the poorest and most vulnerable populations. Rising food prices since 2007 have worsened this issue, forcing low-income families to allocate a significant portion of their income to food, increasing their risk of undernutrition and vulnerability.
The National Food Security Policy 2018
To address these challenges, the Federal Government developed the National Food Security Policy (NFSP) 2018. This policy is the first comprehensive initiative by the Government of Pakistan to tackle food security. Earlier efforts included the National Zero Hunger Program and the Food Security Assessment Survey, reflecting Pakistan’s commitment to achieving the Sustainable Development Goals (SDGs), particularly SDG 1 (No Poverty) and SDG 2 (Zero Hunger).
Following the 18th Constitutional Amendment, the Ministry of Food and Agriculture (MINFA) was devolved to the provinces in June 2011. Recognising the importance of national food security, the Ministry of National Food Security and Research (MNFSR) was established in October 2011. The MNFSR developed the NFSP 2018 to consolidate past initiatives and outline future strategies aligned with the SDGs. However, no formal regulatory framework currently supports the policy’s implementation at either the federal or provincial level.
Analysis Using John Kingdon’s Three-Stream Model
The NFSP 2018 has been analyzed using two models: John Kingdon’s Three-Stream Model and William Richard Scott’s Trichotomy Model.
Kingdon’s Problem Stream
The NFSP effectively identifies key challenges such as malnutrition, low agricultural productivity, and climate change impacts. It addresses the four dimensions of food security—availability, accessibility, utilisation, and stability. The policy also highlights environmental sustainability concerns and aligns with the United Nations SDGs, while acknowledging financial and external challenges, including IMF-imposed subsidy restrictions.
However, the policy did not sufficiently address governance failures, such as inefficiencies in food distribution systems or corruption in agricultural subsidies. It also lacked emphasis on emerging issues like the impact of urbanisation on food systems or the role of food imports in meeting domestic demand.
Kingdon’s Policy Stream
The policy stream presents a comprehensive set of solutions, addressing both supply-side and demand-side issues. It includes measures to access safe, healthy, and diversified diets through good agricultural practices, reduced chemical use, and promotion of bio-fertilisers and bio-pesticides. The policy also promotes public health services and wastewater treatment in collaboration with government organisations to ensure safe, hygienic, and organic food production. It encourages institutional capacity development for monitoring GMO crop safety, imported food standards, and organic farming certification.
Despite these efforts, the proposed solutions lack specificity in implementation mechanisms. For example, it is unclear how small-scale farmers would access modern technology or how climate-resilient practices would be scaled up. The policy stream focuses heavily on technical solutions, with limited attention to structural issues like land reforms or resource redistribution.
Kingdon’s Politics Stream
The policy aligns with Pakistan’s commitment to the SDGs, particularly SDG 1 and SDG 2. The establishment of a National Food Security Council reflects high-level political commitment. The policy also emphasizes collaboration among various departments, provincial governments, international organisations, and stakeholders.
However, the policy appears to be driven more by international commitments than domestic political will. Seven years after its issuance, full implementation remains a concern, indicating a lack of political ownership domestically.
Conclusion
As per John Kingdon’s three-stream model, the NFSP 2018 strongly addresses the problem and policy streams but lacks political ownership in its implementation. Addressing these gaps is essential for ensuring a sustainable food future for Pakistan.
