By Ibrahim Muhammad
National Coordinator,
Independent Hajj Reporters
The drive to regulate private Hajj operators is gathering momentum across major Hajj-participating countries. From Pakistan to Indonesia and Bangladesh, governments are introducing stricter licensing and operational controls aimed at improving accountability, transparency and service delivery. Nigeria has now joined this reform movement with the introduction of the National Hajj Commission of Nigeria’s (NAHCON) new licensing and operational guidelines for private Hajj and Umrah operators.
What are the key objectives behind these new regulations?
Why have countries such as Nigeria, #Pakistan, #Bangladesh and Indonesia all moved toward tighter regulation of private Hajj operators? Are these reforms primarily intended to improve the quality of services provided to private Hajj pilgrims, many of whom are influential members of society? Will the new guidelines create a more sustainable business environment for licensed operators?
More importantly, will they address the long-standing concerns of the Association of Hajj and Umrah Operators of Nigeria (AHUON) by eliminating unlicensed operators whose activities have continued to undermine the Hajj and Umrah industry?
This analysis examines the operational intent behind NAHCON’s new licensing guidelines and compares them with the regulatory frameworks adopted by other leading Hajj-participating countries.
Reading Between the Lines
Beyond the provisions contained in the guidelines lies a broader policy objective.
Information gathered from industry stakeholders suggests that the Saudi Ministry of Hajj and Umrah recognizes that clients of private Hajj companies are often influential individuals whose experiences significantly shape public perception of the Kingdom’s management of Hajj and its commitment to serving the Guests of Allah.
Consequently, reforming and regulating private Hajj and Umrah operators has become a strategic priority for the Ministry.
Another factor driving these reforms is the practice by some operators of minimizing services in order to maximize profits during Hajj and Umrah operations. This trend has negatively affected pilgrims’ experiences and is believed to have contributed to the Saudi authorities’ decision to reduce the number of approved private Hajj operators over the years.
Pakistan’s 12-Point Private Hajj Policy at a Glance
On June 26, Pakistan’s Ministry of Religious Affairs and Interfaith Harmony released a comprehensive 12-point policy framework to regulate, manage and facilitate private Hajj operations between 2027 and 2030.
Several provisions of the policy offer valuable insights into the direction of Hajj reforms.
Licensing Framework
Under the policy, all private Hajj operators must be incorporated under the Companies Act, 2017, and accredited by the Securities and Exchange Commission of Pakistan (SECP).
Operators are required to offer at least three standardized Hajj packages approved by the Ministry and incorporated into the mandatory Service Provider Agreement (SPA).
Licences will remain valid for three years but will be subject to annual performance reviews based on financial capacity, operational efficiency and regulatory compliance.
Any operator that fails to register at least 2,000 pilgrims in a Hajj season will be classified as non-operational, resulting in the automatic reallocation of its pilgrims and the imposition of financial penalties.
Revalidation of Existing Operators
All existing SECP-registered operators must undergo a compulsory reassessment before participating in future Hajj operations.
The evaluation will consider:
* Audited financial statements.
* Paid-up capital.
* Previous service delivery record.
* Complaint history.
* Corporate governance.
* Digital management capacity.
Operators that meet the required standards will receive a Tier-Based Recognition Letter (TRL), confirming their operational capacity for future Hajj seasons.
Quota Allocation
The policy makes it clear that accreditation alone does not confer Hajj quota entitlement.
Each year, the Government of Pakistan will announce the total quota allocated to the private Hajj scheme by Saudi Arabia.
Licensed operators will then register pilgrims strictly on a first-come, first-served basis through the Private Hajj Management Portal (PHMP), subject to their approved operational capacity and continued compliance with financial and regulatory requirements.
The objective is to promote transparency, merit, competition and efficient quota utilization while preventing monopolistic practices.
Mandatory Digital Management System
All private Hajj operations must be conducted through the PHMP.
The portal serves as the central digital platform for operator registration, pilgrim booking, quota management and regulatory oversight.
Each pilgrim is assigned a Unique Hajj Identification Number linked to identity and payment records.
The system is integrated with the SECP, NADRA and the State Bank of Pakistan, making manual processing of bookings and payments impossible and creating a transparent audit trail.
Financial Management Through Government Account
All financial transactions relating to private Hajj operations must pass through a government account maintained with the State Bank of Pakistan.
Pilgrims’ payments are digitally linked to both the operator and the individual pilgrim.
Funds are paid directly to Saudi service providers under verified agreements.
Private operators are prohibited from independently collecting, holding or transferring pilgrims’ funds.
Refunds are processed through a regulated digital system, reducing the risk of fund diversion and financial mismanagement.
Operational Minimums
To maintain operational credibility, every private Hajj operator must register a minimum of 2,000 pilgrims.
Operators that fail to meet this threshold are declared non-operational for that Hajj season.
Their pilgrims are automatically reassigned to qualified operators through the PHMP, while the defaulting operator forfeits half of its security deposit.
Service Delivery and Welfare Standards
Private operators are required to provide quality accommodation, transportation and catering services that meet Saudi standards.
They must also provide qualified welfare personnel, medical support and comprehensive pilgrim orientation.
Special attention must be given to elderly pilgrims, women and persons with disabilities.
Operators are equally expected to maintain effective coordination with Saudi Tawafa companies to ensure operational readiness and compliance with evolving Saudi regulations.
Mandatory Service Provider Agreement
Every licensed operator must sign a Service Provider Agreement (SPA) with the Ministry before commencing Hajj operations.
The agreement sets out mandatory obligations relating to service delivery, medical support, insurance, refund procedures, consumer protection and sanctions for non-performance.
This framework makes private Hajj operations contractual, transparent, enforceable and fully auditable both within Pakistan and in Saudi Arabia.
Enter Indonesia new private Hajj Policy
Also, Indonesia’s Ministry of Religious Affairs (Kemenag) mandates that private operators (Special Hajj Organizers or PIHK) submit their proposed package costs for official government approval before selling them to the public.
According to Indonesia Ministry of Hajj, the regulatory measure ensures compliance, protects pilgrims from price gouging, and verifies that the services promised in Saudi Arabia meet strict standards.
The Indonesian government exercises strict oversight over both regular and private (Hajj Plus) pilgrimages and set official price Caps
The government establishes reference costs to ensure affordability, notably capping regular Hajj (BPIH) at Rp 87.4 million. Private operators must align their premium packages with government expectations and receive prior validation.
Lessons for Nigeria
Pakistan’s and Indonesia reforms reflect a deliberate shift toward stronger regulation, digital accountability, financial transparency and improved consumer protection.
As NAHCON begins implementing its own licensing framework, stakeholders will be watching closely to see whether the new guidelines will strengthen service delivery, eliminate unlicensed operators, promote fair competition and build a more sustainable private Hajj and Umrah industry in Nigeria.
The second part is coming your way soon
