INTERNATIONAL SECRETARIAT, PETER BENENSON HOUSE, 1 EASTON STREET, LONDON WC1X 0DW, UNITED KINGDOM www.amnesty.org/actforwomen [EMBARGOED FOR : DATE 30/05/2005] Afghanistan Women still under attack - a systematic failure to protect Date 30/05/2005 SUMMARY AI Index:ASA 11/007/2005 “At the moment there are more pressing issues... a civil servant has too much on his mind to deal with women’s rights. It’s a matter of priorities.”¹ Violence against women and girls in Afghanistan    is    pervasive;    few    women    are exempt  from  the  reality  or  threat  of  violence. Afghan  women  and  girls  live  with  the  risk  of: abduction and rape by armed individuals, forced marriage  or  being  traded  to  settle  disputes  and debts.  They  face  daily  discrimination  from  all segments   of   society   as   well   as   from   state officials.  Strict  societal  codes,  invoked  in  the name   of   tradition   and   religion,   are   used   as justification to deny women  the  ability to enjoy their   fundamental   rights   and   have   led   to   the imprisonment and even to killings. In April 2005, Amina, aged 29, of Argu district, Badakshan  province,  was  “sentenced”  to  death by  stoning  on  the  reported  orders  of  the  local ulema (religious council) for committing adultery.  Amina  was  reported  to  have  initially been  stoned  by  villagers  and  was  later  taken away by members of her family, who are alleged to   have   killed   her.   Following   her   death,   the ¹Amnesty International interview with the former Governor of Kandahar, 13 September, 2004. district authorities instigated an investigation. To date,  15  persons  have  been  arrested  but  formal charges have not been brought against any of the detained. Whilst Amnesty International welcomes   the   investigation,   the   organization remains concerned at the poor record of the state in ensuring that serious efforts are made to hold to  account  perpetrators  of  grave  human  rights abuses.   Such   crimes   highlight   how   families, community  leaders  and  the  state  authorities  can collude    to    perpetrate    abuses    of    the    most fundamental  human  rights  of  women,  including the right to life and freedom from torture. Husbands,   brothers   and   fathers   are   the   main perpetrators   of   violence   in   the   home   but   the social control and the power that they exercise is reinforced by the authorities, whether of the state or  traditional  ‘justice’  systems  such  as   shuras and  jirgas.²  Members  of  factional  and  militia forces also carry out violence. In some instances, female  members  of  the  family  have  a  role  in upholding patriarchal structures and may commit  violence.  However,  men  perpetrate  the overwhelming    majority    of    acts    of    violence against women. ²Jirga (Pashtun) or shura (Dari) are gatherings of almost exclusively male elders, community members and leaders.

2 For  three  decades,  Afghanistan  has  suffered  a breakdown in law and order. Conflict may have formally ceased with the collapse of the Taleban regime,   but   factional   violence,   growing   anti- government     attacks     and     targeted     violence against  national  and  international  aid  workers have contributed to an ongoing state of conflict. Instability is reinforcing inequality and discrimination   while   the   rule   of   law   remains elusive.  Women  have  had  little improvement  in their    ability    to    enjoy    their    human    rights. Discriminatory   practices   institutionalised   prior to and during the war have not disappeared and in some ways have grown stronger. In comparison, traditional and customary practices  and  codes  have  shown  a  remarkable resilience in maintaining their role as conduits of social  order,  raising  disturbing  questions  about perceptions    and    understanding    of    violence against women by communities and the state. Violence  against  women  is  widely  tolerated  by the  community  and  widely  practiced.  Women’s right   to   choose   a    marriage    partner   is   still severely curtailed and subject to the authority of male  members  of  the  family.  They  continue  to be   abducted   and   forced   into   marriage.   Early marriage and childbirth is commonplace. Prohibited   interaction   between   unrelated   men and    women    impedes    women’s    access    to, amongst others, higher education, the workplace and both formal and informal justice mechanisms   as   these   bodies   continue   to   be almost exclusively male and largely segregated. Even at the highest levels of government and the judiciary,  violence  against  women  is  tolerated. Abusers   are   rarely   prosecuted;   if   cases   are prosecuted,  the  accused  are  often  exonerated  or punished  lightly.  Impunity  appears  to  exist  for such  violence.  The  authorities  seldom  carry  out investigations into complaints of violent attacks, rape,  murders  or  suicides  of  women.  Women who   report   rape   face   being   locked   up   and accused  of  having  committed  crimes  of  zina.³ Laws   frequently   discriminate   against   women and   are   otherwise   inadequate   to   protect   the rights of women. Nevertheless,    the    need    to    combat    violence against women is gaining ground and support in Afghanistan.    Emerging    networks    of    women human     rights     defenders     are     advancing     a ³Zina laws are laws which criminalize sexual relations outside marriage. women’s  rights  agenda  across  urban  and  rural areas. Some women are coming forward, though in small numbers and mainly in urban areas, and beginning  to  report  violence,  particularly  in  the family,    to    their    local    Afghan    Independent Human Rights Offices. In   contrast   to   the   last   decades,   women   are increasingly  becoming  involved  in  the  political sphere.  The  2004  Constitution  provides  for  a minimum    representation    of    women    in    both houses  of  parliament;  the  first  female  candidate stood  for  the  presidential  elections  in  October 2004;   in  January   2005,   the   first   woman   was appointed  governor  of  a  province.  Victims  of family violence from urban areas have started to assert  their  rights,  notably  to  divorce,  and  have contributed     to     bringing     the     issue     of    the protection of women to national attention. Amnesty International welcomes these developments,   but    is    concerned   that   a   full realization  of  women's  rights  is  undermined  by the   Afghan   government’s   inability   to   provide physical    security    for    Afghans,    particularly women. This  report  highlights  the  failure  of  the  Afghan state  to  respect,  protect  and  fulfil  the  rights  of women and girls. It is not a comprehensive study of   violations   and   abuses   perpetrated   against women   in   Afghanistan.   It   seeks   instead   to provide examples that highlight the inability and at  times  the lack  of  will  of  the  government  and its institutions –  in their current state – protect    and    fulfil    the    rights    of    women.    It documents   abuses   perpetrated   against   women and girls in Afghanistan, including: forced and underage marriage sexual violence violations   of   the   right   to   mental   and physical integrity deprivation of life and liberty denial of freedom of movement and  the  very  present  risk  of  torture  and ill-treatment.

3 State failure to respect, protect and fulfil Amnesty  International  believes  that  the  Afghan authorities   have   not   taken   sufficient   steps   to effect real change in the lives of Afghan women. The conditions for a stable environment have not as yet been met and the state continues to be in urgent  need  of  a  capable  and  effective  criminal justice   system   which   can   adequately   address issues  of  violence  against  women.  It  requires  a coordinated, sustained and long-term effort from the   Afghan   government   and   the   international community    at    a    time    when    instability    is widespread and violence is increasing. As  an  absolute  minimum,  the  state  must  ensure that  it  does  not  violate  human  rights,  acts  with due     diligence    to     prosecute     offenders     and implements  preventive  and  remedial  measures that   protect   women   and   girls.   The   Afghan authorities   have   failed   to   do   this.   Moreover, through  discriminatory  laws  and  practices,  such as   detaining   women   for   ‘running   away’   and through provisions in the current Criminal Code allowing for the imposition of cruel punishments, the  state  is  also  a  direct  perpetrator  and  should be  held  accountable  for  practicing  a  form  of violence against women.   Abolishing    discriminatory    laws    and    ending practices  such  as  arbitrary  detention  and  cruel punishments are a necessary  first  step to ensure that   the   state   itself   does   not   commit   human rights    violations.    However,    on    their    own, legislative   measures   to   prevent   discrimination and violence are insufficient. Effective measures must    simultaneously    address    the    underlying factors  that  affect  and  contribute  to  violence, including cultural, social and customary practices.   Afghanistan   has   a   pluralistic   legal tradition,    under    which    formal    and    informal structures have existed side by side for centuries and   one  in   which   abuses   against   women   are widespread. The role and actions of both formal and  informal  justice  systems  that  perpetuate  or condone  violations  for  women’s  human  rights must  be  investigated  and  appropriate  responses form the state must be forthcoming. Aside from the evident need for rehabilitation of the process and the structure of laws and policies, combating  violence  against  women  necessitates an   equal   need   for   understanding   cultural   and social  factors,  which  are  at  play  when  women are being targeted for violence. The responsibility  to  address  this  lies  with  the  state of Afghanistan.   Amnesty   International   calls   on   the   state   to ensure   that   women   are   free   from   violence   – whether that violence is committed by institutions  or  agents  of  the  state,  members  of the community, informal justice systems, or by a family member; the state is required also to hold perpetrators to account. Call for sustained international commitment Ensuring  respect  for  women’s  rights  cannot  be achieved    through    the   effort    of   the    Afghan government  alone  but  must  involve  an  intense and sustained commitment from the international    community.    In    support    of    the Afghan  government,  Amnesty  International  has consistently emphasized the importance of long- term   interest   and   fulfilment   of   financial   and technical support by donor states. There remains an   urgent   need   for   a   more   coordinated   and strategic  plan  for  the  reform  and  strengthening of the criminal justice system, which is essential to  promoting  respect  for  human  rights  and  the rule of law. Achieving   political   and   economic   stability   is vital  to  creating  a  stable  and  safe  environment throughout  Afghanistan.  However,  it  cannot  be accomplished  by  ignoring  the  equal  need  for  a comprehensive  strategy  that  addresses  violence against   women   as   a   rights   and   development priority    for    the    nation.    Human    rights    are inalienable;    they    should    not    be    traded    or bargained away, nor should impunity be granted to human rights abusers. Women must have full enjoyment of their rights and freedoms  if peace and security in Afghanistan are to be realized. The  organization  also  calls  on  the  international donor  community  for  Afghanistan  to  encourage and  support  the  Afghan  government  in  ending crimes against women through sustained commitment  to  the  rebuilding  of  the  country  in ways that enable women to realize their rights.

4 Summary of key recommendations Amnesty  International  is  calling  on  the  Afghan authorities (with the support of the international community) to: Publicly and unequivocally condemn all violence    against    women    and    girls, including violence in the family; whether upheld by decisions by informal justice systems or agents of the state; Continue to strengthen the reform of the criminal justice system, including comprehensive  training  of  the  judiciary and    police    in    order    to    implement international   law   and   standards   which promote and protect the rights of women;    Not   invoke   any   custom,   tradition   or religious   consideration   to   avoid   their obligations to eliminate violence against women; Modify or abolish existing laws (such as the   Penal   Code),   regulations,   customs and practices which constitute discrimination  against  women  in  family matters or which permit such discrimination    to    exist.    In    particular ensure    that    women    are    given    legal equality with men in law and in practice in respect of: the right to freely choose a spouse, to enter into marriage only with full  and  free  consent,  and  equal  rights and responsibilities during marriage and its dissolution. Further, ensure by means of  judicial  training  and  other  measures, that   the   law   is   implemented   by   the courts  in  a  way  that  ensures  equality  in practice between men and women. Ensure     that    the     proposed     National Action  Plan  to  tackle  violence  against women  includes  legal,  social,  cultural, political,   administrative   and   budgetary measures  to  guarantee  the  protection  of women against any form of violence, in cooperation with non-governmental organisations, especially those concerned   with   the   issue   of   violence against    women.    This    plan    must    be integrated  into  the  wider  draft  National Development Strategy for Afghanistan; Implement  the  guidelines  and  measures articulated in the United Nations Resolution  1325  on  women,  peace  and security   and   implement   them   at   the domestic     level,     whereby     a     gender perspective is employed  on  all  levels in the reconstruction of Afghanistan; Publicly   pledge   to   make   the   Afghan Constitution  of  2004  –   which  promised equal  rights  for  all  – women; Promote    research,    collect    data    and compile   statistics   on   violence   against women,   including   on   violence   in   the family and ensure that the information is made  publicly  available.  This  research should cover such issues as the causes of violence against women, including social attitudes, customs and practice. It should   look   into   the   effects   of   such violence, as well as  the  effectiveness of measures     that     could     be     taken     to counteract  violence  against  women  and the social attitudes underlying it; Take careful note of work conducted by the  Afghan  Independent  Human  Rights Commission and women’s rights NGOs on  violence  in  the  family  and  all  other forms  of  violence  and  use  their  insights and findings in planning and implementing public education awareness    campaigns    with    men    and women    as    to    how    best    to    combat violence in its various forms.