AfghanistanPublicPolicyResearchOrganization

NewPenalCodeandEVAWLaw:ToIncorporateorNottoIncorporate?

July2018ResearchReport

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AcknowledgmentsAboutThisPaperThepaperwasmadepossiblethroughfundingfromtheSwedishInternationalDevelopmentCooperationAgency(Sida)forthe“NAP1325Monitor”project.AboutNAP1325MonitorNAP1325Monitorisaresearch,monitoring,andtrainingprojectdesignedtoconductafullimplementationanalysisofAfghanistan’sNAP1325atthenationallevel.TheresearchcomponentidentifieschallengesandopportunitiesforimplementingNAP1325,themonitoringcomponentdocumentsandreportschangesrelevanttotheimplementationofNAP1325,andthetrainingcomponentisaimedatfacilitatingcloserinterfacebetweenstateauthoritiesandcivilsocietyonmovingtowardmeetingNAP1325objectives.ThefocusofNAP1325MonitoristhenationalpolicymakingprocesswhilethescopefortheresearchandmonitoringcomponentsconsistsofKabul,Bamyan,Daikundi,Balkh,Kunduz,Samangan,Nangarhar,Laghman,Khost,Kandahar,Nimruz,andHeratprovinces.AboutAPPROAfghanistanPublicPolicyResearchOrganization(APPRO)isanindependentsocialresearchorganizationwithamandatetopromotesocialandpolicylearningtobenefitdevelopmentandreconstructioneffortsinAfghanistanandotherlessdevelopedcountriesthroughconductingappliedsocialresearchandmonitoring,trainingandmentoring,andevaluations.APPROisregisteredwiththeMinistryofEconomyinAfghanistanasanon-profitnon-governmentorganizationandheadquarteredinKabul,AfghanistanwithofficesinMazar-eSharif(north),Herat(west),Kandahar(south),Jalalabad(east),andBamyan(center).APPROisthefoundingmemberofAPPRO-Europe,registeredinBelgium.APPROalsoactsastheSecretariatfortheNationalAdvocacyCommitteeforPublicPolicy(NAC-PP).FormoreinformationonAPPRO,see:www.appro.org.af.FormoreinformationonAPPRO-Europe,seep:www.appro-europe.net.FormoreinformationonNAC-PP,see:www.nac-pp.netContact:mail@appro.org.afAbouttheResearchersMohammadSabirKhyber,SaeedParto,HasanRaha,EhsanSaadatHumaSaeed,IsmailZahidHumaSaeedauthoredthisreport.FrontPagePhoto:OrianeZerahAPPROtakesfullresponsibilityforallomissionsanderrors.©2018.AfghanistanPublicPolicyResearchOrganization.Somerightsreserved.Thispublicationmaybestoredinaretrievalsystemortransmittedonlyfornon-commercialpurposesandwithwrittencredittoAPPROandlinkstoAPPRO’swebsiteatwww.appro.org.af.Anyotheruseofthispublicationrequirespriorwrittenpermission,whichmaybeobtainedbywritingto:mail@appro.org.af

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TableofContents

Introduction......................................................................................................................5

ObjectivesandMethodology.............................................................................................5Limitations.................................................................................................................................6

Women’sRightsinAfghanistan:AnOverview...................................................................6

RevisionofPenalCode......................................................................................................9MainActorsandProcesses.......................................................................................................10InstitutionalChallenges............................................................................................................11IncorporationVs.Non-incorporation........................................................................................13Incorporation...........................................................................................................................14Non-incorporation....................................................................................................................15IncorporationandKeepingEVAWLaw......................................................................................16EVAWLaw/PenalCodeDebate:ImplicationsforNAP1325.....................................................16

TheNewPenalCode........................................................................................................17

CurrentStatusofEVAWLaw...........................................................................................17

Conclusion.......................................................................................................................18

Recommendations..........................................................................................................20GovernmentofAfghanistan......................................................................................................20Non-governmentalOrganizationsandDonors..........................................................................20

Appendix1:CodingSystemforKeyInformants...............................................................21

Appendix2:GuidingQuestionsforInterviews.................................................................22

Appendix3:SummaryofAfghanistan’sNAP1325...........................................................23

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Introduction

Afghanistan’sPenalCodewasrevisedandofficiallyGazettedinanextraordinaryissue(1260)onMay15,2017bythePresidentialDecreeNo.256,pursuanttoArticle79oftheConstitution.Ninemonthsafteritspromulgation,duringwhichjudgesandattorneyshadanopportunitytobecomeacquaintedwiththenewprovisions,thePenalCodecameintoforceonFebruary14,2018.Apartfromincorporatingnewlawsandprovisionssuchascrimesagainsthumanityandwarcrimes,therevisedPenalCodehasalsoattemptedtoincorporateallcriminallawsanddecreesofAfghanistanintoonePenalCode(inalmost800pagesinDariandPashtolanguages).OneofthemostcontroversialaspectsintheprocessofrevisionandreformwastheincorporationoftheEliminationofViolenceAgainstWomen(EVAW)LawintothenewPenalCode,withstrongopponentsandproponents.AtpresenttheEVAWlawwillcontinuetobeimplementedonanadhocbasisasaseparateandspeciallaw,onlywithafewofitsprovisions,includingprovisionsonrape,whichisalsoincludedinthenewPenalCode.

Thispaperexaminesthedecision-makingprocessoftheincorporationoftheEVAWLawprovisions,intotherevisedPenalCode,highlightingthemeritsanddrawbacksoftheEVAWLawimplementationonanadhocbasis,giventherealitiesofAfghanistan.Inparticular,consideringthatmanycontroversiessurroundedtheprocessandthegenerallackofclaritythatprevailsaroundtheissue,thispaperaimstoinvestigatetherationaleforthenon-incorporationoftheEVAWLawintothePenalCode.ThepaperalsotoexaminestheimpactofthisdecisionontheimplementationofAfghanistan’sNationalActionPlanfortheimplementationoftheUnitedNationsSecurityCouncilResolution1325(NAP1325),whichcameintoeffectinJune2015.TheresearchalsoexaminedtheinstitutionalpracticesofAfghanistaninlawmakingandthemannerinwhichvariousactorssuchaslegislatures,civilsociety,andpolicymakersinteract.Thisaspectoftheprocessisparticularlysignificantgivenitsimpactonandimplicationsforgovernance.Tothisend,thispaperattemptstoidentifythemainactors,institutionsandotherfactorsthathavecollectivelybeeninmotionintheprocessofrevisingthePenalCode.

ObjectivesandMethodology

Themainpurposeofthisresearchistocontributetoamorein-depthunderstandingoftheinstitutionalprocessoflawmakinginAfghanistanwithafocusontheprocesstorevisethePenalCode.Thisresearchsoughtto:

• Synthesizeexistinginformationonthelegislativeprocessesandlawswithdirectimpactsonwomen

• Gainin-depthinsightsonthestakeholdersandtheirinteractionsintheprocesstorevisethePenalCode

• Establishthecurrentstatusvis-à-vistheEVAWLawandnewPenalCodeandimplicationsfortheimplementationofNAP1325,inparticularthroughthelensesoftheProtectionandPreventionpillarsofNAP1325.

• Generaterecommendations,giventheregulatoryandlegislativeenvironment,onprotectionandpromotionofwomen’srightsinAfghanistan.

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Thedeskresearchentailedanextensivereviewoftherelevantliteraturesuchaspolicydocuments,legalprovisions,evaluativereports,otherofficialdocumentssuchasdecrees,andpositionandresearchpapersbynon-governmentorganizations.Interviewswithkeyinformantswereconductedwithlegalexperts,civilsocietywomen’srightsactivists,andtheinternationaldonorcommunitywithpresenceandmandatesinAfghanistan.Thesemi-structuredinterviewswerecarriedoutusingguidingquestions,toallowforadditionalprobingasandwhennecessaryandappropriate.Seventeenkeyinformantswereinterviewedintwophases.EleveninterviewswerecarriedoutbetweenDecember15,2017andJanuary7,2018.TheadditionalseveninterviewswerecarriedoutbetweenMarch27,2018andApril3,2018.SeeAppendix1forthecodingsystemusedforthekeyinformants.SeeAppendix2fortheguidingquestionsusedintheinterviewswithkeyinformants.

Limitations

Giventhesensitivityofthesubjectitwasextraordinarilydifficulttosecureinterviewswiththekeyinformantswithmanypotentialkeyinformantsnotwillingtoengageorcancelingappointmentsafteragreeingtomeet.

Women’sRightsinAfghanistan:AnOverview

Women’spresenceinsocietyandtheirroleinsocial,political,andeconomicspheresremainlowinAfghanistan.Absenceinpoliticalandeconomicactivitycontributesdirectlytothelowsocialstatusassumedforandimposedonwomen.LackofengagementinsocietalactivitieshasservedasacrucialfactorinmaintainingtheunequalandinequitablegenderstatusquoinAfghanistan,unchangedforgenerationsandconsideredasoneofthebottommostintheworld.1Themulti-layeredoppressioncontinuestoprevailinsocial,political,culturalandeconomicspheresoflifeformanywomen,particularlyintheruralareas.Afterdecadesofviolentconflictandthemisogynisticregimesinpowerinthe1990s,theyear2001begintomarkadifferenteraforwomen’srights.Oneofthecornerstonesoftheinternationalcommunity’sinterventioninAfghanistanafterthefalloftheTalibaninlate2001wastheso-calledliberationofAfghanwomen.Themilitaryoccupationwascoupledwithbillionsofdollarsinhumanitariananddevelopmentaid,ofwhichasubstantialportionwasallocatedtogenderequalityandwomen’sempowerment.Thedisbursementofaidbytheinternationaldonorcommunitywasexplicitlyconditionedonallocatingasubstantialpartofthepromisedaidtoprojectsrelatedtogendermainstreamingandwomen’sempowermentor,atleast,forallprojectsandprogramstocontaina“gendercomponent”.Asaresult,notwithstandingthemanychallengesthatremain,thesituationofAfghanwomenhaschangeddramaticallycomparedtothe1990s.Thisisevidentinanumberoflaws,decreesanddocumentsandanactivecommunityofnon-governmenthumanandwomen’srightsorganizationsandactivists.Article22oftheAfghanconstitution(2004)declares:“AnykindofdiscriminationanddistinctionbetweencitizensofAfghanistanshallbeforbidden.ThecitizensofAfghanistan,manandwoman,1IslamicRepublicofAfghanistan,‘NationalActionPlanfortheWomenofAfghanistan(NAPWA)2007-2017’(IslamicRepublicofAfghanistan,2007),availablefrom:<http://www.aidsdatahub.org/sites/default/files/documents/National_Action_Plan_for_the_Women_of_Afghanistan_2007_to_2017.pdf>[accessed1August2018].

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haveequalrightsanddutiesbeforethelaw.”2Similarly,Articles83and84oftheConstitutionemphasizewomen’sparticipationintheupperandlowerhouses,includingplacingamandateonthePresidentwhooughttoensurethat50%oftheonethirdofappointeesoftheMishranoJirga(UpperHouse)arewomen.Beyondtheconstitution,intermsofpolicydocumentsandaction,theAfghangovernmentandtheinternationalcommunitymadevariouscommitmentstowomen’srightsandgenderequalityintheAfghanistanCompact(2006)andtheAfghanistanNationalDevelopmentStrategy(ANDS,2008-2013)insupportofhumandevelopmentgoals.ANDSprovidesananalysisofthepriorityproblemsthataffectAfghanmenandwomenandsetsoutpolicies,programsandbenchmarkstomeasureprogress.AlthoughANDS’smainfocusareawasimprovingsecurity,governance,ruleoflawandthesocio-economicsituation,oneofitsstatedaimswasmainstreaminggenderandwomen’sempowermentinvariousgovernmentalbodiesaswellasthesocietyatlarge.Asaresultofsuchdevelopments,theAfghangovernmentdraftedtheNationalActionPlanfortheWomenofAfghanistan(NAPWA,2008-2018)withthesoleaimofimprovingwomen’slivesinAfghanistanthroughamulti-sectorialplanintheareaofeducation,health,economicsecurityandpoliticalparticipation.Inasubsequentstep,theEVAWlawwasadoptedinAugust2009inaPresidentialDecreebasedonArticle79oftheAfghanConstitution.3EVAWisthefirstlawinAfghanistantospecificallyaddressviolenceagainstwomen.Formulatedin44Articles,Article2oftheEVAWLawstatesitsoverallaimasfollows:

• LegalandShariabasedprotectionofwomen• Familyprotectionandfightagainstmisogynisttraditionsandcustomsthatareun-Islamic• Provisionofsupporttowomenwhohavebeenharmed• Preventionofviolenceagainstwomen• Raisingawarenessaboutviolenceagainstwomenandwomen’slegalprotection• Judicialfollowupofcriminalcases

TheEVAWLawisconsideredaveryprogressivelawwithinthecontextofAfghanistan.4AssuchtheEVAWLawcoversawiderangeofissuesaffectingwomen,fromviolenceagainstwomen(physicalandverbal)tolegal,medicalandsocialprotection,toprovisionofreparationtotheharmedparty,andprotectiveandsupportivemeasures.Thelawcriminalizes23actsofviolenceagainstwomensuchasforcedandchildmarriage,rape,beatingandforcedself-immolation.Thelawalsospecifiespunishmentsforperpetratorsandcriminalizesthecustoms,traditionsandpracticesthatleadtoviolenceagainstwomenandwhichareagainstSharia.TheinstitutionalresponsibilityfortheEVAWLawiswithAfghanMinistryofWomen’sAffairsandjuridicalbodies(courtsandattorneys)innotonlyprovidingsupporttotheharmedwomen,butalsoprioritizingcasesofviolenceagainstwomenandtakingactivepreventivemeasures.5ToimplementtheEVAWLaweachprovincewasmandatedtoestablishaCommissiononEliminationofViolenceAgainstWomeninorderto“coordinate,planandmeasuretheimplementationofthe

2PresidentOffice|CONSTITUTION’,2010<http://www.president.gov.af/sroot_eng.aspx?id=68>[accessed22April2010].

3See:OfficialGazette(No.989)oftheMinistryofJustice.4Qaane,Ehsan(2April2017).HarassmentofWomeninAfghanistan:Ahiddenphenomenonaddressedintoomanylaws.AfghanistanAnalystNetwork.Retrievedfrom:https://www.afghanistan-analysts.org/harassment-of-women-in-afghanistan-a-hidden-phenomenon-addressed-in-too-many-laws/

5IslamicRepublicofAfghanistan,MinistryofJustice(2009).EliminationofViolenceAgainstWomen.Retrievedfrom:http://moj.gov.af/content/files/OfficialGazette/0901/OG_0989.pdf

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[EVAW]law.”Furthermore,theAttorneyGeneral’sOfficeestablishedspecializedEVAWLawunitsineightprovinces,tofacilitatebetterreportingandregistrationofcasesofviolenceagainstwomenandthespeedyresolutionofthecases.OthergovernmentalinstitutionssuchtheMinistryofInterior,havealsoinitiatedprojectsbasedontheEVAWLaw.TheissuesofgenderandhumanrightshavebeenincorporatedinthePoliceAcademycurriculum,forexample.6TheEVAWLawhasgeneratedmanydebatesandcontroversies,inparticularamongtheconservativeParliamentarians.Threeyearsafterbeingenforcedperpresidentialdecree,on18May2013theEVAWLawwentontheParliament’sagendafordebate.TheparliamentarianheadoftheParliamentaryCommissiononWomen’sAffairs,CivilSocietyandHumanRights,wasprimarilythedrivingforcebehindthisinitiative.Theinitiativeupsetwomen’srightsandcivilsocietyactivistswhofearedthatthelawwouldnotholdupinaParliamentwhereconservativemembersconstitutedamajority.7Thisfearbecamearealityonthedayoftheparliamentarydebatewhenacoregroupofconservativeparliamentarianscalledforthatprohibitionofcertainprovisionsinthelaw,suchasforcedmarriage,childmarriage,andaccesstowomen’sshelters,alldeemedas“un-Islamic”.Afterafrustrateddebate,theParliamentSpeakerputanendtothediscussionandsenttheEVAWLawtotheJointCommissionoftheParliament,responsibleforpreparingdraftlaws,forfurthercontemplation.8AUNAMAreportstates:

TheparliamentarydebatearoundtheEVAWlawnegativelyimpactedwhatwasalreadyweakimplementationofthelawincertainpartsofthecountryandhighlightedthefragilenatureoflegislativegainsmadeforwomen’srightstodateinAfghanistan.UncertaintyremainsaroundthefutureoftheEVAWlaw,…,andaroundseveralofitskeyprovisionsthatprotectwomen’srights.9

AsregardstoAfghanistan’sinternationalobligationsinrelationtoimprovingwomen’sstatus,theAfghangovernmenthasratifiedtheConventionontheEliminationofAllFormsofDiscriminationagainstWomenonMarch5,2003withoutanyreservations.10ConsideringthatmanyotherIslamiccountries,suchasAlgeria,hadintroducedanumberofreservationsabouttheinconsistenciesbetweencertainarticlesoftheirconstitutionsandtheCEDAWprovisions,thequestionremainsastohowtheAfghangovernmentratifiedtheCEDAWconventionwithoutanyreservations.InJuly2013AfghanistanappearedforthefirsttimebeforetheUnitedNationsCommitteeonCEDAWtopresentitsStatereportonwomen’sprogressinAfghanistan.TheCommittee,amongitsrecommendations,urgedtheAfghangovernmenttomaketheimplementationoftheEVAWLawapriority.11

6IslamicRepublicofAfghanistan,MinistryofWomen’sAffairs(2014).FirstReportontheImplementationoftheEliminationofViolenceagainstWomen(EVAW)LawinAfghanistan.

7Roehrs,ChristineandKouvo,Sari(16May2013).OnaKnife’sEdge:TheloomingparliamentarydebateabouttheEliminationofViolenceagainstWomenlaw.AfghanistanAnalystNetwork.Retreivedfrom:http://www.afghanistan-analysts.org/on-a-knifes-edge-the-looming-parliamentary-debate-about-the-elimination-of-violence-against-women-law/

8Roehrs,Christine(18May2013).DamageAvoided,forNow?TheveryshortdebateabouttheEVAWlaw.AfghanistanAnalystNetwork.Retrievedfrom:https://www.afghanistan-analysts.org/damage-avoided-for-now-the-very-short-debate-about-the-evaw-law/

9UNAMAandOHCHR(December2013).AWaytoGo:AnUpdateonImplementationoftheLawonEliminationofViolenceagainstWomeninAfghanistan.https://unama.unmissions.org/sites/default/files/unama_evaw_law_report_2013_revised_on_16_dec_2013.pdf

10https://treaties.un.org/Pages/ViewDetails.aspx?src=IND&mtdsg_no=IV-8&chapter=4&lang=en#EndDec11UNAMAandOHCHR(December2013).AWaytoGo:AnUpdateonImplementationoftheLawonEliminationofViolenceagainstWomeninAfghanistan.https://unama.unmissions.org/sites/default/files/unama_evaw_law_report_2013_revised_on_16_dec_2013.pdf

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AsecondmajorinternationalcommitmentoftheAfghangovernmenttowardimprovingwomen’sconditionsistheadoptionofAfghanistan’sNationalActionPlanfortheimplementationofUNSCR1325onWomen,PeaceandSecurity(2015-2022).Intheyear2000,theUnitedNationsSecurityCounciladoptedresolution1325(UNSCR1325)onWomen,PeaceandSecurityfollowingtwodecadesofadvocacybywomen’srightsandpeaceactivistswhoemphasizedthatwomenshouldactivelyparticipateindecisionmakingprocessesrelatedtopeacebuildingandconflictresolution.AsamemberstateoftheUnitedNations,AfghanistandevelopeditsownnationalactionplanforimplementingUNSCR1325(NAP1325)inJune2015to“increasewomen’sparticipationinpeaceprocessesandthesecuritysectoraswellasaddressissuesaroundprotectionandreliefandrecoveryservicesforwomen.”12NAP1325highlightsitsstrategicprioritiesandobjectivesunderfourmainpillarsofParticipation,Protection,Prevention,andReliefandRecovery–dividedinto39indicatorsand25strategicobjectives.13AstotheimplementationofNAP1325,thedocumentstatesthatitisnecessarytodevelopaseparateanddetailedimplementationplanthatwouldidentifytherolesandresponsibilitiesofeachresponsiblegovernmentandnon-governmententitiesandthespecificactivitiestobecarriedoutintwophases:2015-2018and2019-2022.WiththeMinistryofForeignAffairs(MoFA)asthecoordinatingbody,theimplementingagencieshavebeendividedintoleadimplementingagenciesandsupportingagencies.ConsideringthatNAP1325isagovernmentpolicydocument,leadagenciesaregovernmentstructuresandinstitutionswhilesupportingagenciesincludecivilsociety,media,andtheprivatesector.MoFA,incollaborationwithUNWomenAfghanistanandtheAfghanWomen’sNetwork(AWN),ischargedwiththeresponsibilitytoplayaleadingroleintheimplementationofNAP1325,awarenessraisingandfollowup.AllleadimplementingbodiesarerequiredtosubmitannualprogressreportstoMoFA,whichinturnbearstheresponsibilitytoinformtheinternationalcommunityonprogressinimplementingAfghanistan’sNAP1325.14

RevisionofPenalCode

LedbytheMinistryofJustice(MoJ),andsupportedbytheinternationalcommunity,in2012theAfghangovernmentembarkedonrevisingthe1976PenalCode.Therevisionprocesswasdeemednecessaryformeetingthreekeyobjectives:1)codifyallcrimesandpunishmentsinonedocument,2)modernizethe“Code-modern”definitionsandconcepts,and3)ensureAfghanistan’scompliancewithinternationalcommitments.15TheCriminalLawReformWorkingGroupwasformedin2012tomanagetherevisionoftheAfghanCriminalProcedureCode(2010)thatrestructuredcriminalcaseprocessesinthecountry.ChairedbyMoJ,theworkinggroupmembersconsistedofaround40individualsdrawnfromtheMinistryofJustice,SupremeCourt,AttorneyGeneral’sOffice,MinistryofWomen’sAffairs,MinistryofInterior,12IslamicRepublicofAfghanistan(2015).Afghanistan'sNationalActionPlanonUNSCR1325Women,PeaceandSecurity.Retrievedfrom:http://mfa.gov.af/Content/files/English%20NAP%206(1).pdf

13SeeAppendix3forasummaryofAfghanistan’sNAP1325.14IslamicRepublicofAfghanistan(2016).ProgressReportonWomen’sStatusandEmpowermentandNationalActionPlan(NAP1325).Retrievedfrom:http://mfa.gov.af/Content/Media/Documents/Progress_Report_on_Women_Rights1610201610265714553325325.pdf

15UNAMA(11December2017).TheRevisedPenalCodeandEVAWProvisions.UNAMA-RuleofLawpresentationonthePenalCode.

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AfghanistanBarAssociation,AfghanistanIndependentHumanRightsCommission,academicexperts,UNDP,UNWomen,UNHCR,UNODC,UNAMA,JSSP,andCanadian,US,French,ItalianandTurkishembassies.16Duringtheprocessofrevision,correctionandunificationtheworkinggrouphadanumberofconsultativemeetingswiththePresident.17Whilesomemembersoftheworkinggroupmetonregularweeklybasis,suchasthemainlineministries,others,suchascivilsocietygroups,participatedonanadhocbasis.

MainActorsandProcesses

ThreegroupsofactorswereinvolvedintherevisionprocessofthenewPenalCode:theAfghangovernment,internationaldonorcommunityandthecivilsociety.ThegovernmentalentitiesweretheMinistryofJustice(takingtheleadrole),MinistryofWomen’sAffairs,OfficeoftheFristLady,OfficeofthePresident,andOfficeoftheSecondVicePresident.TheengagementoftheinternationalcommunitywasmainlycoordinatedthroughtheJusticeBoardofDonorsundertheleadershipofUNAMA.ThetwomostinvolvedcivilsocietyorganizationsweretheAfghanWomen’sNetwork(AWN)andMedicaAfghanistan.Onadhocbasis,theworkinggroupalsoconsultedotherNGOsandcivilsocietyactors,aswellasrepresentativesofAfghanistanIndependentHumanRightsCommission(AIHRC),UNWomen,andDirectorofParliamentaryAffairsonWomenandHumanRights.18However,onoccasions,civilsocietyactorsappearedtohavebeenleftoutoftheprocess:

WehadbeennotifiedthatanagreementhadbeenreachedbetweenthegovernmentofAfghanistanandtheEuropeanUnionanditsmemberstatesthatsomeprovisionsoftheEVAWlawwouldbeincorporatedintothePenalCode.Wemustmentionthatcivilsocietywasnotincludedinthisagreement.19

Whiletheworkinggroupmainlyengagedincompiling,scrutinizingandapprobatingthePenalCode,advocacycampaignswereledbythecivilsocietyorganizationsandwomen’srightsactivists.Thenon-incorporationoftheEVAWLawintotherevisedPenalCodeisseenasaclearvictorybybothorganizations.20However,thisoutcomeisviewedasunfavorablebyanumberofwomen’srightsactivists,includingsomemembersofAWN.21Oneofthemainactors,whichhaddividedtheopponentsandproponentsofincorporation,wastheParliament.Theparliamentarianswereminimallyengagedinthisprocess,ifatall.Thereisanapparent,unofficialboycottoftheParliamentbycivilsocietyorganizationsduetotheoverwhelminginfluenceofthetraditionallyconservative,particularlyongenderrelatedissues.Thereisastrongsentimentamongrights-basedcivilsocietyorganizationsandactiviststhat,aslongasthecurrentcompositionoftheparliamentremains,theirapproachtodealwithsuchissuesastheEVAWLawwouldbetoavoidtheParliamentandtheparliamentarians.22

16KI-M-KAB-GO-1,KI-M-KAB-NG-5,KI-M-KAB-NG-4,KI-F-KAB-PI-1,KI-F-KAB-NG-2,KI-F-KAB-NG-317KI-M-KAB-GO-1,KI-F-KAB-PI-118K1-F-KAB-NG-1,KI-F-KAB-NG-219MedicaAfghanistan(July13,2016).PositionPaper:BifurcationoftheEVAWDecreeandIncorporationintothePenalCode.Kabul,Afghanistan.

20KI-F-KAB-NG-621KI-F-KAB-NG-622KI-F-KAB-NG-6,KI-F-KAB-NG-3

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InstitutionalChallenges

AsearlyasNovember2014,anumberofwomen’srightsorganizationsandactivistshadexpressedtheir“official”skepticismofandoppositiontotheincorporationoftheEVAWLawintothePenalCode.ApositiondocumentissuedbyMedicaAfghanistanonNovember16,2014requestedtheAfghangovernmentnotto“compromiseprovisionsthatprosecuteactsofviolenceagainstwomen”duringthePenalCodeconsolidation.Thesentimentfornon-incorporationappearstohavebeenwidespreadinanyevent.23Suchexpressionsofopposition,evidently,didnotregisterwiththeworkinggroupsincetheamendmentsprovidedbythewomen’sgroupstothedraftPenalCodewentlargelyunnoticedandbyDecember2016,therevisedPenalCodehadincorporatedthepenalprovisionsoftheEVAWLaw.Atthesametime,itwasdecidedthatthepreventivemeasuresoftheEVAWlawwouldstillbeimplementedasadecree.24Atthisjuncture,thewomen’srightsgroupsandactivistsopposedtotheincorporation,recognizedtheneedforamoreunifiedandsynchronizedefforttolobbythegovernmentonremovingsuchprovisionsfromthePenalCode.OnJuly13,2016MedicaAfghanistanissuedapositionpaperonthebifurcationoftheEVAWLaw,whereitstatedthatthecivilsocietywasnotapartytotheconsensusreachedontherevisedPenalCodebetweentheEUmemberstatesandtheAfghangovernment.TheydemandedthattheinternationalcommunityandtheAfghangovernmentreconsiderthisdecision.25Inanotherinstance,inaletterofappealaddressedtotheFirstLady,itwasstated:

[…W]eopposethebifurcationoftheEVAWDecreeandtheincorporationofitspunitivepartsintothePenalCode.Instead,weproposethat:a)ThepunitiveandpreventivepartsoftheEVAWDecreeshouldbeamendedandpassedasastandalonelaw;andb)ThatthePenalCodeshouldmakeexplicitreferencetotheEVAWDecreeandstatethatallcrimesagainstwomenandchildrenshallbestrictlygovernedbytheEVAWDecree.26

Inresponse,theOfficeoftheFirstLadyfacilitatedameetingbetweenPresidentGhaniandthewomen’srightsactivistsopposedtotheincorporationinFebruary2017.Adelegationofaround500womenattendedthismeeting,wherethePresidentdiscussedthematterindetailwiththedelegation.Whilepraisingtheadvocacycampaignsofthewomen’sgroups,PresidentGhaniapparentlyalsoexpressedhisconcernaboutthefactthatAWNandMedicaAfghanistandominatedtheanti-incorporationvoicesandthattheirconcernscouldnotrepresenttheentirefemalepopulationinAfghanistan.HethusaskedtheMinistryofWomen’sAffairstoseekopinionsintheprovincesonthematterthroughMoWA’sdirectorates.27TheresultofthismeetingandsubsequentconsultationsintheprovincesresultedinthedecisionbythePresidenttorequestMoJtoremovetheEVAWLaw’spunitiveprovisionsfromthePenalCode.Subsequently,onAugust13,2017MoJpublishedapressreleasestatingthatthepunitiveprovisionsoftheEVAWLawwouldberemovedfromthePenalCodeandthelawwouldremainintact.2823KI-F-KAB-NG-624MedicaAfghanistan(1February2017).LetterofAppeal:TheDraftPenalCodeoftheIslamicRepublicofAfghanistan.

25MedicaAfghanistan(13July2016).PositionPaper:BifurcationoftheEVAWDecreeandIncorporationintothePenalCode.Kabul,Afghanistan.

26MedicaAfghanistan(1February2017).LetterofAppeal:TheDraftPenalCodeoftheIslamicRepublicofAfghanistan.

27KI-F-KAB-NG-728MinistryofJusticeoftheIslamicRepublicofAfghanistan(13August2017).Urgent:PressRelease.Kabul-Afghanistan.

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WhilethedecisiontoleavetheEVAWLawintactwaswelcomedbythenon-incorporationproponents,theyremainedconcernedwithArticles7,8,27,32and916ofthenewPenalCode,theessenceofwhichisthatnocrimeoutsidethecodificationsofthePenalCodecouldbeconsideredacrimeandthussubjecttopunishment.Toaddressthis,women’srightsactivistsmobilizedtheireffortstoamendorremovethesearticlesasameanstoensurethesanctityoftheEVAWLaw.OnJanuary1,2018AWNissuedastatementtoMoWA,withcopiessenttotheOfficeofthePresident,OfficeoftheFirstLady,MoJ,OfficeoftheSecondVicePresident,OfficeoftheChiefExecutiveandAIHRC,whereitexpressedconcernaboutArticles7,8,27,32,and916anddemandingthattheEVAWLawremainsindependentofthePenalCode.29ThiswasfollowedbyajointpetitionbytheAWNandMedicaAfghansitan,senttotheOfficeofthePresident,withacopytotheFirstLady,toexpresstheirpositionandrequestafollowupmeetingwiththePresident.30Inresponse,inanofficialletterthePresident’sOfficeaskedtheOfficeoftheSecondVicePresident,Mr.Danish,andMoJtotakethenecessarymeasurestoensuretheindependenceoftheEVAWLaw.TheletterstatesthataccordingtotheguidanceofMr.PresidentandbasedonthesuggestionsproposedbytheAWNandMedicaAfghanistaninameetingwiththeSecondVicePresident,theMoJshouldconsiderrevisingthesecondclauseofArticles7,8and916.Followingthis,onMarch3,2018aPresidentialDecreewasissued,whereamongotherprovisions,itstatedthatthesecondclauseofArticles7,8and32oncrimecodificationsdonotapplytotheEVAWLaw.Ithastobenotedthatthroughouttheprocessofdeliberationanddiscoursesonincorporation,anumberofactorschangedtheirpositions.Forexample,theOfficeoftheSecondVicePresident,whichleadstheLegalCommitteeinthePresidentialPalace,initiallywasinfavorofincorporation,butundertheguidancebythePresident’sOffice,eventuallyagreedwiththedemandsofthenon-incorporationcamp.31Similarly,MoWAandAIHRCinitiallysupportedincorporationbutchangedtheirpositionslaterintheprocess.32Thechangingofpositionsappearstobetheproductoftacticalconsiderations(ratherthanpersonalconviction),pressurefromtheinternationaldonoractorsand,possibly,learningthroughouttheprocess.33AkeyfeatureoftheprocesstorevisethePenalCodewastherelativeinclusiveness,allocatingspaceandvoicetowomen’srightsorganizationsandactivistsandsupportedbytheOfficeofthePresidentandOfficeoftheFirstLady.Anothersignificantfeatureoftheprocessistheinsistencebytheinternationaldonorcommunity,particularlytheEU,fortheincorporationoftheEVAWLawintothePenalCodeandaspartofthebroaderstrategyforpeace.34ThisisevidencedinalettersentbytheEuropeanUnioninSeptember2017toMoJwithacopytotheOfficeofthePresident,expressingconcernovertheremovaloftheEVAWLawprovisionsfromthePenalCode.35Similarly,theUSEmbassyhadaskedoneprominentwoman’srightsorganizationtoworkwithothersontheincorporationoftheEVAWlaw.

29AfghanWomen’sNetwork(1January2018).TotheHonorableMinistryofWomen’sAffairsoftheIslamicRepublicofAfghanistan.SeriesNo.95.Kabul,Afghanistan.

30On14January2018,adocumentcontainingthesamecontentwassenttotheOfficeoftheSecondVicePresident,addressedtoMr.SarwarDanish.

31KI-F-KAB-NG-632KI-F-KAB-NG-633KI-F-KAB-NG-734KI-F-KAB-NG-3,KI-F-KAB-NG-635UNAMA(11December2017).TheRevisedPenalCodeandEVAWProvisions.UNAMA-RuleofLawpresentationonthePenalCode.

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Theinternationalexpertsinterviewedforthisresearchalsoexpresseddiscontentandconcernoverthedecisionfornon-incorporation.Onerespondentexpressedconcernaboutthelackofdialogueandnegotiationbetweenwomen’srightsorganizationsandconservativeparliamentariansinthisprocess.Dialogueandnegotiationwouldhavestrengthenedthepositionofthewomen,increasedthelegitimacyoftheentireprocess,andmadewomenmorethanmerelyvictims.36Ingeneral,anairofambivalenceandskepticismseemstoreignamongtheinternationalactorsasregardstothefutureoftheEVAWlaw,itsimplementationandimpactonwomen,includingtheprocessforimplementingNAP1325:

Wehavelandedinasituation,alsoasdonors,thatwedon’tknowwhattodo.Wethinkthatthewomen’ssituationcouldbemuchworseasaresultofthis.37

Outsidethedonorcommunity,otherentitieshavealsoexpressedstrongoppositiontothepositionofwomen’sgroupsandtheirlobbyingeffortsthatledtothenon-incorporationoftheEVAWLaw.Asanexample,inameetingheldattheMinistryofWomen’sAffairsonJanuary1,2018onthefutureoftheEVAWLaw,anumberofprominentwomen’srightsactivistsexpressedtheiroppositiontothisdecision.Theargumentsincludedentitlingtheapproachas“projectbased”andbasedon“emotionalgrounds”.38Women’sgroupsandactiviststhemselveswerequicktoconcedethemanyoppositionsandconteststheyfacedintheprocess,asnotedbyonerespondent:

Wewerefacingmanychallenges.Donorswereagainstus,includingtheUSembassy;asubstantialpartinthegovernmentdidnotsupportus;wewerelabeledasgroupswithWesternapproaches,butweovercameallsuchchallenges.Wewereevenaskedtocensureourselves,butwedidnotdoit.39

IncorporationVs.Non-incorporation

WhilemanyexpertsbelievethattherevisedPenalCodehasbeenamilestoneachievement,theyalsoadmitthatthedebateonincorporatingEVAWLawprovisionsintothenewPenalCodeturnedintoamajorcontroversywithstrongopponentsandproponentsoftheincorporation.Anumberofthoseinterviewedstatedthatmembersoftheworkinggroup,ledbytheMinistryofJustice,agreedthatallcriminallawprovisions,includingtheEVAWlaw,shouldbecompiledintoonedocumentasthenewPenalCode.Tothisend,23criminalprovisionsfromtheEVAWlawwereincorporatedintothePenalCode,withoutanymajoropposition.TheprevailedlogiccorrelatedwiththefactthatjustasothercriminallawprovisionswereincorporatedintoasingledocumentsoshouldfollowtheEVAWLaw.EachincorporatedprovisionoftheEVAWlawwasfirstreviewedandscrutinizedbytheworkinggrouptoensureitscompliancewithmodernstandards.Assuch,anumberofitsprovisionsweremarkedlyrevisedandupdated,whileensuringnottochangethesubstance.Asanexample,rapeintheEVAWLawwasthesubjectofArticle17withfiveprovisionsinhalfapage.TherevisedversioninthePenalCodepresentsrapeandpunitiveprovisionsrelatedtoitinArticles636-641inoneandhalfpages.TheEVAWLawdoesnotspecificallydefinerapewhilethePenalCodeprovidesacleardefinitionofwhatconstitutesrapeinArticle636(1).40OnekeydifferenceincomparingtheEVAWLawprovisionsandtherevisedversioninthePenalCoderelates

36KI-F-KAB-IC-237KI-F-KAB-IC-238KI-F-KAB-PI-1,KI-F-KAB-GO-339KI-F-KAB-NG-340UNAMA(September2017).ComparisonofArticlesfromEVAWlawdecreewiththePenalCode.UNAMA-RuleofLaw.Kabul,Afghanistan.

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totheprovisionsonpunishment.TheEVAWLawprovisionsstatetheexactnumberofyearsinitspenalclauseswhereasthenewPenalCoderefersto“sentencedtomediumimprisonment”or“continuedimprisonment.”41Theprocessofrevision,authenticationandscrutinyincludedalargebodyofstakeholdersasregularmembersoftheworkinggrouporasadhocparticipants.ThestakeholderincludedreligiousauthoritiesandexpertsfrombothShiaandSunnidenominations.Also,therevisedPenalCodewasdraftedconsideringthepenalcodesandlawsofothercountries,suchasEgypt,Malaysia,Jordon,Moldavia,France,Germanyaswellasallinternationaltreaties,conventionsandresolutions.42Inessence,therewerethreepositionsregardingcorporation/non-incorporation:thoseforincorporation,thoseagainstincorporationandthoseforincorporationbutmaintainingaseparateEVAWLaw.

Incorporation

TherationalefortheproponentsofincorporatingtheEVAWLawprovisionsintothePenalCodeconsistsofthefollowingkeyelements:AllLawsinaSingleDocument:TheproponentssuggestedthatoneadvantageofincorporatingtheEVAWLawprovisionsintothePenalCodewouldhavebeenadissuasionforhavingdiffusedlaws.43Aninternationaljusticeexpertwhohadbeenengagedinthisprocesscalledita“legislativecleanuptechnology.”44Anotherrespondentremarked:

WewantedtoincorporatetheEVAWLawprovisionsintothePenalCodebecausewhenwetalkaboutaPenalCode,itshouldintegrateallofthem,theEVAWLawincluded.WewantedtohaveonecomprehensiveandcompletePenalCodeinsteadoften.45

ChancesofRatification:Theattemptin2013toratifytheEVAWLawintheParliamentwasunsuccessfulandrantheriskofthelawbeingoverturnedaltogether.ProponentsthusarguedthatiftheEVAWLawwereincorporatedintothePenalCode,itschanceofratificationintheParliamentwouldbeaugmented.46TheproponentsarguethatalawratifiedintheParliament,asopposedtoadecree,bearsmoreweight.Assuch,withoutchangingthesubstance,incorporatedEVAWLawprovisionsinthebodyofaunifiedPenalCodewouldhavemeantastrongertoolfortheprotectionofwomenandpreventionofviolence.47OnerespondentcomparedtheEVAWLawwiththe“sixthfinger”,statingthatacomprehensivePenalCodewouldbeamuchmorepowerfullegalinstrumentthanastandalonelaw.48BetterandClearerProvisions:TheproponentsarguedthatsomeEVAWLawprovisions,suchassexualharassment,werenotdefinedclearlyandaccurately.Theworkinggroup,duringitsscrutinyprocedure,hadintroducedchangestomakethetextclearerandmoreaccurate.49

41Ibid.42KI-M-KAB-GO-1,KI-M-KAB-NG-5,KI-M-KAB-NG-4,KI-M-KAB-GO-543KI-M-KAB-GO-1,KI-M-KAB-NG-5,KI-M-KAB-NG-4,KI-F-KAB-PI-1,KI-M-KAB-GO-544KI-M-KAB-IC-145KI-M-KAB-GO246KI-M-KAB-GO-147KI-F-KAB-PI-1,KI-M-KAB-NG-5,KI-M-KAB-NG-4,KI-M-KAB-GO-2,KI-M-KAB-GO-448KI-M-KAB-GO-249KI-F-KAB-NG2

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Non-incorporation

Thekeyelementsoftheopponent’spositionagainsttheincorporationcanbesummarizedasfollows.NeedforaSeparateLawtoCombatViolenceAgainstWomen:GiventhecurrentsituationofwomeninAfghanistan,despitethemanygainsmadesince2001,andtheprevalenceofviolenceagainstwomen,itisnecessarytohaveaspecificanddedicatedlawtocombatviolenceagainstwomen.50Insupportofthisposition,referencesaremadetospeciallawsandlegalprovisionsinothercountriessuchasPakistan,Malaysia,IndonesiaandIndia.51ExistenceofDedicatedEntitiestoImplementEVAWLaw:SoonaftertheissuanceofthedecreeontheenactmentoftheEVAWLawanumberofspecialattorneyofficeswereestablishedacrossAfghanistanwiththesoleaimofaddressingcasesofviolenceagainstwomen.Althoughinitiallyonlywomeninahandfulofprovincescouldbenefitfromthisprovision,by2016twenty-fourprovinceshadestablishedspecialattorneyoffices.52Accordingtotheopponents,specialattorneyofficeshaveproventheireffectivenessthroughsuccessinresolvingcasesofviolenceagainstwomen.53Theriskcarriedwiththeincorporationisthelossofentitieswithdedicatedmandatesoncombattingviolenceagainstwomen.PreventionandProtectionUnderEVAWLaw:TheEVAWLawcontainsprovisionsforpunishmentofcrimeaswellaspreventiveandprotectivemeasurestocombatviolenceagainstwomen.Women’srightsactivistsareconcernedthatincaseofincorporation,only23criminalprovisionsoftheEVAWlawwouldhavebeenincludedinthePenalCodeandtherestofthearticles,namelythosereferringtopreventiveandprotectivemeasures,wouldhavebeenleftout.AnofficialcommuniquésentoutbyMedicaAfghanistantotheMinistryofWomen’sAffairsstates:

Variousreasonsexistastowhysomecountriesadoptaspeciallawtocombatviolenceagainstwomen.OneimportantdifferencebetweenaconventionalPenalCodeandaspeciallawtoeliminateviolenceagainstwomenisthis:PenalCodesoftenaddresstwoissues:a)punishmentandb)individualresponsibilityofvariouspeople.Thismeansassigningpunishmenttospecificindividualswhocommitcrime.Alawtoeliminateviolenceagainstwomen,ontheotherhand,containsanumberofissues[such]as…:a)preventative,penalandprotectivemeasuresandb)establishingresponsibilityofindividualsbutalsothestate.Thisdistinctionisimportantfor,tocombatviolenceagainstwomen,wemustcastournetwiderbeyondmerelyindividualpunishment.54

Akeyelementinthisstatementistheattributionofresponsibilitytothestate,presumablyforcombatingviolenceagainstwomengivenitsroleandobligations.CurrentAwarenessofEVAWLaw:AnotherconcernisthelossofthemomentumcreatedthroughmanyawarenessraisingactivitiesandcampaignsinsupportoftheEVAWLaw,andwastageofthededication,time,andresourcesthatwentintotheseactivities.55

50KI-F-KAB-NG-151KI-F-KAB-NG-6,KI-F-KAB-NG-352MedicaAfghanistan(13July2016).PositionPaper:Kabul,Afghanistan.BifurcationoftheEVAWDecreeandIncorporationintothePenalCode

53KI-F-KAB-NG-154MedicaAfghanistan(n.d.).AnappealtoprotectandmaintaintheViolenceAgainstWomenlawasadistinctlaw.Kabul,Afghanistan.

55KI-KAB-NG-1

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ApprehensivenessAbouttheParliament:ConsideringthecontroversiesandcomplicationsprecedingtheinaugurationoftheEVAWLawintheParliament,manywomen’srightsactivistsworrythatthefullincorporationwouldhaveeliminatedthestandaloneEVAWLawandcarriedaveryhighriskofbeingrejectedbytheoverwhelmingconservativemajoritywithintheParliament.56

IncorporationandKeepingEVAWLaw

ThisthirdviewstressedthattheexistenceoftheEVAWLawasaseparatelawandtheprovisionsforprotectionofwomenandpreventionofviolenceagainstwomenintherevisedPenalCodecouldcomplementeachother,therebyleadingtobetterprotectionandpreventionofwomenatlarge.57Forexample:

Inmyopinion,itisgood[tohaveprovisionsinbothlaws]becausewecanscrutinizeanissuetwice,fromtwosources.Ifonetimetheissueisoverlooked,itcanhaveachancetobeexaminedasecondtime.…Butthereisacatch22:havingtwosetsofprovisionsmayconfusethejudgesregardingwhichlawtoapplyforadjudication.58

Aflipsideofhavingtwoseparateprovisionsis,ofcourse,thatappealcanbeinitiatedbybothsides,thevictimsofviolenceandtheperpetratorsofviolence.

EVAWLaw/PenalCodeDebate:ImplicationsforNAP1325

Giventheincorporation/non-corporationdebateontheneedforpreventiveandprotectivemeasuresincombattingviolenceagainstwomen,andgiventheemphasisplacedonNAP1325withclearprovisionsonprotectionandprevention,therearenaturallinksthatcould,andarguablyshouldbemade,betweentheProtectionandPreventionpillarsofNAC1325andotherlawsandprovisions.Inattemptingtoexaminetheselinks,itappearsthatthereisunevenawarenessaboutNAP1325oritsprovisionsforpreventionandprotection.NAP1325remains,primarily,apolicydocumentwithoutactiveimplementationofitsvariousprovisions.Asoneinternationalexpertobserved,policydocumentsarenotalwaysontopofthenationalagenda.59Somerespondentsattributedthistoa“lackoffinancialresources”,which,whileused–bygovernmentauthoritiesandcivilsocietyorganizationsalike–astheusualjustificationforinaction,atthetimeofwritinghasnotyetbeenfullyaddressed.60Also,theNAP1325annualreportbyMoFAfor2016doesnotmakereferencetotheEVAWLaw.

56KI-F-KAB-NG-2.See,also,MedicaAfghanistan(13July2016).PositionPaper:BifurcationoftheEVAWDecreeandIncorporationintothePenalCode.Kabul,Afghanistan.

57KI_F-KAB-NG-2,KI-F,KAB-NG-1,KI-KAB-GO-258KI-M-KAB-GO-259KI-M-KAB-IC-160ForthebackgroundonbudgetingforNAP1325,see:APPRO(2018),Afghanistan’sNAP1325(2015-2018):ACriticalAssessment,availablefrom:http://appro.org.af/publication/afghanistans-nap-1325-2015-2018-a-critical-assessment/

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TheNewPenalCode

ThenewPenalCodehascompiled33differentlawsandcriminalprovisionsintoasingledocumentafteracarefulscrutinyofeachlawtoensurethatunnecessaryoffensesareremovedandnewonesareaddedormerged,thereby“increasingtheeffectivenessofthecodeinpreventing,reducing,deterring,andfairlypunishingcriminalbehavior.”61Draftedin916Articles,theCodeconsistsofprovisionsongeneralcriminallawandspecialcriminallaw.TherevisionwastoensureconformitywiththestandardsandnormsofinternationaltreatiesandconventionstowhichAfghanistanisasignatory.OnMarch4,2018theCabinetendorsedthenewPenalCode,whichwasthendecreedbythePresident.Alreadyineffectandpursuanttothelaw,thenewPenalCodehasbeensubmittedtotheNationalAssemblyforreviewtheoutcomesofwhichmaybefullapproval,approvalwithamendments,orrejection.TherearesignificantimprovementsinthenewPenalCodeasitattemptstoaccountformoderndayhumanrightsstandardsandobligationstointernationalobligations,includingtheRomeStatuteoftheInternationalCriminalCourt,theUNConventionagainstTorture,andtheUNConventionagainstTransnationalCrimes,amongstothers.Furthermore,thePenalCodehasbeenmodernizedbyreducingthecrimeswhosepunishmentisdeathpenalty,refiningthedefinitionofrapebasedonmoremodernconsentrequirements,betterprotectionforchildrenbyintroducinganewchapteronBachaBazi,reducingpenaltyforconsensualadultzina(relationshipoutsidemarriage),andremovingjustificationofhomicideashonorkilling.62ThenewPenalCodealsohasprovisionsforaddressingrape,sexualharassmentandabortion.

CurrentStatusofEVAWLaw

ThedecisionnottoincludetheEVAWLawintothePenalCodeinAugust2017wasfollowedbyaperiodofuncertaintyastothestatusoftheEVAWLaw,untilMarch2018.Twoconcernsinparticularprevailedamongwomen’sgroupsandlegalpractitioners.ThefirstrelatedtoArticles7(2),8(2)and32(1)ofthenewlypromulgatedPenalCode,withimportantimplicationsfortheEVAWLaw.Theessenceofthesearticlesalludestothefactthatnoactisconsideredacrime,andthuspermissibleforpunishment,ifitisnotmentionedinthePenalCode.ThisconcernwasaddressedinaPresidentialdecreeissuedonMarch3,2018,givingassurancesjudgmentsbasedontheEVAWLawwouldhold.AseconduncertaintywasaroundtheEVAWLawprovisionswhoseclausesonpunishmentwerereferredtothePenalCodeof1976,whichhadjustbeenreplacedbytherevisedversionofthePenalCode.Toaddressthis,MoJhasstartedworkonamendingoftheEVAWLaw.TheamendmenthasbeenendorsedandreadyforincorporationintotheEVAWLaw.TherearethreereferencesinthecurrentEVAWLawtotheoldPenalCode,allofwhicharenowreferredtotheclausesandarticlesoftherevisedPenalCode.Forexample,items1and2ofArticle17oftheEVAWLawnowrefertoitem2oftheArticle643ofthenewPenalCode.63

61UNODC(n.d.).NewPenalCodeadoptedinAfghanistan.Retrievedfrom:https://www.unodc.org/afghanistan/en/frontpage/2015/new-penal-code-adopted-in-afghanistan.html

62UNAMA(11December2017).TheRevisedPenalCodeandEVAWProvisions.UNAMA-RuleofLawpresentationonthePenalCode.

63KI-F-KAB-NG-3

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Conclusion

Lawmakinginademocracyisacomplex,andmessy,processatallstagesofpreparation,consultationwithvariousstakeholders,drafting,enactment,publicationandcommunicationtothepublic,aswellasandimplementationandoversight.Theprocessoftenentailsinteractionamongactorswithcompetingprioritiesandopposingviewstofindcommonground.Infragileandconflict-riddensocietieslawmakingisburdenedwithfurthercontestsbasedondeeplyrooteddifferencesinbeliefs,values,andperspectivescoupledwithweakgovernanceandruleoflaw,institutionaldeficiencyandincompetence,andadisinterested,introvertedgeneralpublic.Theseparametersparticularlyaffectminoritiesorotherwisedisadvantagedgroupsbasedontheirethnicity,religion,andgender.TheEVAWLaw/PenalCodedebate,anditsultimateimpactontheNAP1325implementation,wasshaped,toonedegreeoranother,byalltheseparameters.RegardlessoftheoutcomeandthedecisiontoleavetheEVAWLawasastandalonelegislation,thesignificantroleplayedbywomen’srightsorganizationsandactivistsinthisprocessconstitutesahistoriclandmark.ThisprocessisarguablythefirsttimeinthehistoryofAfghanistanwherewomen’sconcertedeffortsandlobbyinghasledtosuchanimportantdecision.Manyoftheopponentsofincorporationconsidertheoutcomeoftheirlobbyingandadvocacyeffortsasanoutrightvictorybasedonaunitedandstrongmovementwitheffectivemobilizationandlearningfromtheexperiencesofothercountriesfacedwithsimilarchallenges.Thereisalsorecognitionofthesignificantroleplayedinsupportoftheeffortsbywomen’srightsorganizationsandactiviststoopposeincorporation.Atthesametime,theexistenceofavestedandfunctioningOfficeoftheFirstLadyandaPresidentsympathetictowomen’srightsplayedkeyrolesintheoutcometoexcludeEVAWLawfromthenewPenalCode.Itisdoubtfulthattheopponentsofincorporationwouldhavesucceededintheireffortswithoutthissignificantpoliticalsupport.Withoutthissupport,itislikelythattheopponentswouldhavefacedamuchtougherconfrontationandstrugglethatmighthavemadethepathofvictorymoredifficultbutitcouldalsohaveresultedinmoreafundamentalchangeinthemindsetofthemoreconservativeelements.Inotherwords,alandmarkdecisionsuchasthiswastheresultofpoliticaldiscussionsathigherlevelsratherthanaprocessthatengagedchangingworldviewsofthosewhowerefearedashostiletowardtheEVAWlawinthefirstplace,i.e.,theconservativeParliamentarians.Thissituationposestwoimportantquestionsregardingthesafeguardingofwomen’srightsinvolatileenvironments.First,isitbettertofollowa“shortcut”andbypasstheparliamentarydeliberationprocess,ortopursueabroaderagendaofdemocraticdiscourseanddebatebyengagingwithallkeystructuresofthestate?Second,sinceAfghanistancanbeclassifiedasbothpost-conflictandin-conflict,andwheremanywomenstillremembertheoppressiontheyenduredinthe1990sandhavelegitimatefearofareturntothoseconditions,doesitmakesensetosafeguardthegainsachievedinrelationtowomen’srightsbyanymeanspossible,regardlessoftheoutcomesinthelongrun?Certainly,thedecisionmadefornon-corporationhasnotendedthetwodilemmasposedinthesetwoquestions,bothofwhicharelikelytoresurfaceinsimilarfuturedebates,particularlyongenderrelatedissuesandonsuchfundamentalissuesaspeaceandrapprochementwiththeTaliban.Atthesametime,itisimportanttonotethatthePenalCodeof1976remainedinforceforoverfortyyearsbasedonaPresidentialDecree.TheEVAWLawremainsbasedonaPresidentialdecreeand,assuch,doesnotenjoythesamestatusandlegitimacyofalawthathasbeendiscussedinademocraticprocessandratifiedinthe

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Parliament.Itispossible,however,thatanEVAWlawchapterwillbeaddedtotherevisedPenalCodethroughanotherPresidentialDecreeorbytheNationalAssemblyduringitsreviewoftherevisedPenalCode.Forthemoment,whiletheproponentsofincorporationarguethattheEVAWLawstatushasbeenweakened,theopponentsofincorporationarguethattheimpactofnon-incorporation,includingimplicationsforNAP1325,remainstobeseen.TheEVAWLaw/PenalCodedebatehasbeenuniqueforAfghanistaninmanyways,particularlygiventhewiderangeofstakeholderinvolved–thoughnottheParliament,thedegreetowhichcivilsocietyorganizationswereempoweredbythehighestlevelofauthoritytomaketheirmarkontheprocess,andasetofdynamicsthatsawpowerplaysandchangesofpositionamongbothopponentsandproponents.Inmanyways,thisdebateisfarfromoverandtheoutcomefarfromconclusive,whichwillcontinuetoplaceanevenheavierweightontheshouldersofthewomen’srightsorganizationsandactivistsandformalstateauthorities–aslongasthereisademocraticdecision/lawmakingprocess.

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Recommendations

GovernmentofAfghanistan

• ContinuetoraiseawarenessofpublicofficialsbymainstreamingtheEVAWLawthroughdirectofficialcommunicationtoalllineministriesandjusticeauthoritiestotakecasesofviolenceagainstwomenseriouslyandrefersuchcasestotheEVAWLawprovisionsandspecialprosecutionoffices.

• DevelopandimplementrecordingandmonitoringofcasesofviolenceagainstwomenandevaluateperformanceofauthoritiesintheapplicationofEVAWLaw.

• Establishfollowupmechanismstoactmoreseriouslyandconsistentlyregardingtheperpetratorsofviolenceagainstwomenby,forexample,preventingearlyandarbitraryreleaseonbailofoffenders.

• IntensifyeffortstoimplementtheEVAWLawattheprovinciallevelthroughestablishingtheEVAWLawattorneyofficesandcourtsinallprovinces.

• TrainandappointfemalejudgestoadjudicateusingtheEVAWLawovercasesrelatedtowomenandgenderbasedviolence.

• MainstreamNAP1325inconjunctionwiththeEVAWLaw,toprovidemorelegitimacyforboththeEVAWLawandNAP1325by,forexample,trainingNAP1325focalpointsontheprovisionsoftheEVAWLawatgovernmentministries.

• Launchastrategic,nationalawarenesscampaigntoraisepublicawarenessontheEVAWLaw,NAP1325,andissuesrelatedtopreventionofviolenceagainstwomenandprotectionofwomenvictimsofviolencethroughthelocalgovernmentdepartments,media,andreligiousleaders.

Non-governmentalOrganizationsandDonors

• Continuedrawingonexperiences,includinglegislativeprocesses,ofothercontextssimilartoAfghanistanforaddressingviolenceagainstwomenandorganizeexposurevisitsforthejudiciaryofficials,andwomen’srightsorganizationsandactivists.

• EncourageandsupportdialoguebetweencivilsocietyorganizationsandtheParliamentforlongertermbenefittodemocraticdecision/lawmaking.

• SupporteffortstoraiseawarenessontheprovisionsofEVAWLawandNAP1325throughconductingpubliccampaignsacrossthecountry.

• OrganizeeffortstoenhancemonitoringandevaluationmechanismsfortheimplementationoftheEVAWLawandNAP1325.

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Appendix1:CodingSystemforKeyInformants

Eachcodeconsistsoffourunitsofinformation,thetablebelowshowsthetypesoftheinterviewandintervieweeaswellastheprovinceinwhichtheinterviewhastakenplace.Theaffiliationoftheintervieweesisdescribedinaseparatetable.Unitwithinthecode DescriptionoftheabbreviationKI KeyInformantIntervieweeF/M FemaleorMaleintervieweeKAB FirstthreelettersofthenameoftheprovinceAffiliation Indicatesaffiliationoftheintervieweeintwoletters,

e.g.,GO(government)andNG(non-government)Number SequentialnumberoftheinterviewAffiliationoftheintervieweesNumber AffiliationoftheInterviewee1 AfghanistanIndependentHumanRightsOrganization(AIHRC)2 DepartmentofJustice(DoJ)3 DepartmentofEducation(DoE)4 DepartmentofPublicHealth(DoH)5 FocusGroupwithDepartmentofWomen’sAffairs(DoWA)6 ProvincialCouncilMember(PC)7 ProvincialPeaceCouncilMember(PPC)8 FamilyResponseUnit/AfghanNationalPolice9 DepartmentofWorkandSocialAffairs,MartyredandDisabled(DoLSAMD)

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Appendix2:GuidingQuestionsforInterviews

MainresearchquestionWhatarethelikelybenefitsanddrawbacksoftheincorporationoftheEVAWlawintothenewPenalCode,giventheconflictcontextofAfghanistan?GuidingQuestions1.Whatcircumstancesshapedthedecisionprocessthatledtothenon-incorporationoftheEVAWlawintothenewPenalCode?

a.Whichstakeholderswereinvolvedintheprocess?b.Whowasconsulted?c.Whatisthelogicofincorporationfortheproponents?d.Whatisthelogicofnon-incorporationfortheopponents?e.WhatarethebenefitsofnotincorporatingtheEVAWlawintothePenalCode?

2.BothEVAWlawandthenewPenalCodearepracticedbasedonthepresidentialdecrees,andnotratifiedbytheParliament.WhatisthelikelihoodofthePenalCodebeingmoresuccessfulintermsofimpactthantheEVAWlaw?

a.WhataretherisksthatunderminetheimplementationofthenewPenalCode’sprovisionstoprotectwomenfromviolence?b.Whatdoesthistellusaboutthepoliticalprocessesofdecision-makingatthislevel?c.Wouldthishinderorfacilitateimplementation?d.IfboththenewPenalCodeandtheEVAWlawareproblematicasregardstotheratificationprocessintheParliament,doesithelptohavetheEVAWlawprovisionsseparatelyfromthePenalCode?

3.Howdoesthedecision-makingapproachregardingthenewPenalCodeaffectwomenandtheirlegalprotectionagainstviolence?

a.Doesitenhanceorhindertheirlegalrightsandstatus?How?4.IstheretheneedtohaveboththeEVAWlawandthePenalCodewithspecificprovisionsforwomen?Why?5.WhichaspectsoftheEVAWlawhavebeenincorporatedintothenewPenalCodeandwhichaspectshavenotbeen?Why?

a.Asanexample,whyEVAWlawcrimes,suchasdomesticviolence,havenotbeenincorporatedintothenewPenalCode?

6.Someprovisions,suchasabortion,havenotbeenaddressedintheEVAWlaw.WhatcircumstancesledtotheirinclusioninthenewPenalCode?7.DoestheincorporationoftheprovisionoftheEVAWlawintothenewPenalCodesupportbetterimplementationofprovisionstoprotectwomenagainstviolence?8.IntheEVAWlaw,provisionsonpunishment,i.e.inthecaseofrape,refertotheoldPenalCode.ConsideringthattheEVAWlawwillremainasanadhoclegalprovision,howwillitreconcilewiththeprovisionsinthenewPenalCode?9.WhataretheimplicationsofthedecisionmakingprocessinrelationtothenewPenalCodefortheimplementationofNAP1325?

a.DoestheadhocpracticeoftheEVAWlawenhanceorunderminetheimplementationofNAP1325?How?

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Appendix3:SummaryofAfghanistan’sNAP1325

ToimplementUNSCR1325,theGovernmentofAfghanistanhasdevelopedthisNationalActionPlantoachievethefollowing:

- ParticipationofwomeninthedecisionmakingandexecutivelevelsoftheCivilService,SecurityandPeaceandReintegration;

- Women’sactiveparticipationinnationalandprovincialelections;- Women’saccesstoeffective,activeandaccountablejusticesystem;- Healthandpsychosocialsupportforsurvivorsofsexualanddomesticviolencethroughout

Afghanistan;- Protectionofwomenfromalltypesofviolenceanddiscrimination;- Provisionoffinancialresourcesforactivitiesrelatedtowomeninemergency;- ImplementationofIDPspolicyprovisionsrelatedtoUNSCR1325;- Putanendtoimpunityforviolenceagainstwomen(VAW)andrelatedcrimes;- EngageboysandmeninfightingViolenceAgainstWomen;- Supportandprovidecapacitybuildingforcivilsociety(particularlywomen’sorganizations)

onUNSCR1325andwomen,peace,andsecurity;- Increaseeconomicsecurityforvulnerablewomenthroughincreasedemployment

opportunities;- Increaseaccesstoeducationandhighereducationforgirlsandwomen,particularlyforthe

internallydisplacedpersonsandreturnees;Duetomorethan3decadesofwar,thefollowingmajorareasrequirefocusedattention:

- Womenarevulnerabletosexualviolence,including:rape,sexualharassment,trafficking,forcedprostitution,andforcedmarriages

- Inremoteareas,womenlackaccesstojustices- Asaresultofthearmedconflictandthemarginalizationofwomeninsocietyatlarge,

womenlackproperaccesstohealthcareservices,education,andemploymentopportunities.

- Asaresult,illiteracyandunemploymentratesarehighestamongwomen,andAfghanistansuffersfromasignificantmaternalmortalityrate.Internallydisplacedwomenandwomenlivinginconflict-affectedcommunitiesareparticularlyvulnerabletoinsecurity.

ConstitutionalProvisionsAccordingtoArticle22oftheAfghanConstitution,“[a]nykindofdiscriminationanddistinctionbetweencitizensofAfghanistanshallbeforbidden.ThecitizensofAfghanistan,manandwoman,haveequalrightsanddutiesbeforethelaw.”ThisArticleisthefoundationforincorporatingprinciplesofgenderequalityandnon-discriminationingovernmentpoliciesandinitiatives.Women’srighttovoteandrepresentationintheNationalAssemblyisenshrinedinthe1964Constitution.Theserightswerestrengthenedin2004withthenewConstitutionthatsetthe26percentquotaofseatsforwomenintheLowerHouse(WolesiJirga)and17percentintheUpperHouse(MeshranoJirga).Followingthe2010elections,Afghanwomenrepresented27.7%oftheWolesiJirga.ArticlesNo43,44,53,and54oftheAfghanConstitutionarticulateprovisionsoneducation,healthcare,welfare,andemploymentservicesforwomen.Thesearticlesensurewomen’saccesstoeducation,healthcare,andemploymentinAfghanistan,whicharepre-conditionsfortheirmeaningfulpoliticalparticipationaswellasanimportantcomponentofthereliefandrecovery.

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LegalProvisionsThelawsofAfghanistanguaranteetheprotectionofwomen’srightandfreedom.Thegovernmentislegallyboundtoprotectwomenagainstviolence.In2009theEliminationofViolenceagainstWomen(EVAW)Lawwasadopted,whichlists22offencesincludingforcedmarriageandrape.Inanattempttostrengthenthelegalprovisionsandstructurestoeliminateviolenceagainstwomenandincreasewomen’sparticipation,thegovernmenthastakenthefollowingsignificantsteps:

- AdoptionoftheEVAWLaw- AmendmentofsomeoftheprovisionsintheCivilServantsLawtopromotewomen’srights- DevelopmentoftheFamilyLaw- Developmentofprocedurestopreventdiscrimination- DevelopmentofShelterRegulations,and- PresidentialDecreeNo45(Paragraph32)onEliminationofViolenceagainstWomen.

NAP1325Pillars- Participation

• Increaseeffectiveparticipationofwomeninthedecision-makingandexecutivelevelsofthecivilservice

• Ensurewomen’sactiveandeffectiveparticipationinleadershippositionsofsecurityagencies

• Ensurewomen’seffectiveparticipationinthepeaceprocess• Encouragewomen’smeaningfulparticipationinthedraftingofstrategiesandpolicieson

peaceandsecurity• Strengthenwomen’sactiveparticipationinpolitics

- Protection

• Protectwomenfromallformsofviolenceanddiscriminationthroughtheenforcement,monitoringandamendmentofexistinglawsanddevelopmentofnewlawsandpolicies.

• Promotewomen’shumanrightsgendermainstreamingoflaws,policies,andinstitutionalreforms.

• Createanenablingenvironmentforwomentohaveaccesstojusticethroughwomen’seffectiveparticipationinthejudiciary.

• Protectwomenfromallformsofviolencethroughawarenessraisingandpublicoutreach.• Providehealth,psychological,andsocialservicesforwomensurvivorsofviolence

throughoutAfghanistan.• Effectspecialmeasurestoensurewomen’sprotectionfromsexualviolence.

- Prevention

• Preventviolenceagainstwomen.• Eliminatecultureofimpunityinviolenceagainstwomen.• Strengthentheroleofwomeninthesecuritysectorandjudicialstructures.• Effectgender-relatedreformsinthesecurityandjusticesectors.• Involvemenandboysinthefightagainstallformsofviolenceagainstwomen.• Increaseawarenessamongwomenoftheirrightsandtheirroleinpreventingviolenceand

resolvingconflict.

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- ReliefandRecovery• Providereliefandrecoveryservicesforwomenaffectedbyconflict,internaldisplacement

andwomensurvivorsofviolence.• Increaseruralwomen’seconomicsecuritythroughincreasedemploymentopportunities.• Considerwomen’ssocialandeconomicneedsinthedesign,implementation,andevaluation

ofreliefandrecoveryprograms.• ImplementthepolicyprovisionsofUNSCR1325fortheinternallydisplacedpersons(IDPs).

ImplementationTheimplementationoccursintwophasesoffouryearseach:2015-2018and2018-2022.Theimplementingagencieshavebeendividedintotwocategorieslead(governmental)andsupport(civilsociety).ReportingandAccountabilityAllleadandsupportingimplementingagencieswillberesponsibleforreportingontheirassignedactivitiesonanannualbasistotheDHRWIA-MoFA.TheDHRWIAwillcompilethereportsandsubmitthemtotheSteeringCommitteeforapproval.Afterapprovingthereport,theSteeringCommitteewillsubmitthefinalreporttothePresidentOffice,theNationalAssemblyandtheinternationalcommunity.Theannualreportingwilladdress:theextentofactivitiesimplemented,financingallocated,disbursedandspent,progressmade,challengesencountered,andsuggestionstoimprovetheimplementation.1–SteeringCommittee:TheSteeringCommitteewasestablishedonApril14,2012,underPresidentialOrderNo434,andisanoverarchingbodytoadviseanddirecttheNAPdevelopmentprocess.TheSteeringCommitteeiscomprisedofrelevantgovernmentagenciesaswellasarepresentativefromcivilsociety.FollowingtheadoptionoftheNAP,theSteeringCommitteewillcontinuetohaveacentralroleintheimplementation,monitoringandevaluationoftheNAP.SteeringCommitteeMembersInstitution NAPRole1. MinisterofForeignAffairs Chairperson

Member2. DeputyMinister(Policy)ofMoD Member3. DeputyMinister(Security)oftheMoIA Member4. DeputyMinisterofPublicHealth(HealthcareServices) Member5. DeputyMinister(AdminandFinance)ofMoRR Member6. DeputyMinister(TechnicalandPolicy)ofMoWA Member7. SeniorAdvisorofMoJ Member8. DirectorofDHRWIAofMoFA Member9. DeputyDirectorofNDS Member10. Women’sRightsCommissioneroftheAIHRC Member11. RepresentativeofCivilSociety Member12. DirectorofInternationalRelationsoftheOfficeofAdministrativeAffairsand

SecretariatofMinisters’CouncilMember

2–TechnicalWorkingGroup:InordertoensureeffectiveimplementationandreportingoftheNAP,theannualreportsaswellasthemidtermreviewandfinalreviewwillbepublishedonMoFA’swebsite.

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MonitoringandEvaluationAMonitoringandEvaluation(M&E)Planisdesigned,whichincludesannual,mid-term(aftertwoyears)andfinalreviewinthefourthyear.TheM&EPlanincludestrackingandmonitoringoffinancingfortheNAPtoensuretransparentandeffectiveimplementation,forwhichtheSteeringCommitteeisresponsible.TheGIRoArecognizestheimportantroleofcivilsocietyasanindependentoversightbodyforthesuccessfulimplementationoftheNAP.