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Statement on Afghanistan to the UN Security Council

Kabul, Afghanistan

The following recommendations are based on extensive interviews with Afghan refugee women in Pakistan and Afghanistan in October 2003. The interviews were conducted by the Women’s Commission for Refugee Women and Children and reflect the attached statement by the Afghan Women’s Network, which was signed by more than 10,000 Afghan women in Pakistan and Afghanistan, and handed to President Karzai.

The Women’s Commission has found that Afghan refugee women’s primary concern is security. Security issues include: protection from armed elements; abuse by local police; trafficking; domestic violence and other forms of gender-based violence. In addition, the activities of local Afghan women’s groups in promoting women’s rights can make them vulnerable to security risks and limit the range of their activities.

Disarmament and Reintegration (DR)
Disarmament is a top priority for women and the removal of weapons will reduce some forms of violence, such as the use of rape as a weapon of war and insecurity stemming from clashes between armed elements. Family disputes often center around the position of women and at times their objectification - as reflections of family honor, and as ways to resolve conflict i.e. giving women for reconciliation. These disputes become more violent with the prevalence of weapons.

Therefore disarmament alone will not save all Afghan women’s lives or ensure their protection. As seen from a women’s perspective, reintegration of disarmed elements into families and communities is also key to preventing future violence in the absence of war. Experience in other countries that have gone through demobilization reveal that domestic violence and substance abuse can increase as a result of reintegration that does not address men and boys’ sense of powerlessness and lack of vocation. Early and forced marriage, and use of women for dispute settlement, will remain a challenge. The way in which violence against women is treated in the DR process will affect attitudes and could be a testing ground for future impunity. Holding perpetrators accountable for gender-based violence must also be a priority of all reintegration programs.

How is violence against women being addressed in the reintegration process? Do programs include: mechanisms to ensure that no form of violence against women will be tolerated; attention to economic and psychosocial needs of both women and men; and sufficient community-level monitoring and follow up?

Police Forces
Police recruitment is now based on recommendations from local authorities; governors, shuras and tribal leaders. There are no clear standards to vet candidates, including screening for previous crimes committed against women. Tribal representation appears to be taking precedence over consideration of women’s protection in recruitment decisions made by police chiefs, i.e. in Khost and Khandahar. .Selection must be based on an individual’s performance according to human rights standards. Police must be trained to treat violence against women as a crime and to take appropriate action. Abduction, trafficking, forced marriage and domestic violence, are often not considered crimes worthy of protection and intervention in Afghanistan.

What are the standards for police recruitment and how are they applied? Do they include attention to crimes against women and demonstrated action in protecting women in accordance with international human rights standards? What is the quality of police training at all levels in this regard? Who is monitoring police recruitment and training to ensure that appropriate standards are being met?

Deportees/Iran border
Government authorities in Iran continue to deport Afghans to the Afghan border; an estimated 26,000 Afghans were deported to Herat province in 2002. Monitoring by the UN and Afghan authorities is minimal. A high number of boys under the age of 17 are among the deportees; many are seeking employment to support destitute families in Afghanistan. These boys are detained by Iranian police and the army and subject to abuse, including insufficient food, theft and beatings. Afghan girls and women are also deported for “inappropriate” behavior in public, such as walking with Iranian boys. Not enough is known about the circumstances of female deportation, including those picked up while fleeing from forced marriage and family violence. When these women and children arrive in Afghanistan, they are vulnerable to exploitation and further abuse.

Which international agencies monitor and address the deportation of Afghans from Iran? To what extent are agencies with mandates and experience in child protection, such as UNICEF, UNHCR and the International Labor Organization included in this work? Who is engaging the Afghan and Iranian authorities to end deportation and to address the treatment of deportees so that they are not further exploited?

Trafficking in Persons
Afghanistan is a country of origin, transit and destination for trafficking. Men, women and children – including boys – are victimized. Reports of trafficking within the country include abductions for forced marriage, and sexual and domestic servitude. Similar trends have also been cited among Afghans in neighboring countries. In addition, smuggling of Afghans, followed by exploitation e.g. forced prostitution and labor, is also occurring.

Trafficking continues with impunity across Afghanistan, Pakistan, Iran, and across other borders. There is a severe lack of documentation and monitoring of the situation, which prohibits the ability of actors to identify networks and take action. Families have recounted situations of kidnapping, missing children and false offers of employment throughout Afghanistan and in Pakistan. Trafficking is difficult and sensitive to track; this must not be used as an excuse for inaction.

How are governments [Afghanistan, Pakistan, Iran, etc.], development/assistance agencies and donors dealing with trafficking in their programs? Aside from the International Organization for Migration, how are agencies responsible for protection engaged? What steps are being taken to improve the documentation and monitoring of trafficking in Afghanistan? What evidence exists of improvements to date and who is responsible for monitoring and evaluating developments?

Local Women’s Groups
Afghan women’s groups are the primary and most effective link to women in Afghan society. In addition, representatives of women’s groups serve as role models. Progress is being made by these groups in promoting women’s rights and discreetly intervening to seek redress among communities and government officials regarding rights violations. Their activities are curtailed due to insecurity as travel on the roads in many areas is dangerous because of armed elements. Women’s groups must also negotiate the terms under which they can work with the local leader, armed or not. Yet, they continue to work at high risk in all provinces of Afghanistan. It appears the appropriate strategy is to assure security within communities, not to provide armed escorts or other external security for women’s groups (an armed presence would restrict their ability to interact with local communities).

Given the strategic position of local women’s groups in promoting Afghanistan’s development, does the Security Council mission itinerary include significant time for a constructive discussion with these groups? How are the particular security needs of women’s group members being met, i.e. when working among less secure communities and traveling on roads. Do international nongovernmental organizations set aside sufficient funds for direct assistance to women’s groups and effectively engage their support?

Pakistan
More than 2.1 million Afghan refugees remain in Pakistan. As a reflection of refugee movement and lack of donor funding, fewer UN and nongovernmental organizations are operating in the country, and those remaining have an inadequate number of staff. There is still a need for assistance and protection for refugees, and local Afghan women’s organizations are struggling to fill this important gap. While deportation by the Pakistan authorities is reportedly at a lull, refugee women have reported experiencing harassment from police and say the situation has worsened in recent months.

Extremely vulnerable Afghan refugees – mostly women and children - remain in Pakistan both in refugee camps and urban areas. Their situation makes them vulnerable to abuses by Pakistani police, camp monitors (Afghan and Pakistani) and criminal elements such as drug traffickers. Conversely, some women are fleeing from Afghanistan and seeking refuge Pakistan. They are escaping abuse including rape, sexual exploitation and forced marriage because they are unable to access or are denied protection in Afghanistan.

Given the number of vulnerable Afghan refugees remaining in Pakistan, the UN and the international community is failing to maintain its commitment to the protection of this population; what actions will be taken to require an increase in funding and in quality of programs in Pakistan? How are the UN Security Council and member states engaging the government of Pakistan to ensure the protection of Afghan refugees at all levels, i.e. camp authorities, police and judicial systems?