Pakistani human rights activists hold candles as they shout slogans during a rally in Lahore on 7 March 2011 on the eve of International Women's Day. AFP/Arif Ali Report 265 / Asia 08 April 2015 2 minutes 巴基斯坦之女性、暴力与冲突 在巴基斯坦,女性的安全及其政治、社会和经济地位遭到了宗教极端分子的攻击,被歧视性法律所削弱,还不受政府的保护。政府必须遵守承诺,消除性别不平等的现象、终止针对女性的暴力行为;尤其是在此况甚为严重的地区,如西北部的冲突地带以及巴基斯坦与阿富汗接壤处的部落带。 Share Facebook Twitter Email Linkedin Whatsapp Save Print Download PDF Also available in English Chinese, Simplified English 执行摘要 巴基斯坦向民主国家过渡已经八年了,但在有罪不罚和政府不作为的环境下,对女性的暴力行为仍然普遍存在。歧视性的法律和不健全的刑法使妇女陷入极端危险。尤其是在开伯尔-普赫图赫瓦省冲突地区(KPK)和联邦直辖部落地区(FATA),由于暴力极端分子的公开压迫,女性安全备受威胁。在3月8日国际妇女节,巴基斯坦总理纳瓦兹·谢里夫(Nawaz Sharif)郑重宣布,其政府将采取一切必要的立法和行政措施来保护和赋予女性权利。如果谢里夫的承诺言出肺腑,那他的巴基斯坦穆斯林联盟(PML-N)政府便应该结束制度性的性别暴力和歧视,包括废除不公正的法律、打击极端主义尤其在KPK和FATA地区的威胁、并接纳女性在如何设计——包括反暴力极端组织策略在内的与其安危息息相关的——国家政策上尤为相关的参与和建议。 过去的国家政策为了安抚暴力极端主义分子,使女性成为了主要受害者。而在巴基斯坦回归民主之后,巴基斯坦在改善女性待遇上,特别通过对立法渐进改良,取得了一些进展。 女权运动的中坚力量不仅得以参与到联邦和省级立法机构中,并撰写了大部分的女权法案;他们在议会中的代表数量也有增加。然而,只要社会仍持有偏见,即便是在完善的法律也不足以保障女性安全。若警察不会因未能调查性别歧视犯罪而被问责,若司法部门上上下下均置女性暴力幸存者的正义于不顾,那歧视性法律便仍是记录在册的。 巴基斯坦的法律残存了不少上世纪七八十年代齐亚•哈克(Zia-ul-Haq)将军伊斯兰化的痕迹。而这些法律则延续其对女性在宪法中性别平等权的否认,并助长了对女性的宗教迫害和暴力。只要法律和行政上的壁垒——尤其是于1979年通过的《伊刑法条例》、联邦直辖部落地区于1901年通过的《边境犯罪条例》(FCR)、和2009年在省级直辖部落地区签署的《Nizam-e-Adl协议》——依然存在,那女性对司法公正和安全的企望便仍将是痴人说梦。 政府肩负着打击性别不平等和为女性赋权消除障碍的宪法义务和国际承诺,其中包括联合国公约下的《消除对妇女一切形式歧视公约》(CEDAW)。废除歧视性立法并执行保护妇女的法律,其中包括确保她们能受到秉持两性平等的警察和法庭的保护,这对于结束性别施暴有罪不罚的现象而言至关重要。 在开伯尔·普赫图赫瓦省冲突地区和联邦直辖部落地区,虽侵犯人权却逍遥法外的情况尤为惊人,该地区的政府默许了这些针对妇女的歧视、武装暴力、宗教极端主义和性暴力。激进分子可以肆意袭击女权活动家、政治领袖和发展工作者而不受惩治。在巴基斯坦的许多地方,特别是普赫图赫瓦省(Pakhtunkhw)和联邦直辖部落地区,非正式司法机制盛行并尤为歧视女性;同时,政府胡乱采取军事行动,其造成了数百万人流离失所,而这也进一步加剧了女性在冲突地带所面临的困难。 在开伯尔—普赫图赫瓦省冲突地区和联邦直辖部落地区乃至全国范围内,提高女性在决策上的地位——或作为选民参与政治、或担任国家公职人员——都会成为可持续性改革的核心。巴基斯坦应该在女性赋权上多下功夫,努力通过国家各政策反应女权的重要性,其中也包括了反暴力和维和政策。这些都是为了让女性蒙受叛乱和政府反暴政策之苦的案例在巴基斯坦不再比比皆是。 加强国家以及省级立法对女性的保护,仅是朝着正确的方向迈出的一小步。更必要的则是为女性提供保障,令其免受暴力和不公正待遇,且最终巩固巴基斯坦向民主制度过渡的进程。 伊斯兰堡/布鲁塞尔,2015年4月8日 Download pdf to continue reading the full report (English) Executive Summary Eight years into its democratic transition, violence against women is still endemic in Pakistan, amid a climate of impunity and state inaction. Discriminatory legislation and a dysfunctional criminal justice system have put women at grave risk. Targeted by violent extremists with an overt agenda of gender repression, women’s security is especially threatened in the conflict zones in Khyber Pakhtunkhwa (KPK) province and the Federally Administered Tribal Areas (FATA). On 8 March, International Women’s Day, Prime Minister Nawaz Sharif vowed that his government would take all necessary legislative and administrative steps to protect and empower women. If this pledge was in earnest, his Pakistan Muslim League-Nawaz (PML-N) government should end institutionalised violence and discrimination against women, including by repealing unjust laws, countering extremist threats, particularly in KPK and FATA, and involving women and their specially relevant perspectives in design of state policies directly affecting their security, including strategies to deal with violent extremist groups. Women in the past were the principal victims of state policies to appease violent extremists. After democracy’s return, there has been some progress, particularly through progressive legislation, much of it authored by committed women’s rights activists in the federal and provincial legislatures, facilitated by their increased numbers in parliament. Yet, the best of laws will provide little protection so long as social attitudes toward women remain biased, police officers are not held accountable for failing to investigate gender-based crimes, the superior judiciary does not hold the subordinate judiciary accountable for failing to give justice to women survivors of violence, and discriminatory laws remain on the books. Laws, many remnants of General Zia-ul-Haq’s Islamisation in the 1970s and 1980s, continue to deny women their constitutional right to gender equality and fuel religious intolerance and violence against them. Their access to justice and security will remain elusive so long as legal and administrative barriers to political and economic empowerment remain, particularly the Hudood Ordinances (1979), FATA’s Frontier Crimes Regulations (FCR) (1901) and the Nizam-e-Adl (2009) in KPK’s Provincially Administered Tribal Areas (PATA). The government has a constitutional obligation and international commitments, including under the UN Convention on the Elimination of All Forms of Discrimination Against Women (CEDAW), to combat gender inequality and remove such barriers to women’s empowerment. Repealing discriminatory legislation and enforcing laws that protect women, including by ensuring that they have access to a gender-responsive police and courts, are essential to ending the impunity that promotes violence against women. The extent to which rights violations go unpunished is particularly alarming in FATA and KPK, where women are subjected to state-sanctioned discrimination, militant violence, religious extremism and sexual violence. Militants target women’s rights activists, political leaders and development workers without consequences. The prevalence of informal justice mechanisms in many parts of Pakistan, particularly in Pakhtunkhwa and FATA, are also highly discriminatory toward women; and the government’s indiscriminate military operations, which have displaced millions, have further aggravated the challenges they face in the conflict zones. In KPK and FATA, and indeed countrywide, women’s enhanced meaningful presence in decision-making, including political participation as voters and in public office, will be central to sustainable reform. Pakistan should invest in their empowerment and reflect their priorities in all government policies, including counter-insurgency and peacebuilding efforts. All too often, women comprise a majority of both the intended victims of the insurgency and the unintended victims of the counter-insurgency response. National and provincial legislation to enhance protections for women is a step in the right direction, but much more is needed to safeguard them against violence and injustice and ultimately to consolidate Pakistan’s democratic transition. Related Tags More for you Podcast / Asia Pakistan’s Political Standoff and Surging Militant Violence On the Horizon / Africa On The Horizon: June - November 2024