I

PREFACE

Terrorism, since post 9/11, has assumed appalling proportions in Pakistan to the extent that it very much threatens the security and territorial integrity of Pakistan. It has inflicted massive damage to the country resulting in the loss of thousands of innocent lives and direct or indirect costs of billions of dollars with major impact on exports; damage to the physical infrastructure; disintegration of social structure; erosion of law and order; and blatant violation of human rights. The terrorist attack of 16 December 2014 in Peshawar galvanized the entire nation and built politico-military-citizens consensus to act decisively against terrorists. A 20 points National Action Plan on Counter-terrorism (NAP) was announced on 24 December 2014 which demonstrates national commitment to eradicate terrorism in all its forms and manifestations. NAP implementation, however, continues to pose challenges because of, inter alia, policy and institutional fragmentation and coordination dysfunction; capacity deficit especially of the civilian law enforcement agencies involved in counter terrorism operations; the dearth of resources; and lack of state-citizen synergy.

In order to address some of these issues and to contribute to the effort against the multifaceted menace of terrorism, the Shahid Javed Burki Institute of Public Policy at NetSol (BIPP), in conjunction with the National School of Public Policy (NSPP), organized a two days Policy Dialogue on “Strategy for Effective Implementation of National Action Plan on Counter-terrorism: Strengthening Law Enforcement Capacity" on 8-9 May 2015. The Policy Dialogue brought all relevant stakeholders i.e., senior government officials, state security apparatus both military and civil, eminent citizens, private sector, academia and religious scholars together, who pondered over diverse facets of the issue in order to help develop an internally integrated strategy for enforcement and implementation of the National Action Plan. These deliberations culminated in the preparation of a Report which constituted the basis for producing this Strategy Document.

It may be added that this Strategy Document is the outcome of an inclusive process; and in- depth analysis of the etiology of terrorism in all its forms and manifestations with special focus on policy and institutional issues, monitoring and accountability mechanisms; state-citizen synergy; and resources dimension.

Strategy to Combat Terrorism including Effective Implementation of National Action Plan II

We hope that it will receive serious consideration by the government and all those involved in emancipating Pakistan from the ominous scourge of terrorism. It indeed represents BIPP's earnest effort to contribute to the national endeavour for achieving peace and security and creating conducive environment for sustainable human development.

Shahid Najam Vice Chairman, BIPP July 2015

Strategy to Combat Terrorism including Effective Implementation of National Action Plan III ACKNOWLEDGEMENTS

The formulation of this Strategy Document would not have been possible without the close collaboration and help of the National School of Public Policy (NSPP), Lahore. The Rector, Mr. Ismael Qureshi and his team, deserve a special mention for facilitating and hosting the policy dialogue “Strategy for Effective Implementation of National Action Plan on Counter-Terrorism: Strengthening Law Enforcement Capacity” at the NSPP campus.

I must also record a note of deep appreciation for the lead role played by Lt. Gen (R) Khalid Maqbool, former Governor Punjab, Mr. Moeen Afzal, former Federal Secretary, Dr. Muhammad Shoaib Suddle, former Tax Ombudsman and Mr. Mohammad Sadiq, Federal Secretary, National Security Division who, with passionate zeal and commitment, stewarded the parallel Groups discussion during the course of Policy Dialogue and came up with specific set of very valuable recommendations.

Mr. Asim Imdad, a friend and colleague of yester years, was a tremendous support to organizing and conducting the event for which I owe him special thanks. The report of the policy Dialogue indeed constitutes the basis for writing the strategy document.

My colleague at the Shahid Javed Burki Institute of Public Policy at NetSol (BIPP), Muhammad Imran, extended valuable assistance in researching, coordinating and synthesizing the voluminous source of material. He took pains along with Muhammad Rizwan to organize the Strategy Document into a coherent format and shape.

The dedicated effort of Wardah Saqib, intern at BIPP, also needs to be acknowledged for data collection and promptly responding to innumerable requests for research work on various facets of terrorism.

Last but not the least, BIPP owes a debt of gratitude to Mr. Rizwan Saeed Sheikh of National Security Division for his extremely valuable comments and suggestions.

While I am immensely pleased to be a part of this endeavor, I take the full responsibility in case of any short-comings or deficits in this Strategy Document.

Shahid Najam Vice Chairman, BIPP July 2015

Strategy to Combat Terrorism including Effective Implementation of National Action Plan

V ACRONYMS

AJK Azad Jammu and Kashmir APC All Parties Conference ASEAN Association of Southeast Asian Nations ASIs Assistant Sub Inspectors BIPP ShahidJavedBurki Institute of Public Policy CAFs Civil Armed Forces CDP Composite Deterrence Plan CIDs Crime Investigation Departments CJS Criminal Justice System CPLC Citizens-Police Liaison Committee CRP Comprehensive Response Plan CSOs Civil Society Organizations CTDs Counter Terrorism Departments CVE Countering Violent Extremism DCO District Coordination Officers DIS Directorate of Internal Security DM District Manager FATA Federally Administered Tribal Area FBR Federal Board of Revenue FC Frontier Corp FIA Federal Investigation Agency HR Human Resource IB Intelligence Bureau ICCPR International Covenant on Cival and Polical Rights ICPs International Conventions and Protocols ICT Information and Communications Technology IDPs Internally Displaced Persons KPK Khyber Pakhtunkhwa LEAs Local Enforcement Agencies METS Militancy, Extremism, Terrorism and Sectarian NAB National Accountability Bureau NACTA National Counter-Terrorism Authority NADRA National Database and Registration Authority NAP National Action Plan NGOs Non-Governmental Organizations

Strategy to Combat Terrorism including Effective Implementation of National Action Plan VI NISP National Internal Security Policy NOC No Objection Certificate NSI Non-State Institutions NSPP National School of Public Policy PACs Provincial Apex Committees PEMRA Pakistan Electronic Media Regularity Authority PM Prime Minister RRF Rapid Response Force SAARC South Asian Association for Regional Cooperation SOPs Standard Operating Procedures UN United Nations UNSC UN Security Council WOT War on Terror YES Youth Engagement Strategy

Strategy to Combat Terrorism including Effective Implementation of National Action Plan VII CONTENTS

Preface ...... I Aknowledgements ...... III Acronyms ...... V

SECTION - I Context ...... 2

SECTION - II Challenges ...... 8

SECTION - III The Guiding Principles ...... 12

SECTION - IV The Strategy ...... 16 Strategic Pillars and Action Areas ...... 18 Pakistan at the Forefront of WoT ...... 27 Vision ...... 28 Mission ...... 28 Objectives ...... 28

SECTION - V Strategic Pillars ...... 32 Strategic Pillar 1: Hard Core Terrorism ...... 33 Strategic Pillar 2: Religious Extremism and Militancy ...... 38 Strategic Pillar 3: Organized Crime ...... 43 Strategic Pillar 4: Technology, Training and Workforce Development ...... 46 Strategic Pillar 4: Law Enforcement ...... 50

Conclusion ...... 55

ANNEXURES Annexture 1 - National Security Policy of Pakistan 2014-18 ...... 58 Annexture 2 - Anti-Terrorism Acts ...... 62 Annexture 3 - International Conventions Open to All States ...... 64 Annexture 4 - Definition of Terrorism ...... 66

TABLES Table 1 Fatalities in Terrorist Violence in Pakistan, 2014-15 ...... 3

FIGURES Figure 1 Fatalities in Terrorist Violence in Pakistan, 2014-15 ...... 3

Strategy to Combat Terrorism including Effective Implementation of National Action Plan VIII

CHARTS Chart 1 Losses Due to Terrorist Attacks ...... 2 Chart 2 Structure of Counter Terrorism Agencies ...... 20 Chart 3 Strengthening Law-Enforcement Capacity ...... 29

BOXES Box 1 National Action Plan on Counter Terrorism ...... 6 Box 2 Challenges ...... 9 Box 3 Methodology ...... 13 Box 4 A Counter-Narrative ...... 17

Strategy to Combat Terrorism including Effective Implementation of National Action Plan S e c t i o n I CONTEXT 2 Chapter 5: The Revival Strategy: Industry the Leading Sector Section I CONTEXT

errorism is a multifaceted and complex disparate economic development, Tphenomenon closely connected with a administrative lapses and law and order complex web of religious extremism and mismanagement. It has emerged ominously as organized crime including kidnapping for a key threat to the national security. ransom, drug trafficking, illegal arms trading, Terrorism, post 9/11, has inflicted excessively illicit financing etc. It is neither isolated nor a high damage to Pakistan resulting in the loss of straightforward riddle; it is characterized by a thousands of precious lives and direct or perverse and radical ideology of elimination, indirect costs of billions of dollars. It is hatred, oppression, violence and militancy in estimated that in 2001-2002, the losses the name of religion. The trajectory to terrorism incurred by the country due to terrorist attacks in Pakistan is especially complicated and were to the tune of $2.72 billion which rose to strewn with decades of governance exorbitant levels of $4.52 billion in 2014-15 dysfunction, politico-religious expediency, with major impact on exports, damage to the

Chart 1 Losses Due to Terrorist Attacks

Source: Pakistan Economic Survey, various issues, Ministry of Finance Note that the figures for the latest year are upto May 31, 2015

*Economic Survey of Pakistan 2015

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Section I: Context 3 Figure 1 Fatalities in Terrorist Violence in Pakistan, 2014-2015

Source: South Asia Terrorism Portal Note that the figures for the latest year are upto May 31, 2015 physical infrastructure, reduced tax collection order; led to blatant violation of human rights; and foreign investments* (see Table 1 for and inflicted tragic fatalities. More than 50,000 details). precious lives have been lost ever since 9/11

Table 1 due to the dastardly spate of terrorist activities Fatalities in Terrorist Violence in Pakistan 2003-2015 and religious extremism etc. Civilians Security Force Terrorists/In Total Personnel surgents 2003 140 24 25 189 In contrast, the lackadaisical and perfunctory 2004 435 184 244 863 response to the bourgeoning terrorist threats; 2005 430 81 137 648 2006 608 325 538 1471 lack of effective policy and legislative 2007 1522 597 1479 3598 frameworks and the associated gaps; 2008 2155 654 3906 6715 2009 2324 991 8389 11704 inadequacy of institutional capacity especially 2010 1796 469 5170 7435 that of civilian Law Enforcement Agencies 2011 2738 765 2800 6303 2012 3007 732 2472 6211 (LEAs); and absence of effective coordination, 2013 3001 676 1702 5379 monitoring and accountability mechanisms 2014 1781 533 3182 5496 2015 500 139 1178 1817 continue to remain major obstacles to Total* 20437 6170 31222 57829 combating terrorism. All these challenges have Source: South Asia Terrorism Portal * Data till May, 31, 2015 to be addressed in a concerted, Apart from economic development, this comprehensive and sustainable manner with a menace disintegrated the social structure; view to protecting the geographical integrity of destroyed the political system; eroded law and the country and the lives and livelihood of the

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 4 Section I: Context people of Pakistan against the terrorist Qaeda, Lashkar-e-Jhangvi, the East Turkestan activities. Islamic Movement, the Islamic Movement of Uzbekistan and the Haqqani Group. This For the purpose, the Government in operation has received unprecedented support conjunction with the army took a land mark from the political leadership, media, opinion decision to eradicate terrorism and their makers, the civil society and the citizens. The support infrastructure from the country. Zarb-e- operation has been extremely successful in Azb, spearheaded by the Pakistan army, was flushing out the foreign and local militants from launched on 15 June 2014 in North Waziristan the tribal areas and elsewhere in the country. as a comprehensive joint military operation Reportedly, more than 90% of the area which against the terrorists and various militant was under control of the terrorists has been groups including Tehrik-e-Taliban Pakistan, Al cleared and secured; as of 14 June 2015,

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Section I: Context 5

2763 terrorists have been eliminated; and 837 security; and resolve dispute with hostile hideouts/strongholds of terrorists destroyed elements peacefully without compromising rule while 347 security personnel have been of law. martyred**. The role of Pakistan army and its It needs to be recognized that combating effective offensive has been widely acclaimed terrorism not only entails swift and effective and lauded both nationally and internationally. military action but also involves establishment As a result of the operation, close to one of stable and sustainable environment. A million civilians have been displaced who were combination of policy and institutional provided relief, shelter, food, education and frameworks has to be put in place to promote health facilities in 59 camps across Pakistan. freedom and human dignity; democracy and Later on 24 December 2014, Government inclusiveness; and creation of opportunities for announced a 20 points National Action Plan on people to exercise and expand their Counter Terrorism (NAP) as unequivocal development choices including their access to commitment to root out terrorism from the basic needs: food, education, health, housing country (see Box 1). The first ever National etc. At the same time a robust alternative to the Internal Security Policy (NISP) was earlier terrorists’ authoritarian vision and modus promulgated on 25 February 2014 to protect operandi has to be provided to the people to national interests of Pakistan by addressing enable them make a rational choice for their critical security issues as well as concerns of future and the future generations to come. the nation (see Annex I). It is based upon This, a priori, requires, apart from state security principles of mutual inclusiveness and apparatus, the use of political, diplomatic, integration of all national efforts and includes financial, governance and criminal three elements: (i) dialogue with all administration justice system to combat, stakeholders, (ii) isolation of terrorists from disrupt and destroy the terrorist networks, their their support systems, and, iii) enhancing radical ideology and evolving threats. It is, as deterrence and capacity of the security such, imperative that instead of piecemeal, apparatus to neutralize the threats to internal reactive, ad-hoc and sub-optimal interventions, security of Pakistan. The Policy aims at a coherent strategy for effective establishing the writ of the state; protect life, implementation of counter terrorism action plan property and fundamental rights of the citizens; is formulated through inclusive, holistic and promote pluralism, freedom, democracy and system-wide approach. culture of tolerance; prevent threats to internal

** Express Tribune. A year on, 2,763 militants killed in Operation Zarb-e-Azb: ISPR. By Web Desk Published: June 13, 2015. The article can be accessed through the following link: http://tribune.com.pk/story/903004/a-year-on-2763-militants-killed-in-operation-zarb-e-azb-ispr/

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 6 Section I: Context Box 1 National Action Plan on Counter-Terrorism

The 20-point National Action Plan on counter-terrorism was announced by Prime Minister Nawaz Sharif in a televised address to the nation late Wednesday night following a day-long meeting of the heads of all parliamentary parties at the PM House. In his televised address, the Prime Minister said that the December 16 Peshawar school massacre has drawn a line between ‘coward’ terrorists and the Pakistani nation. “A line has been drawn. On one side are coward terrorists and on the side stands the whole nation,” he said.

The Prime Minister detailed 20 points of terrorism action plan in speech which are as follows: 1. Implementation of death sentence of those convicted in cases of terrorism. 2. Special trial courts under the supervision of Army. The duration of these courts would be two years. 3. Militant outfits and armed gangs will not be allowed to operate in the country. 4. NACTA, the anti-terrorism institution will be strengthened. 5. Strict action against the literature, newspapers and magazines promoting hatred, decapitation, extremism, sectarianism and intolerance. 6. All funding sources of terrorists and terrorist outfits will be frozen. 7. The defunct outfits will not be allowed to operate under any other name. 8. Establishing and deploying a dedicated counter-terrorism force. 9. End to religious extremism and protection of minorities will be ensured. 10. Registration and regulation of religious seminaries. 11. Ban on glorification of terrorists and terrorist organisations through print and electronic media. 12. Administrative and development reforms in FATA with immediate focus on repatriation of IDPs. 13. Communication network of terrorists will be dismantled completely. 14. Concrete measures against promotion of terrorism through internet and social media. 15. No room will be left for the extremism in any part of the country. 16. Ongoing operation in Karachi will be taken to its logical end. 17. Balochistan government to be fully empowered for political reconciliation with complete ownership by all stakeholders. 18. Action against elements spreading sectarianism. 19. Formulation of a comprehensive policy to deal with the issue of Afghan refugees, beginning with registration of all refugees. 20. Reforms in criminal courts system to strengthen the anti-terrorism institutions including provincial CIDs.

Strategy to Combat Terrorism including Effective Implementation of National Action Plan S e c t i o n I I CHALLENGES 8 Chapter 5: The Revival Strategy: Industry the Leading Sector Section II CHALLENGES

n recent years, especially post 9/11, the against the state security apparatus, religious Iterrorist networks have progressively extremism, organized crime, ethnic cleansing, evolved moving away from centralized political separatism and have exacted a command and control structure and devastating impact on the safety and security predominant dependency on state sponsorship of Pakistanis. The porous borders and to operating as non-state actors. They have interconnected international systems - finance, diversified from the organized terrorism to the communication, transit- have extended the splinter groups and/or the individuals and reach of terrorists to every corner of the globe affiliates using both physical and cyber space not to speak of their extensive operational and technologies. Terrorist acts cover a wide tentacles within the boundaries of individual spectrum including hard core terrorism, attacks countries. (See Box 2 for major challenges.)

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Section II: Challenges 9

Box 2 Challenges • Terrorist networks have become more dispersed and decentralized with more reliance on smaller outfits inspired by a common ideology. • Despite severe and effective military action to de-capacitate the terrorist organizations and destroy their safe havens and command and control structures, the terrorists’ threats continue to loom large and find not too infrequent expression in almost all the provinces of Pakistan; • In the extra-territorial context, Afghanistan’s lack of operational capacity to root out terrorist strongholds from the country continues to pose imminent threat of terrorism and organized crime. The recent proliferation of "Al Daesh" in Afghanistan and their conflict with Afghan Taliban to gain the space is a cause of serious concern; • Some of the so called friendly countries and their citizens and faith based organizations, in the unbridled pursuit of propagating their version of Islam, continue to foment and finance the sectarian based ideology and establishments which invariably lead to religious extremism and acts of violence; • India's overt and covert support and sponsorship to terrorist activities inside Pakistan to destabilize the country and externally to demonize Pakistan as a safe haven and breeding ground for terrorists remains a major threat. • The social media and the Internet serve as potent tools for the terrorists to communicate and spread their perverse messages and ideology; muster support from the well wishers and those indoctrinated or persuaded by their ideology; and recruit, train and operate the personnel without risking personal contact; • Terrorists in the face of effective military action, are constantly changing their modus operandi and continue to seek support from transnational extremist entities, networks, and individuals for realizing their ideological ends; • The national consensus, resolve and commitment to eradicate terrorism after the 16 December 2014 deadliest terrorist attack on the Army Public School Peshawar killing 145 people (including 132 school children) needs to be sustained through credible and result oriented actions both on the military front as well as political front; • The rehabilitation of close to one million people forced to leave their homes in the wake of Zab-e-Azb; reconstruction of the infrastructure; and rejuvenation of the socio-economic activities pose a daunting challenge to the government which must be addressed through tangible political and financial commitments. The process which commenced as of 31 March 2015 should be completed earliest possible accompanied by participatory and inclusive socio-economic development interventions.

Strategy to Combat Terrorism including Effective Implementation of National Action Plan

Section III THE GUIDING PRINCIPLES 12 Chapter 5: The Revival Strategy: Industry the Leading Sector Section III THE GUIDING PRINCIPLES

errorism has lately assumed a very • Protect the life, property and dignity of the Tcomplex and multifaceted proportion. In citizens by revamping counter terrorism addition to the sufferings and afflictions in the architecture and pooling all the national shape of loss of innocent lives and diminution resources including legal instruments, law of livelihood assets and infrastructure, these enforcement, intelligence, military, political attacks are a direct assault on the fundamental and diplomatic capacities. human rights, values of democracy and rule of • Ensure fairness, justice and uniformity in law. As such, the, State must make use of all application of law to create and maintain its arsenal, might and power and deploy all the public trust and credibility; resources at its command, together with the • Not to condone, either due to religious or active cooperation of the citizens, to prevent political expediency or personality cult, acts and eradicate terrorist activities. At the same of terrorism or deliberate targeting of time, the possibility of abuse and innocent lives; indiscriminate use of power and resources has • Familiarize with the political, religious and to be prevented to safeguard the fundamental social beliefs of the terrorists to understand rights of the citizens and comply with the the motive for violent extremism and address canons of international law. A set of guidelines the root cause rather than dealing with the is imperative to reconcile the need for resolute symptom; and severe action against the terrorist and the • Develop effective and compelling counter protection of human rights and values of terrorism narrative to negate the perverse freedom and democracy: and radical terrorist ideology; • First and foremost, protect and safeguard • Develop the central unified institutional the integrity of the nation state of Pakistan as capacity and effective mechanism to design, fundamental imperative; implement and deliver high quality, effective • Ensure conformity to the constitutional and innovative counter terrorism action principles including protection of civil rights plans to prevent, curb and eradicate and civil liberties and at the same time terrorism; uphold the constitutional system to ensure rule of law and implement the writ of the • Ensure transparency in communicating with state; the citizens to elicit their buy-in;

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Section III: The Guiding Principles 13

• Provide adequate resources-human, financial • Initiate and implement compensatory policies and systemic to law enforcement agencies and safety net programs through targeted to effectively combat terrorism; interventions to help the affected population, • The use of security apparatus to fight IDPs, and the poor segments; terrorism to be accompanied by: appropriate • Prevent the terrorists from establishing safe policy and legislative frameworks; pluralist havens and deny them the financial, material and democratic institutions at local level; and manpower support from both inside the and, the context specific socio-economic country and outside. uplift program for sustainable development; Box 3 Methodology The Shahid Javed Burki Institute at NetSol in conjunction with the National School of Public Policy organized a two day high level "Policy Dialogue on Strategy for Effective Implementation of National Action Plan on Counter-terrorism: Strengthening Law Enforcement Capacity" on 8-9 May 2015 at NSPP main campus. In all 47 participants, representing the major stakeholders i.e., senior government officials, state security apparatus both military and civil, eminent citizens, private sector, academia and religious scholars attended and enriched the policy dialogue with their perspectives both on the etiology of terrorism and prescriptions to address the complex phenomenon of terrorism. In order to facilitate focused decision, BIPP and NSPP followed the following format and methodology:

• Background discussion papers were prepared around four important threads related to terrorism: 1. Building blocks of capacity development including policy and institutional dimensions; 2. Mobilizing and effectively employing resources for strengthening law enforcement function; 3. Monitoring and accountability mechanisms 4. Citizen-law enforcement interface and government-security organizations • The NSPP Syndicate work of early May 2015 on terrorism was also provided to the participants as background material;

Structure • Four Groups around the four threads were constituted for parallel sessions. The membership of these Groups was on a voluntary basis which selected their own leaders and rapporteurs; • The first day was devoted by the Groups to the etiology and diagnosis of the problem of terrorism; while the second half day to the prescription and recommendations. • For symmetry and uniformity in the conduct of Group work, an agreed template was followed by the Groups for presenting their recommendations; • Presentations by the Group leaders, embodying specific recommendations, were discussed in the Plenary for general consensus.

Strategy Formulation • Based on the proceedings and recommendations, a Report was prepared by BIPP in consultation with NSPP and Group Leaders. • The Report constituted the basis for BIPP to formulate the Strategy Document for implementation of National Action Plan and dealing with the complex phenomenon of terrorism.

Strategy to Combat Terrorism including Effective Implementation of National Action Plan

S e c t i o n I V THE STRATEGY 16 Chapter 5: The Revival Strategy: Industry the Leading Sector Section IV THE STRATEGY

errorism poses a serious threat to the and the future generations a peaceful and Tpeace and security of Pakistan and its prosperous Pakistan for the well being of the people. The country has been assiduously citizenry. While both NAP and NISP represent engaged, especially after 11 September, in a national consensus and resolve to root out war against terrorism which has put at gross terrorism, there is an urgent need to embark on peril the territorial integrity of Pakistan, the a strategy to ensure effective implementation of these frameworks; to prevent and eradicate security and safety of people and national terrorism in all its forms; to protect the lives and assets as well as the sustainability of the assets of the people; to rigorously pursue the livelihood assets of the people. This war has to terrorists including those associated with be fought, inter alia, on many fronts: through religious sectarianism, organized crime and effective military action to destroy the terrorists deliberate acts of violence; and, to establish and their infrastructure; through ideological comprehensive response mechanisms to deal offensive to produce a compelling narrative to with the terrorists attacks. counter the religiously distorted perverse vision of the terrorists (see Box 4); through diplomatic The strategy must address all the facets of efforts to isolate the terrorists form their terrorism; elicit collective effort and commitment fully involving the citizens and the external nexus and supporters and disrupt interest groups, the non-state and state actors, their operations mounted directly or indirectly the civil and military establishments, the media from foreign soils; through political mediation and academia and the politicians and civil to integrate the alienated and estranged servants at the local, sub-national and national segments in the decision processes; and levels; and pool totality of intellectual, physical, through socio-economic interventions to social and financial resources to counter the ensure sustainable development of the nefarious designs and machinations of the historically neglected tribal areas and other terrorists and their supporters. The orthodox and hackneyed ways of dealing with the deprived pockets and segments of the country. terrorists will not yield sustainable results; a Indeed the destiny of the country hinges upon paradigm shift both at the policy level as well how effectively and collectively Pakistanis, as a as operational level will be required to nation, join hands and heads together to effectively counter terrorism. combat this threat and create for themselves

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Section IV: The Strategy 17

Box 4 A Counter-Narrative The terrorists construct and draw strength of their narrative from strong traditions, historical heritage and Dars-e-Nizami curriculum rich in philosophy; logic; Greek, Roman and Islamic ideologies; laws of rhetoric and speech; as well as religion. Their narrative, despite a perverse ideology and distorted vision, does embody internal energy and persuasive power to attract people, especially the misguided youth to their fold who perceive the existing social, political and economic order characterized by injustice, alienation, disempowerment, tyranny and oppression.

The challenge for counter narrative, therefore, is to come up with the level of rigor, morality, evidence, knowledge and intellectual depth that surpasses and over-powers the Terrorists’ narrative based on radicalism, violence and militancy. It has to be extremely persuasive and convincing to fully satisfy the mental quest especially of the youth as to what the real "truth" and system of ideas, values and beliefs which the humanity in its entirety espouses. The counter-narrative must present a evidence as to allay the general sense of disempowerment and lack of engagement in establishing a just and fair socio-political and economic order.

In this connection, the commandments of the Holy Quran and the “Ahadiths” and character of Holy Prophet (PBUH) as a role model present a very authentic, potent, inspiring and convincing basis to construct the counter narrative. While tyranny and injustice were widely pervasive in the world, Islam brought with it a great deal of moral, intellectual, cultural, political, economic and social revolution which elicited best in man and suppressed the worst. This revolution developed and nurtured the moral excellence in the conduct of day to day affairs and in the inter-personal and inter-faith relationship. Deep sense of morality, character and brotherhood established an order which replaced chaos with harmony; bloodshed with peace; in-tolerance with tolerance; barbarity with humanism; wickedness with piety; tyranny with justice; ignorance with constant quest for knowledge; and selfishness with selflessness. Some of the elements of this narrative thus could be:

• Islam as the religion of peace and "Etida'al"; • Universalism as signified by Allah being the sole Creator and Sovereign of the entire humanity; • Equality of human beings in terms of no superiority of an Arab over the non-Arab; white over the black; the superiority is only by virtue of righteousness, character, conduct and Taqwa; • Tolerance and peaceful co-existence with those of other religions and minorities; and non- compulsiveness and non-coercion in religion; • The sanctity of human life in that killing of one human being is tantamount to killing the entire humanity; and saving one life is like saving the whole humanity; • Spreading mischief in the land is like slewing the whole humanity; and condemnation of groups and mischief mongers causing disorder in the society; • Supremacy of the Constitutional principles: 1. Supremacy of the law of the land and rule of law; 2. Respect for fundamental human rights including those of children, women, minorities and those pertaining to religion, worship and deprived segments; 3. State's responsibility to address militancy and violence; 4. Security and safety of the person and property of citizens;

This counter-narrative needs to be articulated through a robust, empirical and scientific research involving socio-economic and ethno-political landscape. The Ministry of Religious Affairs in conjunction with the Provincial Governments; the reputed research and knowledge centers; the religious scholars; and the well renowned faith based organizations should take the lead in producing this counter narrative. The full and unflinching political ownership at the highest level along with citizens' inclusive buy-in are the key elements for the successful propagation of the counter narrative.

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 18 Section IV: The Strategy

This strategy attempts to serve the above grossly diluted in terms of the dispersal of the outlined purpose. It is fully anchored in the executive magisterial enforcement function National Internal Security Policy and the which massively debilitated the capacity of the National Action Plan on Counter-terrorism and state to enforce its writ and establish rule of benefits from a very rich and intensive policy law. dialogue involving eminent citizens, senior government and non-government officials, The increasing imbalance in the civil-military high ranking civil and military personnel, relationship especially on the issues reputed representative of media and concerning the national security, both at academia, religious scholars and politicians decision making as well as institutional levels, and policy experts and development has further aggravated the situation. This practitioners. asymmetry finds significant expression in the squeezing of space for civilian LEAs to carry 1. Strategic Pillars and Action Areas out their mandate and in the progressive The strategy is constructed around 5 Pillars: denudation of their operational capability over Hard Core Terrorism; Religions Extremism and the years. This historical imbalance, which has Militancy; Organized Crime; Technology, been primarily engendered by the weakness of Training and Work Force Development; and, the successive political leaderships, the Law Enforcement. Each pillar comprises four fragility of the political institutions, inaction by sets of action areas around: (a) Policy and the government on vital security issues and the Institutional Development; (b) Monitoring and poor governance of civilian security apparatus, Accountability; (c) State-Citizen Synergy and created a vacuum which was filled by the (d) Resource Mobilization which are briefly military establishment. The military readily described below: assumed ascendancy not only in setting the policy agenda for external and internal security (a) Policy and Institutional Development but also charting the course for Pakistan's external relations especially with the super The policy process and institutional powers and country's neighbours. While this mechanisms in Pakistan to combat terrorism might have been expedient and ad hoc are characterized by fragmentation and response to the huge policy and institutional incoherence. In the past 60 years, ad hoc, void, it cannot be a sustainable solution from a insecurity-induced desire and myopic vision to long term perspective given the scale, size and transform the institutions led to the magnitude of the security and terrorism related replacement of existing institutions or problems. This imbalance and asymmetry has establishing the parallel institutions. In the to be rectified by consciously embarking on the process, institutions, especially those of policy processes and institutional mechanisms executive administration and criminal justice with the civilian authorities taking the system, have been severely compromised or

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Section IV: The Strategy 19 leadership. This, a priori, entails strengthening terrorism. The bottlenecks and problematic the democratic institutions; good governance; issues including structural and design and respect for professionalism in the modification, respective roles and functioning of the civilian LEAs on the one responsibilities of the civilian and military hand, and, on the other a realization and counter terrorism agencies, their relationship commitment by the military to the effect that and interaction both horizontal and vertical, the after achieving the short term gains by use of modus operandi and standardized operating force, ultimately, civilian led, peace and procedures, the decision and consultation development driven and consultative process processes etc., need to be tabled, discussed is much more viable and workable option to and resolved in a transparent manner in the finding sustainable solutions. best national interest to endow and vest NACTA with necessary financial and functional In the wake of proliferation of terrorist attacks, autonomy. There is an extensive and elaborate the government has since initiated serious set of agencies and institutions involved in efforts to establish mechanisms for improved combating terrorism as is evident from the coordination among the agencies involved in chart. There has to be a central coordination countering terrorism. In March 2013, a authority to synergize and maximize the National Counter-terrorism Authority (NACTA) efficiency and effectiveness of their operations was established to devise counter terrorism to achieve sustainable results. NACTA strategy and to help integrate and coordinate provides that forum and mechanism. counter-terrorism efforts among various agencies. NACTA is governed by a Board In All Parties Conference (APC) of 2 January headed by the Prime Minister and comprising a 2015, the political and military leadership of number of federal and provincial ministers and Pakistan unanimously agreed to the formation heads of all law enforcement and intelligence of military courts to expedite disposal of agencies. However, this body which lies at the terrorism related cases through amendment in heart of NISP and NAP implementation and the Constitution, the Protection of Pakistan Act was designed to rectify the lack of coordination (2014), The Navy Ordinance (1961), The Air and fragmentation of effort in the fight against Force Act (1953) and The Army Act (1952). terrorism, continues to remain functionally The establishment of the Special Trial Courts ineffective owing to aforesaid civil-military with two years duration under the supervision relationship asymmetry as well as financial, of Army for speedy trial of the terrorists as an structural and procedural problems. Given the extra-ordinary measure seems justifiable in the urgency, enormity and complexity of the multi- short run given the unprecedented threat and faceted terrorism problem, it is a matter of risk to the territorial integrity of Pakistan. But absolute high priority that NACTA is made fully equally important, if not more, is the post functional as apex national authority to combat special trial courts scenario. This palpably

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 20 Section IV: The Strategy

Chart 2 Structure of Counter-Terrorism Agencies

Counter-Terrorism Federal Government Center

Inter-Service NACTA Gilgit Baltistan Gilgat-Baltistan Intelligence Government Police

Intelligence Bureau Azad Kashmir Azad Kashmir Government Police Ministry of Interior

Punjab Police FATA: Levies and Khasadars Sindh Police Four Provincial Governments Frontier Corps: KPK Police Pakistan Rangers, Khyber Punjab Rangers, Pakhtunkhwa FC, Sindh Rangers Balichistan FC Balochistan Police

Pakistan Maritime Frontier Ministry of Anti-Narcotics Security Agency Constabulary Narcotics Control Foce

Capital Territory National Highway Gilgit-Baltistan Ministry of Police and Motorway Scouts Communication (Islamabad) Police

National Federal Ministry of Airport Security Counterterrorism Investigating Defense Force Authority Agency

National Police Ministry of Railway Police Bureau Railways

National Public National Police Safety Management Commission Board

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Section IV: The Strategy 21 brings out the need to strengthen the normal In the larger policy and institutional context, the judicial system and anti-terrorism institutions; capacity issues within the individual agencies reform the criminal courts system; explore the remain a major challenge including institutional possibility of restoring the executive preparedness, early warning and information magistracy for conflict prevention and and intelligence systems, policy and resolution, interest mediation and above all operational coordination, unified system-wide enforcement of writ of the state to address the perspective on terror and related crimes problem on a sustainable basis. prevention etc. Effective law enforcement and establishment of rule of law, a priori, entail The Government, in January 2015, also empowered, adequately provided (systems, formed Provincial Apex Committees (PACs) in tools and equipment etc.) and functional all the provinces to monitor security, refer institutions with competent, motivated and cases of terror suspects to the Federal committed personnel to fight terrorism; mitigate Government and implement the National the damage of terrorist attacks, ensure speedy Action Plan (NAP). The Committees comprise recovery of the victims and ultimately succeed both military and political leadership headed by in ridding the society of this menace. the Provincial Chief Ministers. The whole hearted participation of the political and military Pakistan has witnessed haphazard leadership and complete harmony among all proliferation of legislation without being intelligence and law enforcement agencies at anchored in a consolidated and every level constitute the conditions precedent comprehensive policy framework, especially in for the success of the Apex Committees. It may the field of counter-terrorism. There is thus a be added that out of 20-points NAP, only 5- need for a comprehensive legislative package points are the Federal component while 15- on national security that would revise the points pertain to the provincial component. relevant existing laws and provide new This in itself speaks volumes of the role of the legislation for areas inadequately addressed at Provincial Governments and the Apex present. This legislative package must be Committees in eliminating extremism and evolved through an inclusive approach terrorism at the grass roots level. However, comprising both immediate measures to these Apex Committees have not been able to counter the threat faced by Pakistan, and contribute significantly to the NAP longer term measures aimed at improving the implementation despite meeting off and on. underlying criminal justice system and de- Instead, they have drawn criticism in terms of radicalization initiatives. their ‘extended role’ and functioning as parallel governments in the absence of clearly defined There is already a considerable compendium rules of engagement. of existing policy, legal and regulatory frameworks which as immediate measure and

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 22 Section IV: The Strategy with the necessary adjustments, constitute a character of children to prevent their drift into robust basis to deal with terrorism and terrorism, require utmost state and societal associated crimes. Of particular attention and attention. A holistic policy and institutional enforcement action are policies on freezing framework must also incorporate within it the and controlling all funding sources of terrorists spatial dimension especially the tribal belt and terror outfits; severe action against militant adjoining Pakistan and Afghanistan which has and armed gangs; registration and regulatory been a safe haven and command and control frameworks for religious seminaries and centre of the terrorist organizations. The effective implementation of ban on glorification strategy must integrate a concept of "joint of terrorists and terrorist organizations and on action" not only in terms of military intervention spread of literature promoting hatred or but equally important in terms of socio- extremism. Law must not spare those economic development to emancipate the area irrespective of their political or religious clout from scourge of poverty, ignorance and who encourage militancy, extremism and alienation. hatred. (b) Monitoring and Accountability A list of the related laws is attached (see Annex Law enforcement is paralyzed in an II) which need to be studied to eliminate duality environment of mistrust and allegations of or inconsistency; to be enforced in conjunction; corruption, shadiness, misappropriation and and to be applied uniformly to deter, prevent politicization. An effective and transparent and inflict severe punishments on all those monitoring and accountability mechanism guilty of terrorism or abetting terrorism. There covering the three dimensions-inward, upward are also International Conventions and and downward-is sine qua non to take care of Protocols most of which have been endorsed internal integrity of law enforcement apparatus and adopted by Pakistan. The government and help build an environment of trust for should fully benefit from these and develop dealing with crime and terrorism. concrete vertical linkages to further enhance the efficacy of the national legal and policy The strategy must provide for transparent frameworks. A list of the selected international internal monitoring. This could be easily Conventions and Protocols is attached (see achieved if senior positions especially the Annex III). heads of law enforcement organizations are appointed on merit and are allowed to operate At the same time, important issues like independently as per the relevant laws and development of the community based internal rules and regulations. With the ever- institutions; the role of education system changing appointments, transfers and political especially the Madrissahs; the rapid expansion maneuvering, not much is left by means of of youth and their absorption in the labour internal monitoring within the hierarchy of law market; and the role of families in nurturing the

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Section IV: The Strategy 23 enforcement; contrarily it badly damages law bringing the performance of law enforcers into enforcement aggencies’ credibility and limelight; and obliging them to respond to capability to perform its core functions of queries publically and perform their duties in detecting and preventing crime. transparent manner. However, politicization in the garb of legislative oversight needs to be As earlier mentioned, the recently established effectively checked. For law enforcers to fight NACTA has the mandate to coordinate all law and curb terrorism, it is necessary that enforcement institutions and can perform the legislative oversight is exercised judiciously, overall monitoring of the law enforcement meaningfully, and in a manner targeted toward function. At the same time, conscious effort crime prevention and detection. needs to be made to inculcate a sense of accountability in the state security apparatus to The judicial accountability again, as a very the formal oversight mechanisms and to the important component of criminal justice civil society including their duty to protect the system, has stake in ensuring reduction in citizens as well human rights. crime and prevention of terrorism. It has over the years been reduced to minimal with the The existing executive monitoring mechanisms result that the law enforcement apparatus should also be re-activated. The Home faces a handicap in enforcing the laws; Departments in all provinces have assumed a becomes directionless; and is confronted with passive role in holding law enforcement operational confusion in the use of its own apparatus accountable to executive authority. powers and authorities. The strategy must Home Secretary’s review function is hardly incorporate judicial oversight in ensuring a ever used in matters like deaths in custody and direction and proper procedure for encounters, increasing crime rate, excesses of enforcement of law and prevention of terrorism law enforcement apparatus, jails as breeding grounds of criminals and terrorists or The role of non-State Institutions including the increasing incidents of terrorism. While, this is freedom of press and electronic media with the situation at the provincial level, there is a appropriate standards for responsible reporting huge dearth of executive accountability by journalists serves as a potent monitoring authority over law enforcement apparatus at and accountability mechanism. However, the district level. Sound and strong, effective media, despite being independent and free, executive accountability mechanisms over law has to exercise caution and restraint and act enforcement apparatus like restoration of executive magistracy must be present at the responsibly keeping in view the urgency and sub-divisional and district levels in order for law dictates of effectively combating terrorism. It is enforcement agencies to achieve results in particularly so with reference to the much curbing terrorism. trumpeted issue of terrorists' narrative and need for the counter-narrative. The space The legislative oversight is also a powerful afforded to the terrorist’s narrative may be mode of ensuring law enforcement results; justifiable from the journalistic standpoint but

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 24 Section IV: The Strategy needs to be prudently weighed from a higher especially concerning law enforcement and ethical plain in terms of the practical impact of establishing rule of law has not received much its role. A hyper-active and dramatic media is attention in Pakistan. The "general public" has likely to intimidate and stifle the initiative and historically been treated as passive recipient or actions of a nation state at the forefront of object: a shapeless, forceless, aimless blob of global counter-terrorism effort. There are many flesh and blood with no defined rights, duties and equality of status. This greatly hampers examples in the contemporary world even of law enforcement especially in the face of a those countries which claim to be the differential application of law and its process. champions of press freedom where the The general perception is that those who wield national security needs are integrated and power because of money, might or authority enforced and even voluntarily adhered to by tend to get away even for major violations and the media. The Pakistani media has to be crimes while the rights of a common citizen are sensitized and at the same time itself evolve a flouted ad nauseum. This leads to alienation of code of practice, ethics and conduct which citizens and huge credibility gap between the allows the state to effectively carry out its law enforcement agencies and citizens. responsibility to combat terrorism without being unnecessarily put to media trial. Against this backdrop, it is essential to seek citizens' full confidence, commitment and involvement from agenda setting through The Human Rights Organizations, NGOs and design and implementation stages to the CSOs could also play key role in the promotion monitoring and evaluation of the results to of good governance and rule of law thereby combat terrorism. Top-down techno- contributing to well targeted and orchestrated bureaucratic processes alone are not enough action against terrorists. A transparency and to achieve adequate, equitable and accountability portal could also be instituted to sustainable results. The inclusiveness and allow the citizens as a single point of reference participation of the citizens in designing the how the state security apparatus is performing policy and legislative frameworks as well as to control and curb crime and terrorism. operational and implementation measures secures their buy-in is essential as it ensures (c) State-citizens synergy that (a) the grant of the extra ordinary national security powers against acts of terrorism is a The citizens-law enforcement interface on the conscious collective decision; (b) the use of one hand and government-security apparatus extra ordinary powers against groups of foreign relations on the other are of crucial significance belligerents and the local terrorists is in dealing with the complexity and scale of the legitimate; (c) the danger of militarizing the phenomena of terrorism. The vital importance country as well as abuse of these powers to of the citizens' engagement and the key role the detriment of the citizens can be eliminated; which they are capable of playing in the (d) the fundamental constitutional rights upstream and downstream processes, including those of minorities and marginalized

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Section IV: The Strategy 25 groups will be respected and protected; and (e) needs to be changed as this labeling strips they have a duty to actively play their role in the citizens of their rights and duties as assisting the government to combat terrorism. individuals and creates an anonymous right-less mass with no clear identities and It may also be pointed out that while the social status. educated classes of the society have some • The social construct of law enforcers as basic knowledge of Islamic ideology and more equal than the fellow citizens which Islam’s sectarian profile, it does not prepare seeps deep in the functioning of law them for standing up against the “METS” enforcers making them oblivious of their (militancy, extremism, terrorism and responsibility toward and accountability to sectarianism) phenomenon. This is especially the people, has to be transformed to "duty true for those directly involved in the War on to serve and protect" and "responsive Terror (WOT) on behalf of the state. The need toward citizens" motto. for capacity building of members of the civil • Mechanisms and forums to involve the services, armed forces, LEAs, civic society, citizens should be institutionalized to create policy makers and parliaments in this regard synergy between the state's security and cannot be over emphasized. law enforcement apparatus and the As for the government-security apparatus citizens. A participatory approach and relationship, as earlier stated it has all along systematic communication deepens a been characterized by asymmetry with regards culture of regular citizen-government to both the civilian and military security interaction and facilitates an open and organizations. The weakness and fragility of inclusive national dialogue on policy political institutions and army's frequent options; helps manage expectations; excursions into the political arena are primarily promotes transparency and accountability; responsible for this imbalance. The civilian and fosters a culture of tolerance, co- security machinery especially the police has existence as opposed to extremism. also suffered over the years because of • Religious extremism located in the Pashtun massive politicization thus weakening its and Saraiki belts also have ethnic command and control structure; compromising dimension of identity politics, which need to the quality ofits HR; and, eroding public be discussed and taken into account while confidence in it as just, fair and efficient making decisions about dealing with them. institution. There are other vitally important issues which must be addressed to maximize •The rural-urban differential and the state-citizen synergy in all out effort against distinctiveness in violence and extremisms, terrorism, militancy and religious extremism: of which the law enforcement agencies • The perspective of the governance and law were at times oblivious, needs to be tackled enforcement agencies to view the with a different set of strategy and modus population they serve as the general public operandi.

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 26 Section IV: The Strategy

• The grievance narrative in Karachi and on the greatest benefits to the citizens. Baluchistan, and to a lesser extent in the Quantifying the probability of threat and its Saraiki and Hazara belts as well as tribal gravity, as such, should constitute the basis for areas find a large, main-stream receptive resource allocation. audience. This has to be countered with tangible inclusive actions at the politico- Moreover, in pursuit of its ambitious socio- economic front. economic development agenda and mega development projects, government, at times, (d) Resource Mobilization opts for budgetary reductions and in the Adequate resources and budgetary process, the law enforcement function faces a commitments are essential to counter terrorism corresponding crunch. A minimum threshold and reduce Pakistan's vulnerability to terrorist needs to be prescribed for this sector's attack. In fact, the magnitude of threat posed financing every year based, inter alia, on the by terrorism requires out-of-box thinking to evolving law and order challenges including mobilize sufficient resources on a strategic those posed by terrorism. and sustainable bases; it entails looking beyond the traditional public financing. The Community policing is not a novel idea and has efficient use of existing resources could also been tested and tried in many countries. The make a visible difference in the performance of Citizens-Police Liaison Committee (CPLC) law enforcement agencies against terrorism. model adopted in Karachi also provides some In recent years funding for law enforcement in valuable insights into how such model can all forms: purchase of equipment and vehicles, work in Pakistan. More recently, some of the gear and weapons, buildings, computers and private/public housing colonies have software has taken a quantum leap when developed neighborhood watch initiatives. compared with the past many years. However, There is a need to support and replicate such the quality of service has not substantially initiatives at a wider scale so as to ensure that improved. One of the key reasons is the lack of respective communities take an active role in effective utilization of available resource which preventing crime and reporting suspicious is lost through pilferage, waste and corruption activities and characters who are likely to while a significant part, instead of augmenting engage or abet terrorism. This would take the law enforcement function, is allocated to undue burden off the police force and other the protective protocol duties and privileges. crime-fighting agencies and help avail There is, therefore, a dire need to ensure, on complementary resources. the one hand, efficient and transparent utilization of resources and, on the other, In the realm of curbing terrorism, intangible accountable and need based allocation with resources such as linkages in and trust of priority on maximizing the reduction in community, matter more than ever. Many a vulnerability to terrorist attacks and keeping all crimes are prevented and reported prior to conceivable threats at the minimal level based being committed, if law enforcement apparatus

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Section IV: The Strategy 27 is viewed as a part of the local community. In suggests that any performance-incentive addition, utilizing resources and offices to bring alignment can substantially improve the the community together, to strengthen social performance of public sector agencies. bonds and utilize the social capital in fighting Government of Punjab for instance has crime and terrorism can be an effective recently undertaken a pilot to reward excise strategy for law enforcement. Community level and taxation officials, resulting in improved linkages also provide an informal system of collection of revenues. Similarly Federal Board checks and balances against excesses of Revenue has recently amended some of its committed by law enforcement apparatus. It reward rules to ensure that performance is duly also serves to integrate larger social recognized and rewarded. There is a need to community in the fight against crime and scale up such efforts and ensure that law terrorism. enforcement agencies personnel have a fair reward for improving their performance and The possibility of cooperating with the private per unit productivity. sector for resource mobilization holds enormous potential and should be actively In recent years, a number of international, explored. This his has two dimensions. Firstly multilateral and bilateral donors have taken many fiscal crimes create parallel economies, interest in financing the anti-terrorism efforts and foment illicit financing, money laundering and upgrading the law enforcement sector. and tax evasion. Terrorist organizations most These resources could be accessed through benefit from such financing. Secondly, such effective coordination and synergy for activities often happen at the expense of preparing an integrated law enforcement legitimate tax-compliant industries and sectors. sector development plan. Many a times, these sectors try to work with government in addressing market distortions 2. Pakistam at the Forefront of WoT so as to create level playing field for legitimate There is an additional aspects which has not businesses. There is a need to formalize and been fully projected and propagated so far to encourage such arrangements to seek the world i.e., the extra-ordinary role of additional resources and support to fight such Pakistan as a front-line country in fighting war crimes and terrorism. on terror to save the entire world from this Lack of incentives and low pay packages is lethal menace. Pakistan's consistent efforts also a problem not just limited to law and huge sacrifices indeed have not been enforcement agencies but also the public recognized nor appreciated by the world at sector at large. In the absence of any incentive, large. Instead of being apologetic and the law enforcement officials tend to under- defensive, Pakistan should speak from point of perform, dragging down the overall strength and high moral ground and organizational performance. Evidence demonstrate to the world (a) the successes it

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 28 Section IV: The Strategy has achieved; (b) its operational efficacy and terrorists including the leadership, excellence in combating terrorism; (c) its command formations and foot soldiers; experiential first hand learning of what worked • To destroy the safe havens, sanctuaries and and what did not work against the terrorist; and networks of the terrorists and deny them the above all (d) the need to understand the root ability to re-establish and access these; causes including socio-cultural and • To establish rule of law and ensure its anthropological aspects to eradicate terrorism. uniform application without succumbing to Pakistan's experience could be of tremendous religious or political expediency; assistance to the rest of the world and • To strengthen security of the key especially countries confronting terrorism and installations and likely terrorist targets thus religious extremism. deterring the terrorists from their wanton acts; 3. Vision • To intensify fight against the organized To prevent and eradicate terrorism in all its crime connected with terrorism including forms and manifestations to make Pakistan money laundering, illicit financing, drug and safe and secure; uphold liberty and dignity of arms smuggling, human trafficking etc., with the citizens; and pursue people-centered and a view to effectively curbing and controlling rights-based development approach for the their incidence; well being of all. • To squeeze and terminate funding, including 4. Mission domestic and foreign resources, of terrorist activities either in the name of religion or To protect the citizens, their assets and the radical ideology for which the use of critical infrastructure from terrorism; mitigate diplomatic channels and international and degrade acts of terrorism in the short term cooperation is absolute imperative. by denying the militants to resurrect and reorganize; and, in the long term, through the b) Long-term instruments of good governance and rule of • To establish legislative, policy and planning law, establish a tolerant and enlightened frameworks along with the good society to eliminate future recurrence of governance to establish a free, empowered, incidence of violence, militancy and terrorism. enlightened and tolerant society living

5. Objectives harmoniously and believing in co-existence; a) Short-Term: • To establish and promote local pluralist and democratic institutions capable of giving • To make full use of all mechanisms and people the voice; aggregating their instruments of state power and security preferences; and responding to their needs apparatus to eradicate, kill or capture the

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Section IV: The Strategy 29

in a responsible and responsive manner; • To empower politically, economically, socially • To develop people-centered, needs based and culturally the citizens including the social and economic development marginalized groups, women and youth to programmes through inclusive and exercise and expand their choices with participatory process and ensure equitable freedom and dignity. access of all to basic social services;

Chart 3 Strategy for Effective Implementation of National Action Plan on Counter-Terrorism: Strengthening Law Enforcement Capacity

HARD CORE TERRORISM

Policy and Monitoring and Institutional Accountability Development

ORGANIZED RELIGIOUS CRIME EXTREMISM Resource State-Citizen Mobilisation Synergy Strategy

TECHNOLOGY, TRAINING, WORKFORCE DEVELOPMENT

LAW ENFORCEMENT

Strategy to Combat Terrorism including Effective Implementation of National Action Plan

S e c t i o n V STRATEGIC PILLARS Pillar I: Hard Core Terrorism Pillar 2: Religious Extremism and Militancy Pillar 3: Organized Crime Pillar 4: Technology, Training and Workforce Development Pillar 5: Law Enforcement

While the recommendations go much beyond the scope of National Action Plan, they do also refer in the last column of the Strategy Matrix to address the specific action points envisaged under NAP

The Number of Recommendations by Strategic Pillars and Action Areas

Policy and Citizen/ Monitoring and Resource Strategic Pillars Institutional Government Total Accountability Mobilization Development Synergy

Pillar I: Hard Core Terrorism 26 8 3 3 40

Pillar 2: Religious Extremism and Militancy 12 7 4 4 27

Pillar 3: Organized Crime 6 4 0 3 13

Pillar 4: Technology, Training and 12 6 3 3 24 Workforce Development Pillar 5: Law Enforcement 16 8 3 2 29 Total 72 33 13 15 133 Strategic Pillar 1 Hard Core Terrorism

Hard core terrorism involves the deliberate use of unlawful violence or threat of unlawful violence to inculcate fear; intended to coerce or to intimidate governments or societies in the pursuit of goals that are generally political, religious, or ideological. This includes but not limited to the activities such as: (a) biological terrorism or bioterrorism using the weapons of biological warfare; (b) chemical terrorism using the chemical agents of chemical warfare to undermine the personal security of citizens; (c) cyber-terrorism for assault on electronic communication networks; (d) narcoterrorism to finance terrorist activities by participation in the drug trade and trafficking; and (e) nuclear terrorism using nuclear device by a terrorist organization to cause massive devastation or using (or threat to use) fissionable radioactive materials for the purpose or assaulting the nuclear power plants, research and development centers. Section V: Strategic Pillars 33 . f e d s o h

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Strategy to Combat Terrorism including Effective Implementation of National Action Plan 34 Section V: Strategic Pillars

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m t r r r o g n i c g r e A e s m n x i - h h h h h n t r c r t e n y a i e P a e e e i e e o R N E E t N M S T a r T T r T t T t e e i l u n i c p d w k f i . h . v e . . i . o ...... r a t . . a p p o c u l e i e a r r 4 n 5 o r p 6 s 7 n 8 r 9 0 1 2 3 s 4 o e 5 6 t o o o t h m 1 e 1 g p o 1 e 1 u 1 p 1 t 2 2 2 i 2 e 2 b s b 2 s m 2 c S P

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Chapter 5: The Revival Strategy: Industry the Leading Sector 37

Strategic Pillar 2 Religious Extremism and Militancy

Religious Extremism is generally described as the strong ideological commitment of people who – for reasons they themselves deem religious – commit, promote or support purposely hurtful, violent or destructive acts against others. It stems from deeply embedded theological, historical, political, social and psychological roots and perspectives passionately espoused by its adherents. Certain system of ideas and beliefs characterise religious extremists across a variety of religious traditions. In recent times, the worst manifestations of religious militancy have involved some combination of the following: - Idealisation of some past era combined with the belief that the world has gone awry; – Declared certainty of the correctness of one’s religious vision; –Complete unwillingness to compromise with those who disagree; – Powerful denunciation of people with different lifestyles, especially when they involve and espouse liberal values; –Devaluation of events in this world and an intense focus on life after death; – Routine acceptance of the desired ends as justification for unsavoury means; – Adoption of numerous defensive methods for avoiding serious encounters with conflicting systems of belief and their adherents; – Dehumanising imagery of non-believers and religious outgroups, Militancy is the state or condition of being combative, prone to be violent or disposed to fight and generally engenders from perceived discord between the interests of militants and the state. It is (a) grievance-motivated in terms of a violent protest to press demand for change, (b) adversarial in the sense that its targets are intransigent adversaries, to be pressured and if possible defeated by means of struggle , (c) confrontational in the sense that, rather than avoiding conflict and seeking accommodation and compromise, it seeks to initiate or intensify conflict and (d) collectively carried in that it is not, or at least not in the typical cases, performed by individuals acting alone, but by participants in socio- political struggles, acting in concert with their fellow insurgents

The State of the Economy: From Survival to Revival Section V: Strategic Pillars 38 . s s . p a

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Strategy to Combat Terrorism including Effective Implementation of National Action Plan 39 Section V: Strategic Pillars

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Strategy to Combat Terrorism including Effective Implementation of National Action Plan Section V: Strategic Pillars 40

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e m p c

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e a v o s y a m n s u n s m v e o e e c g m r d v i i c y v e e c c a e i n u t i t o v v i s i a e t e n o e r i s h l o e l d t l v D a o n o e t f r a l r a

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: e e k n t l r u o r e n n n p s r t e o n i s t t r n 2 r a a a

t o e o i r a m t m x c s o a p e r r t z i e x

t o e

r m e i P r t t e l r f e t c l t r u s i y e d r h d a l m d s e n a e r e t

l a s l n c e i t n s n s n l i p e t n u

I o d l n o c i l j n e l u j u a n i

a t d n r l u a i e

o o c e n e a o P a o o d

n r e d i i

a l i r

d s c p t e c c t t a g a u i c f n a o c m g e m e v e a i r t n s a i t i i s i n t r s r l o - a u v

s t i i p u m g

n t e g c e d d u e e q e s

a h m a o o n e r y l m h a e a s s i e u r R E S D c A c T e r t r n s a s c T a n e r i c i o i . . . . . d e . . a p o n t l f w e e o d s g r a 2 3 i 4 c 5 x 6 n p 7 8 t e t o e o r h n n e i 3 i 3 d 3 e s 3 t e l m 3 r a t o 3 t 3 – S P

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 42 Chapter 5: The Revival Strategy: Industry the Leading Sector

Strategic Pillar 3 Organized Crime

Organised crimes comprise unlawful activities strategically and systematically undertaken by a group or a ring to commit fraud, extortion, blackmail illicit financing and loan- sharking, political corruption, land grabbing, drug and narcotics manufacture and sale, human trafficking, arms smuggling etc. The criminals and their organisations seek to elicit support from some of society`s powerful members — especially people in the judiciary, police forces, and legislature — through bribery, blackmail, and the cultivation of mutually dependent relationships with legitimate businesses. Thus they are integrated into lawful society, shielded by corrupted law officers and politicians — and legal counsels.

The State of the Economy: From Survival to Revival Section V: Strategic Pillars 43 s t i

g o

t n

n i i a o h l g c P n n a

r o o i n

a s o e K i u l t h t c n c

i n

g A

o n n l i c o i a k l t n a a a T r o c

i i . e t g 6 p a o 1 o l N n o s e l t e d , e d

A k o f d n n g s e t s n c e , E o a a i o o n e e e

i w i a t h L e d r l t h c t d d d t t l m n n

r h f e u i c a s

e n n n a d t t i a o y o u y o s t

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c s o i u v r u e c o b K e t s t l n m m m m m r r m o n m n x d p a o o y

i i i i i i l i o

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e y r , a n c f r a n l t s a e a .

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t n e m / n n r e e z v i t o i C G . s t y e i o l g e t c s r e x o f m i g u l s t e t t n n a r e o

e m n l b e e i y h s g t i c i o a e d r l t e r i d u a h l

t l s y d u c n e f e t b t f o j i j f c f n i g m

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i t n e i a i e g b b t a c e e o t h i o t e r r r b R h m A e e i a p e A i e o r l t z n f m k w m v v t n A i r x r h n i a i o k e k i d d h o n B i I h h E a o w g l w t l t u t t n o R i r u e r t l n m s e o i i c c e i e r d s t i i i L F F l T T n i A c c c u e r t u i o d o u a f f D h i n a d n C t i m f f r n i . t d . d . . . e d n e e e o a n o m i

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n s i i g t m n n e y r h e u i g o o h a e d e f t n t s n c s c e e y l e r l n m n l i i e o a i e a c d

l e a s i T n e r d r v t e l n n s c e o a a s c b v t w s e n c i g k i r n m i . t d o e d r m o u a a a a v l g g n e o e i j s e r m u a g u a r a o h 9 e r d i n e n r u r r l l r r a h n n e o t a e e h i e r r i a e e 3 b o a d e c n a t o p l f r h t p p p l p l p t f f T p r r S P D

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 44 Section V: Strategic Pillars f d y o e

e y s e f e n b a z o o i c

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i i r a p l k v e n a o z z a y

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n n e i n . . . . . v a l g g e e u v e r a 0 1 r 2 r 3 4 e t o r h h a n d 4 l 4 i t o 4 o t 4 i 4 t d S P

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Chapter 5: The Revival Strategy: Industry the Leading Sector 45

Strategic Pillar 4 Technology, Training and Workforce Development

The role of law enforcement services has evolved rapidly over the last two decades. Traditional approach to law enforcement entailed developing responsive capacity to address an incoming request coupled with some peripheral surveillance capability. In Pakistan, even that capacity was limited owing to poor training and work-force development, hackneyed and obsolete techniques and technology for investigation, cursory intelligence/information gathering and prosecution, meager resources and obsolete infrastructure, widely pervasive dysfunction in the entire gamut of human resource management of civilian law enforcement agencies including inefficient recruitment, performance-incentive misalignment and career growth. External environment, however, has totally transformed in recent times with new emerging threats to national security posed by terrorism, interweaving with a complex web of organized crime including kidnapping for ransom, drug trafficking, illegal arms trading, illicit financing etc. Similarly the need for illegal cross-border flow of finances and introduction of complicated tax regimes have given rise to more sophisticated fiscal crimes such as tax evasion and money laundering.

The State of the Economy: From Survival to Revival Section V: Strategic Pillars 46 l . a n d n A a n d i l T a n P m C a i

g r n A . c n g i

o N n i m n i e t f e e p h c t o t h

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n n a g r e u e i n t o e o o l d k m u a e o k g o r s l i n t e . t m r f n i a r . t p r c g r k n h u l u n a i u d a n r t n e a d o o n n d n o i s a o r l e f i d o c e o z t o n e g , e m n o i i n h i e c

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e e E c v f v o d a m h o a f p g s v r i r l i m i e b i u p a m d m r t L r o s t e m p n p s e e n e s e m u o s t q g i s m s l c e e l r t o s y i o o a d i o o o e l s h i r s v h y l l s l e i l t s e d r e u r p p t l v s a o t n w e u o i t N r n e i i T l A e c u e e e e u o f d . f g f e t r c i h o l o A r e a . b . p d r . v d v o s d l l v o o c o o g o e l r n e c s w c r 5 r E r l n 6 e n s e r 7 e r n e h o e o t e o h o o e u h e a n 4 p t m s L p a u l 4 i d a a t c f t r p p 4 t d p f t t a d S P D

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 47 Section V: Strategic Pillars

n a l P

n o i t c A

l a n o i t a N n o i t a z i l i b o M

e c r u o s e R y g r e n y S t

t n n e e m m p / n o n r l e e e z v v i t e o i D C G

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; l c h r f o s n s t g A s d e r u u s t

o o o n n e k e f i o d E e n n i o i t f i y l t c n e e k l f n e L h e

l s o a

r m k n o n s v ; l z o o s i n r a i n r n

d d o t a a s t c a t m p n i t o s u a o d e s e w n v a l s f f h a o r o c v n W r n e m i p t r o a . z e s

o e f h d m t i i t

r e n e t , d a h o o n y p r , p n r n n o o

i c c t t n n t i n t o i c , a p e k s i g o e i g o f t y s n t

a t t s d i l o

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n i l i c r g s n T i l u d s n g u t n i l i c s l n o f c e i n o g b n i o n p e e i n a t b a C e n a e a t o i i y i a t e e

i p r I i i a e t n r t r

u t t h w i a t h i k r ’ s m m b c n h s c

t a c i a u i i t r s t v l a e s e e s g l a n a o r i i f y g i i i c u d l f n l d t g c i o a t h h n d n l b c i p T n l i u n i f t a w m i e r i c f i b s n i e s e T u u O o T i l u t r c i , o e h c f r o i t e a e z t n n p . r m p s . j d . v a y o t e r i c o c i r e v t a 3 u d p o 4 e b f s r n 5 r u e o g h i p e c e o r h n 2 b a s f a p 2 b t o o e p r a c t 2 s i d c q b o M A l o g n m t n l e n r o e s i i r l l s o r d f a . e t h e g l t e o a m a y e e l n s e a o u c f l n i n - a m i b n t u e r p e a o h c , t i i e d i

c o e s m l n i s s i c d a a i i d i h g e e n r n i c T d o i r r i t t s m r e t n c t e s n b r b o a i a m e l e

i h o : i o o s a s r o r s u h t f o a t o g r c t r p , s t e d

4 s p f r c e o c r e

a c i . d . n y s y u c l t g n k n s i l a p p t a p e e e r s d r r e n r s e

e t t o a n n o o t r a e d g a s n i p b o t . p a o m a o e m d t c h e t n t a p f l e l e u m n u t r n o n g u l i l i e m w o t i l n v s h a s k o a w d I n i

u d t l h t i m r c i o g l t t n c

r t t r a n a e a y i f e e h d i f s e d s c d l p , a s l s

r n u t P r n i f r i c o o l v i d e i b t i t y n n

o o r n n f s e r

i o e e e d l d e m n l s n n w r

t a e / c d o a n o o e d i m o s d h n s b i i m r a e f d r b e p l r s d a n t n o

n a t p r s e e e g e o m r z u g i d o g r a t i t e e e i u n o o a e a r o d i r t e t m h n r h s e y l t e l l e d s v t e i u v t e n o l t e s e

l c l o t t e t P T n w s r T c e s e u r n e l i c e c f a P v i d i e I i l s t o e e h

e a l . g . v . f s d d e i l o u p l v

t l e g e r e a s v v l d r i S O x b 8 e r 9 e l r 0 e a r n x n e h o e o t o o o h n n e n e a r f 4 d m p A 4 i i s d l a s c w o 5 S d b p i t a e a t S P D

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Section V: Strategic Pillars 48 t n s r h e e t d r i d e e e e r w o v t r i u t , n e i m c t c s

i f f e a d a s s o o n o w

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Strategy to Combat Terrorism including Effective Implementation of National Action Plan Chapter 5: The Revival Strategy: Industry the Leading Sector 49

Strategic Pillar 5 Law Enforcement Law enforcement is dedicated to upholding and enforcing the laws and statutes that are currently in force and discovering, deterring, rehabilitating, or punishing persons who violate those laws and statutes. At its core, law enforcement seeks to achieve two goals: first, to prevent the occurrence of a crime; and second, to ensure suspected criminals are tried in a manner that is in compliance with the laws in vogue. Law enforcement agencies tend to be limited to operating within a specified jurisdiction and mandated area of operation. A number of agencies based on their specialization, expertise and organizational alignment are generally involved in carrying out the law enforcement which may lead to a complex cobweb of roles and relationships characterized by jurisdictional overlap, policy and institutional fragmentation, turf war and coordination dysfunction.

The law enforcement capacity development is sine qua non for establishing rule of law, enforcing the writ of the state and combating and curbing acts of terrorism, organized crime and militancy and religious extremism. The lack of coherent policy and legal frame works, inadequacy of robust institutional mechanisms, inadequate internal and external monitoring and accountability systems, paucity of resources and lack of synergy and credibility with the citizens tend to severely compromise the operational ability of the law enforcement agencies. There is a need to address all these bottlenecks to ensure that law enforcement capacity gets beefed up and government develops the necessary wherewithal to ensure rule of law and establish its writ to manage day-to-day crime, as also deal with the threat of terrorism in all its forms and manifestations.

The State of the Economy: From Survival to Revival Section V: Strategic Pillars 50 f s . . d t d s s o i s s

e k e p t - . n r a

n g o b e y t t c r h e t i s o t o i o h o r n t i r d r i n s s t i i t o i s t s i v t g

f d w c n .

t d a r n o . n h t a a w i n a l c u d s n . s b e a r i e o s g c u s e e c a o t o e r i o a P v i n n a y d n t n c a o r i i r l n j r f c s g m n t i r s o i r w a o e r c o n h i a e n n p r n r f a g r c a t t a m u n o

o n

t a s a g . o u o l f r f o o m o n r e e g e i l l r i o o i s c K i r u s f s i t a i r f d l o f P l e t f r o h . h a g t e t e a e n t t n n l g a t o n i l c o r n c e i e n n

a g r n g i e o l n n o o o t

n e t a t d e i n i i u i i o c t n g n n a c . A t r e t i n t i i g e i s s i o e s o n f t r i i l

n n r r s n y l u a d a o a n i n r o m c t m m a i o o i u g a n t a c c u u m r e n i a n s t s k . u i s o s s s l s i i t e k c s e i e o i i i r s s l n e r e g a a a n a i a e r r r a a n l n a r r a e i t n m a x n n i a a R D M Z D T i t s r B o i c t o t o o t a T s u a e c e d i i i i r r r E E E t a r . n . . u . . e . l m c l c . t g g g i . r i n r e r i g . . . m r g e 0 r r 3 f 4 b 5 6 p 8 o o e 1 a e 9 e u e e o 1 t 3 m f 7 e o a p 1 r 1 t o p m 1 c o 1 a s t 1 m 1 o l 1 s N o , s t f t t n s e y

n g a t A o n i o e h

n i n o t e i E t c e n i

r s o t m t r t d h s i L a u l n h n t l s y x u l u c n a t i a c t f t o / o a a i

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t n e l e o o e i k c m e t o e s s o s s t e n l e i r e g c o r z i i

s n t s s e o i r y v b e a i , A i h a g n t h i u t b

r i i i a o e n p i t u s h l d a s R E r r T r a l l t h c o o v m p a o i g A r e L . d e r r . d l i d o s p c e u s i a s r r e t 4 r r n p E a u 5 n o e d u a r u o e e o e h n 1 t p g a o L t t s c e p 1 c a s i p n c a r R , d l n r f i s o s y g e o a t o t e w e s r

r e s i s t c n w s f t t i i h i a e m s d y o l c l l h e l n t a s o r n n i f d s t l t l - e l n t n s e g a e i f t l n o n o e l n a d a r s f r i s o n f s e a b e A m c i n r r o h a c o

a a n e i m u i o e v a p e n e e v m t a . l u n o t i e a s r g i i ,

l d i c a i n t s n r c t n b h e d m t i p c e e c n e r e r s . n m i e A

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o a d s y s s e v a a g e e f i i e i e c o n e r h r i l o s c g y e E l d e i u d s i

n t r t h

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n u i t d a r s o f i d o n t u o s t n t i u

s p p s t r g b a a n a o l l e r n d y i o o n n r r t a n d g s e a

n f d d r o n c a b e a h c o n m a s e e s n n v c l e s a m t t f e i n e e o p p e i l t h n a r d

a i t e i p n s y t e e a t s a t e e n e s i d a f m e s n r d e h m a y e z c s o n n e / h e t n e n i e i a u r h e e v o e m a p e a s w r t i t . p t t n h o e o o r

w s i r i t u o r n l i t h c d n g o h r c g i l i s c h i u s n s e r s c a e i s s t t e o l e s e t e u i g C l e l t T e T n o i u f v g i a t a o v s c p i n i t p z t w e t n z o m b f b i h . s l d . l c v r . r a m i i e a e n r r i r d e v s a a e t t n u g n 2 b n n n 3 l e w e a 1 i e h t t i r o i i h h u o h e n d e n 1 t e v s p c s r i a m i s 1 a t f t e c t p a t c a 1 l i p h o d C G f f y e y e d o o c t l r e b r

n s c n e o n o t o o s g d l f r g t a k t u s e e i . s o

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a d c r s l L r e i e t

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i o e r s i l o v o l o i d i c d e p a a s i . e d e e i i y l c a h f n

e s o c h o i t y n n g a t s b e c j c o s f n t n a v g c v w n f i b n m i n i o e i h u i d n b n g r o s t t s n s u a a

n w l o a t a h i n n a n a t a a s m o i t r " o i a n

c y t e o o s a a e t m b l s r h R , r l e r e e f t n f e s s m s h e n e d t n a s b n

m s l i o t a n o e o o m n d r o n E m m u m o o h n n r n g l l f n o l t u u s m a t " n r e b o i w e s n e e e i e e o e i p e s e o e u T I P a p p a h l u o e e o t t t f p h m p v t n a r h c s z z h A z n e o n l t . u e o . r . d w i c r p t o s c i i s s i s c t s e f e o r c w t t i t e r a h 6 f q e c e 7 n x f f e s 8 n o E o i e i y y h i y c e r h r h e a m 2 o e c d l t r a p t s " c 2 s i s o w e T o s o p a 2 m m a p L c t t s o M A f n d n d e . E f d l S a t r

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s . t r a n c r s n s t t o c c d i c l o s i r e d g l v r x b e r i e e s r g

i f o l n o o u f u t s o A n e i t a f a a b n c n a e f a a w t

t s o t e n e o h f t a o t

l n i o t e i m u . i f n u f n a t l e a t p e s c e t h v t n c c t s I n s t c s o v i d i y i t i n i a y i o e n i i l s o b n s t n h t e o n r r r n i a u e t t r e b A c f e e h r P f p t t y f o n u c s e d e l a s e s o a r i u i

a a g y r a o r l f p E t f n u l o o w n m r b t r - n m n d n r r e u

t e c i

l i a t t m m l r m i a L a a e l e i e h t n a s c o e s p s a r t p l l d o h i s t s e i n e i l t e z e g l i i s e t t , l g t n e u i u s n i t o o e e m b e u i m o g r p h a c f l e l d n l n y l d b i c u e o a n l w l e i r r i t r a s p s u s i d t a t n s t I T M r b t n i o i r a c e e t i t r a e m u u o i p t i t t u A A a n s a . d d o c l r m s . a t m d . f r u s o o l p l v c o r

o s s a r a 7 n E n g o a o u d b E r 8 n a v d n 9 r n o t u h o t a e o t i e r o n n 5 a L s a r h p p b a s t i s a L r p 5 e n a a a i 5 s s t a e s c S P D

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 51 Section V: Strategic Pillars

n a l P

n o i t c A

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i e l s e t , g e f r a , s i a m A i r v g n k

u t e e n f t i e n r e i d t d u t n h w a E o s c a g v g d f t o n e i f i t t

o r i t l - e n c n i l e i t , L t n s e n o e b n a a t o u i n n o r e y a c l g a

y f f u a i t o j w f c o m d l e e o t t o s n r s i n m n n s d n d c o i b

t o i e l n n n

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. h u f o u a e r b g n e h e n d p e i f t f n b d e o x n t

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s n i f g f h t a t t a n s

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u i d d o a T l o i a y i s a t n c c s n e e t e n n g z t h u r m g i b c s s y i f r d h e t i . u g

t b n b e i a t a i f m e o t , h d e r m l r f d s s t o i a n n n r e t r g r t n

n n k i o c a d a t s a e i t e l h i e a i o g y k n t s t l a y x o o e a m a u c e r o g e r r i t n r c u i i n r c v c a s n c r n b a i n n t t r e p n r n d v a i b a n o o o a a y n o t m m a s e y o n e u t r u t l r l m u u i u u t o c a c a i i e b i n r s t s n h r u e t t e i e e S n L s i h r e o e c o i i f o e o t l t f c i s e t n n d c a a e i i t t a A A n c a d . e e v . c e g t t c p s c s s c c s o o i e u a o o e e e d s s h e r n 9 x E u f c o r f o 0 n E r u y r n c o y y l u c e h h e u n n o t a 2 s e L j m d r t o w m a d p o g 3 i i e m L s c p s d d f o e m m a M A f n , . n h , t s d t E l y i o l d s

u - e w i l l e n s a i t d o , r n e w t l p e a e e u a t w i o g i a l l n o a r n i h u v o r

v c o i i t v t n n a i a e f c s e a i o e l s s f t t i o i o i t d l n l h i a t . l e , f L c o b a o e n u u p c t r c n a

m e s b s l t t d . t e p e l

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l u x l i n s i e t v e r w i l a e r r n b a n s t i s o a r r u o l c f l i

e s . i i t t s , , a b p d o c s r e s a u d . c m l t e i l i p m s j n f r l s v n e e n s n e n s d r w r t o a i l e e e r s a h u d I n e l t a f m o v i e m r A h o t o e c m n i o e x e s h x w e i s o e m v s y a e t r e z s f u t r c t t i i T f t P E o a i i i s y t , o e g e d n e

t e

h r i c t n a d r

o l a t f . a c i o i c L n e a n r l n r y m p i c n g t l c n s s

c i l d o c y t

m c a o r e a u b i l o o a

b r e m n p e y r t a y m i e n i

r n s b a e f l i e y v e l r i e o r

s t i t y t r s t i g a g e g n d i r r s o n c i o a d n e t r t h h d n e t p i t s u i a n i l y l y e r u e t c c i e i n e i a n l - t e a r e a t a e s i S o S t t T c u T l c u o c e i o t v r g i c s o e e g i i t a r n a a . . t u n d . m d d r d . p l r n r o l v m e r i a e n o r s w n v r a 0 1 o d e m r n 2 d n n a n 3 m t e o p h e o t e i e h u h r n n a o n t t i s m 6 i m l t r s 6 l f n t e t g c a p a 6 a a i a s n a s 6 S P D

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Section V: Strategic Pillars 52

n a l P

n o i t c A

l a n o i t a N n o i t a z i l i b o M

e c r u o s e R y g r e n y S

t n e m / n n r e e z v i t o i C G y e n y f l e s t i e o g a i t l a e t l b n v s l i u r

i n r s b t f m t o a t b a d i d e l d r i o s t s t n n c l o , t g d s e

d s d u n a o l s n d n o e e u A i i a l t i i a s , s h i n r e s a i

u c s e u t l v o u . r c h E a i s s e

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l d n t d s t m z e E b r e b e n e a . e I e i y i m a b i s e t o a s r l

u t e m e n e t t l e t o t y h L i O f t e p t s i c i i s s u o i t d e l a a i w r v k o n s z r c a e o n l e h a o f e e e t c c n i s i i c i p n y i h e c p l e a a c a h c e

/ s i i

c c t s o T d o K v e d e t ,

a f o b s v g b n r a o

p s t h e l n i s s n d n n u s . n t c e

e f d t e o j n i e s o a g o n n n m t n h t p a d e n e a l o a d i a l c f i t s e i t o e a b i l i a t . y n n m o o e n t o s o n r k e r l p r i e i i a e t r i a l z z n m m v a s r i t m s a s m t t a t i i s g e r i n a e u a r d v i o e t h r r b r l o o d l t u c m c n o m n y a r u u t n r n c a t a o

c r i i l o e t t i o o P T c b l s c m A s i e u i t a e c f o i o i o o f a o f a a n w h o i i t t r r n l d . s t r s a d b d . r p . e u g t t o h n c m t p c c g p g r a i e d s s r e r n 1 a a e a n n c r c u n 2 e r a c 3 o u e u t o h o r a t c e e h n n n o a 3 e d i p b P s e a a c o t a p r a 3 m p c o i g a 3 i d c t s a n a a M A f , n s e E l g r w r d n s

s b t a n o e e t n o o i m f i d e . t s j i I w n h t d y a d v e o b n n u t a l e f .

r a t .

l e i o u r e y e c a o t u t i d e n e s a t r n i L e d a i h i m e n c t f e h t t i l t e m c i t y o

c t o y t e e k s o l g i h a i T : a a l o a s s u a f u n s e t h t a s n t i r r i a b s e S r s v t e l r c i . 5 t o h l t r o l l n s i r s a t y e t i i r u n e n s s t w s t s i y o o n h . d n e i r i i e n i s d d h u l f l i p o r o r y l e i g o a w t s l s r i s i c o s i e

a w r g i r b g a o n n o e t i u

v r c f l d d s a a t i y e n t a b h g l c e a a a r a i a d b o e l h i i o I n w t e d o f i u i t g

y s s t t g r b a j n l c w s i o e a

s h l ; c e e f o l c c n m M u i n e P d e i u

d i t i o a n e d o u g o l g s k t n t

e f d o t a J o i t a e d e r d r i e e b n t l n c o d n m o n e

n t c t a i c i m n i l r c v s h t e c e u o b i t e a i a o t n v o m d d t p c j a n u s i i i i i a a e a e r e a s z e m e r t l t a t g a o s i r t w e n a e n m r t d r o i d i m t n d t h h t e p y l r l p i i t a u i e u i s n e r p e e e l n e e s o e p i e e i i e e t s T T l e c v c u s c l s c e e c n o b e h h a i i p i i h i m m e m r t g t D . f l s o l . a c m h r i e o n e p m n v l m o v s r e r f i g r r a h e e x f f l 4 e o a r b f x e 5 x i o o h o e e o t e e r h r e a n m m b e o c f t o t T c i t e 6 d p C h p a o r e s c d r 6 e t i i h s S P D

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 53 Section V: Strategic Pillars . . d a y i s d n r t g d t a n e h n e s n i d a e b t g r i

n

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o i e u u g r e t a w i r n l c t r t s o s w i t i

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n y A e

s

e o l n a s b o a f o i e y o c r P e d E o d e r y e d r o d h b m r d n a y c

c C L p c e t l n d r t a c i h n e i o n e i n i e i e t t d a c a l e s m e e e t

a b i e g m c r n e m n u l r o i h h h h c n r i e r r y e r e a r e g b d e

T S t r T T T h A A l r u o l c v e i t e f a i e a t p . . . . s . i . d . u f t o l e e t r h e n 6 7 r 8 y 9 n 0 n s 1 n 2 o a t o h n d u c 6 T t 6 p 6 b 6 s e 7 u e 7 a 7 i S P

Strategy to Combat Terrorism including Effective Implementation of National Action Plan CONCLUSION Conclusion 55

he vulnerability of Pakistan to terrorism will eradicate terrorism and militancy and its Tcontinue to remain high at least in the fomentation by external hostile forces. The medium term in view of the multiplicity of sustainable solution indeed lies in the unity of factors. These include the potential purpose and action not only as expressed by radicalization of wide range of alienated and the highest level commitment and resolve of misguided groups, perceived sense of political the political and military hierarchies but also alienation and disenfranchisement by large through active engagement of all state and segments and socio-economic deprivation and non-state actors. NAP and NISP are a step in disparity. The external intervention both from the right direction, but we need to build on the hostile countries as well as religious-cum- these progressively to eliminate terrorism in sectarian motivated intrusions of some of the the face of complexity and magnitude of the so called friendly countries further exacerbates phenomenon. The lukewarm implementation the situation. of these instruments will not yield sustainable results. The on-going military operation against the terrorists and their abettors has to continue till Toward this end, the Shahid Javed Burki they and their networks are flushed out or Institute of Public Policy at NetSol has made weakened beyond resurgence. This has to be an attempt to initiate the process. Hopefully, accompanied simultaneously with a the government will take it forward and ensure comprehensive long term compact of political, that the necessary policy and legislative social and economic actions on the internal frameworks coupled with robust institutional front with focus on human capital mechanisms and operational plans will be put in place with speed and urgency to root out development, access to social services, terrorism from the country and also to income generating activities and inclusive bequeath a stable, secure and peaceful decision making. Pakistan to the posterity. We owe this to those who have been martyred in the heroic fight At the same time comprehensive and coherent against terrorism; to those who are still policy framework and robust institutions mourning deeply the untimely death of their capable of sustainably responding to any or near and dear ones; and above all to those every threat of terrorism need to be millions of parents, children and citizens who, established. The symmetry and balance as a symbol of perseverance, courage and between civil military relationships and intra- commitment, continue to endure and convey a agency and inter-agencies dysfunctions have strong message to terrorists: "we are not to be addressed to insure consensual, effective scared nor intimidated". and speedy actions against the terrorism. A well thought out and calibrated foreign policy is also imperative to effectively check and

Strategy to Combat Terrorism including Effective Implementation of National Action Plan

Annexes 58 Annexure

Annex 1 National Security Policy of Pakistan 2014-18

Following is the text of National Security Policy 2014-18 Threat Perception draft: 6. Pakistan is facing serious traditional and non- 1. This first ever National Internal Security Policy (NISP) traditional threats of violent extremism, sectarianism, is formulated to protect national interests of Pakistan by terrorism and militancy. This has adversely affected addressing critical security issues as well as concerns of economic stability and social harmony and continues to the nation. It is based upon principles of mutual instill a sense of insecurity among the people at large. inclusiveness and integration of all national efforts and 7. Subversive activities and a pattern of targeting the includes three elements vizi) dialogue with all national security apparatus and key installations by the stakeholders, ii) isolation of terrorists from their support terrorists and non-state armed groups have compounded systems, iii) enhancing deterrence and capacity of the the challenge. Faced with the complexity of the situation, security apparatus to neutralise the threats to internal use of chemical and biological substances by terrorist security of Pakistan. This requires integrated efforts and non-State armed groups cannot be ignored and MoD through an institutionalised monitoring framework under is equipped to deal with these extreme threats. democratic leadership to elicit support and cooperation of 8. Terrorist networks lurk in shadow and thrive on a local and international stakeholders. strategy of invisibility and ambiguity. They operate in an 2. Global terrorism and armed conflict in Afghanistan ideologically motivated network of networks to embroil have changed the internal security paradigm of Pakistan. the Sate on Physical, psychological and ideological Pakistan’s economy has suffered a loss of more than levels. US$ 78 billion in last 10 years only. More than 50,000 9. The widespread spectrum of internal threats is a Pakistanis, including civilian, Armed Forces and Law- critical impediment to economic development and social Enforcement Agencies (LEAs) personnel, were affected cohesion. Traditionally, the entire internal security or sacrificed their lives. apparatus acts in a reactive rather than proactive This challenges the resolve and resilience of people of manner. Pakistan for peace. Policy Objectives National Internal Security Environment 10.To establish the writ of the State and protect the 3.Internal Security environment is dominated by non- people from all internal threats. traditional threats of extremism, sectarianism, terrorism 11. To protect the life, property and fundamental rights of and militancy. In present form, the internal security the citizens of Pakistan. apparatus is inadequately equipped and enormously 12. To promote pluralism, freedom, democracy and a strained to tackle these threats. This elucidates the dire culture of tolerance. need for a comprehensive and inclusive response plan, 13. To prevent, deter and contain threats to internal as no single state agency is capable of dealing with such security in a transparent, accountable and just manner. threats on its own. 14. To peacefully resolve and manage disputes with Scope hostile elements without compromising the rule of law. 4. Whereas it is critical to define the composite picture Policy Framework concerning threats to the national security, NISP 15. The soft component of policy framework outlines an essentially remains focused on Internal Security, (NIS) integrated process of research and coordination on key paradigm, however, would be incomplete without issues. It highlights primacy of the political process, identifying its linkages with the external diplomatic supported by a Comprehensive Response Plan (CRP). initiatives and various other dimensions of human CRP is focused on winning over trust and confidence of security, in some parts of the country hostile networks general public to combat extremism and terrorism. The have also challenged the writ of the State. Nonetheless, hard component of NISP comprises of Composite national security apparatus including Ministry of Defence Deterrence Plan (CDP). It complements the existing (MoD) is dealing with this situation under political internal security apparatus to combat terrorism. oversight. Other, relevant State institutions will address Comprehensive Response Plan (CRP) social, economic, environmental and external security 16. CRP is a composite process based on dialogue with aspects. all sections of the society. It includes infrastructure Vision development, Rehabilitation of victims of terrorism, 5. Create a safe environment where life, property, civil National Narrative Reconciliation, Reintegration and liberties and socio-economic rights of the citizens are Legal Reforms. All these encompassing elements of protected and the people of Pakistan are able to live and social, economic and ideological domain require utmost prosper in harmony, freedom respect and dignity as attention and careful execution. enshrined in the Constitution of Pakistan. Reconstruction

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Annexure 59

Annex 1 (Contd...) National Security Policy of Pakistan 2014-18

17. Terrorism has not only affected the socio-cultural creating jobs and offering soft loans in collaboration with environment but it has also damaged the scarce existing respective Provincial Governments to ensure decent infrastructure in Pakistan by way of frequent attacks on livelihood opportunities for all. educational institutions, healthcare facilities, 25. Secondly this reintegration also envisions the communication networks and supply of energy within the incorporation of Madrassas in the mainstream country. NACTA will coordinate all relevant agencies for educational framework. Understanding the critical role fair assessment of losses, monitor and recommend plans played by these institutions for a pluralistic society, it is for security infrastructure. important to integrate them within the national education Rehabilitation system by supporting their administration, financial audit 18. Sustainable and integrated development for and curriculum accreditation. The same applies to other rehabilitation of affected regions is fundamental in private educational institutions. collaboration with respective provincial governments. Legal Reforms Though such efforts are already in place but need 26. Implementing of NISP requires a comprehensive vigorous follow up for timely implementation and quick review of existing legal framework. This reform process impact. It will also ensure that victims of terrorism are will respond to imperatives of criminal justice and ensure provided sufficient support through similar programmes. the protection of fundamental rights of the citizens of 19.Towards this end, enormous support of various public Pakistan. Among other reforms in criminal justice, it also and international organisations is available, but requires requires review of the regulatory capacity of the State to synergy and improved communication. NACTA will monitor, evaluate and prevent the misuse of existing laws analyse the shortcomings of planning and execution and under which mosques and Madrassas are functioning. recommend appropriate strategies in this process. An 27. NACTA will conduct detailed research and integrated evaluation and monitoring mechanism shall be consultation with relevant stakeholders including Ministry established within NACTA to coordinate the process of of Law & Justice, judiciary, police, prosecution, prisons rehabilitation. and legal experts to recommend a futuristic legal National Narrative framework capable of addressing all contingencies of 20. Constructing a robust national narrative on NISP. extremism, sectarianism, terrorism and militancy is the Composite Deterrence Plan corner stone of an ideological response to non-traditional 28. The National Internal Security Apparatus (NISA) threats. Such a narrative is essential for coming up with suffers from inadequacies to identify the threat, analyse it common ideological denominators in a diverse society. and respond quickly at all tiers. Best practices suggest Religious scholars, intelligentsia, educational institutions that CDP would remain elusive without synchronisation and media are the key stakeholders for constructing and of national efforts and democratic oversight. disseminating the National Narrative. NACTA will 29. Despite all material constraints the overall facilitate a dialogue with all stakeholders to strengthen performance of law-enforcement agencies is inconsistent democratic values of tolerance respecting diversity of the and needs improvement. CDP will provide a consistent society. approach through integration of specialised skills and 21.NACTA in consultation with other institutions capabilities to combat the traditional and non-traditional supporting NISP will develop a National De- threats to internal security. This needs restructuring and Radicalisation Programme. capacity building of NISA on urgent basis for enhanced Reconciliation service delivery of justice and security. 22.NACTA will devise strategy options in consultation 30. NISP aims of performance enhancement of existing with the experts and relevant departments for peace apparatus and filling the capacity gaps of NISA by building with extremist elements and terrorist groups creating new but cost effective and efficient institutions. opting to submit to lawful authorities and reconcile their CDP works to change the posture of national internal differences on key issues within the legal framework. security apparatus from reactive to proactive. The Reintegration immediate objective is to eliminate growing menace of 23. The reintegration aspect of CRP is a holistic people terrorism by, inter alia, filling the coordination gaps in centric process. This has direct bearing on economic intelligence regime to develop proactive systems. security of the citizens and it needs an integrated 31. While tackling non-traditional security threat, it would response from public, private and development sector be imperative to address traditional threats by using and Civil Society Organisations (CSOs). conventional law-enforcement apparatus more 24.First, it envisages a Youth Engagement Strategy effectively. Towards this end, identification and mapping (YES) imparting technical and vocational education, of critical security threats to public is essential to

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 60 Annexure

Annex 1 (Contd...) National Security Policy of Pakistan 2014-18 articulate a response strategy under a unified command intelligence and operational agencies are represented and control. having clear articulation of command control by Contours of NISP int3egrating all grids of tactical, operational and strategic 32. The contours of response mechanism of NISP hinge intelligence, civil and military, under one roof. upon the major activities under taken by various stake 47. Capacity building of DIS for collection, analysis and holders implementing the CRP and CDP. dissemination through integrated qualitative intelligence 33. Construct a national narrative on extremism, gathering efforts having direct bearing on internal terrorism, sectarianism and militancy to dispel the wrong security to develop operational capability of conducting perceptions created by the terrorists on ideological basis intelligence based operations to contain, pre-empt and by engaging media, civil society, organisations, overseas eliminate terrorism and other threats to public safety. Pakistanis and international community to elicit support 48. Establish a modern, well equipped Federal Rapid and cooperation. Response Force (RRF) comprising of Counter-Terrorism 34. Design and implement national de-radicalization Departments and police with experts from other security programme for the people vulnerable to extremism that institutions with nationwide reach and capability to can be rehabilitated and reintegrated in the society. interface and operate in close coordination with police, 35. Integrate the mosques and the Madrassas in the CAFs and Pakistan Armed Forces. national and provincial educational establishment by 49. Reorganisation and activation of Counter-Terrorism mapping and thereafter mainstreaming the existing and Departments (CTD) within police organisation of all the new Madrassas and private sector educational provinces, Islamabad Capital Territory, Federally institutions. Administered Tribal Areas (FATA), Azad Kashmir Jammu 36. Develop social and physical infrastructure in and Kashmir and Gilgit-Baltistan, preferably with uniform terrorism affected regions through sustained and structure and unified command at provincial, region and inclusive efforts by all State institutions at Federal and field level. provincial levels. 50. All CTDs to comprise of intelligence, operation, 37. Rehabilitate all victims of terrorism especially investigation, Provincial Rapid Response Force (RRF) vulnerable groups like women, children, elderly and other technical sections enabling themselves to minorities and people with special needs. tackle the entire spectrum of internal security threats 38. Improve worsening law and order situation by including terrorism and subversive activities. eliminating trends of targeted assassinations, extortion, 51. Modernisation of RRFs under CTDs with matching kidnapping for ransom and other serious and organised capabilities as that of Federal Response Force (RRF) for crime. ensuring uniformity. 39. Ensure protection of key installations and places of 52. Establishment of a dedicated CAF Headquarter national importance. under MoI for integrated warder management and 40. Enforce a comprehensive arms control regime across modernisation and coordination of CAFs, i.e. Pakistan the country. Rangers (Punjab and Sindh), Frontier Corps (Khyber 41. Prevent misuse of social, electronic and print media, Pakhtunkhwa and Balochistan), Frontier Constabulary, mobile phone Sims and electronic devices and prevent Gilgit-Baltistan Scouts, Pakistan Coastal Guards and cybercrimes for any purpose threatening internal Anti-Narcotics Force. security. 53. Modernisation of Law-Enforcement components of 42. Integrate national data base and registration plan to Pakistan Customs decides Levies in FATA and identify people residing in Pakistan and their assets. Balochistan and other LEAs. 43. Design and implement plans to regulate lawful 54. Making concerted diplomatic efforts for international movement of Afghan refugees within the country. corporation to break transnational affiliations of terrorists 44. Enforce a robust border control regime to interdict through prevention of money laundering, organised illegal cross border movement of persons, goods, drugs crime and transnational movement of substances used in and precursors, weapons or any other material biological and chemical terrorism. threatening internal security. International Cooperation 45. Capacity building and modernisation of all pillars of 55. NACTA will liaise with international actors for Criminal Justice System including judiciary, police, fostering cooperation to counter-terrorism and prosecution and high security prisons in all geographic extremism. entities of Pakistan. Policy Directives 46. Establishment of Directorate of Internal Security 56. Peaceful resolution of disputes with all the sections of (DIS) under NACTA where 33 civilians and military society is the cardinal principle of NISP, through

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Annexure 61

Annex 1 (Contd...) National Security Policy of Pakistan 2014-18 dialogues from position of strength. by the NACTA for improvement in the NISP and mid- 57. Ministry of Interior is the lead Ministry for National course corrections where needed. Internal Security Policy implementation. 58.For NISP implementation, all CAFs will be directly Source: The Nation. February 27, 2014.Text of National responsible to MoI. Security Policy 2014-18. Can be accessed online 59. Each ministry, organisation, intelligence agency and through the following website: department shall furnish such information and http://nation.com.pk/islamabad/27-Feb-2014/text-of- intelligence as solicited by NACTA and shall clearly national-security-policy-2014-18 outline and pursue a roadmap in support of NISP within • Security of Pakistan Act, 1952 30 days. • Probation of Offender Ordinance, 1960 60. Initiatives will be available for specialised functions at • Allopathic System (Prevention of Misuse) Ordinance, all levels for the organisations dedicated to NISP 1962 implementation. • Indecent Advertisements Prohibition Act, 1963 61. Restructuring of MoI, police and CAFs and other • The Punjab Arms Ordinance 1965 LEAs will be undertaken to rationalise their mandate and • Airports Security Force Act, 1975 resources to implement the NISP framework. Whereas • The Suppression of Terrorist Activities (Special Courts) all the existing well functioning structures will remain Act 1975 intact, any overlapping and or redundant units in police • Pakistan Railways Police Act, 1977 and CAFs will be diverted to fill the gaps in the relevant • (The Evidence Act) 1984 organisations. • Terrorist Affected Areas (Special Courts) Act, 1992 62. Political consensus for NISP will be solicited through • The Anti Terrorism Act 1997 consultative process with all the stakeholders. • Anti-Terrorism (Amendment) Ordinance On October 24, 63. Public support for NISP will be solicited through all 1998 communication channels. Valuable suggestions and • The Pakistan Armed Forces Ordinance 1999 input from intelligentsia, media and CSOs will be invited

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 62 Annexure

Annex 2 Anti-Terrorism Acts

• Pafo Was Repealed On April 27, 1999 • The Prevention of Electronic Crimes Act 2007 • The Actions (in Aid of Civil Power) Regulation, 2011 The Investigation for Fair Trial Act 2012 • The Pakistan Protection Ordinance 2013 • National Counter Terrorism Authority Act, 2013

Amendments to Anti-Terrorism Acts (1997) &Other Counter-Terrorism Acts 1. Anti-Terrorism (Amendment) Act, 1998 2. Pakistan Anti-Terrorism (Amendment) Ordinance,1999 3. Anti-Terrorism (Second Amendment) Ordinance, 1999 4. Anti-Terrorism (Third Amendment) Ordinance, 1999 5. Anti-Terrorism (Amendment) Ordinance, 2000 6. Anti-Terrorism (Amendment) Ordinance, 2001 7. Anti-Terrorism (Amendment) Ordinance, 2002 8. Anti-Terrorism (Second Amendment) Ordinance, 2002 9. Anti-Terrorism (Amendment) Act, 2004 10. Anti-Terrorism (Second Amendment) Act, 2004 11. Anti-Terrorism (Second Amendment) Act, 2005 12. Provincial Constitution Order No.1 of 2007 (PCO) 13. Prevention of Electronic Crimes Act, 2007 14. Anti-Terrorism (Amendment) Ordinance, 2009 15. Anti-Terrorism (Amendment) Ordinance, 2010 16. Anti- Money Laundering Act, 2010 17. The Action (in Aid of Civil Power) Regulation,2011 18. The investigation for Fair Trial Act 2012 19. The Anti-Terrorism (Amendment) Act, 2013 20. National Counter-Terrorism Authority Bill 2013 21. The Anti-Terrorism (Second Amendment) Act, 2013 22. Pakistan Protection Ordinance 2013

Laws to Counter Organized Crime • Prevention of Corruption Act, 1947 • Pakistan Names and Emblems (Prevention of Unauthorised Use) Act, 1957 • Dangerous Cargoes Act, 1953 • Extradition Act, 1972. • High Treason (Punishment) Act, 1973 • Removal of Accused Persons Act, 1973 • Prevention of Anti-National Activities Act, 1974 • Federal Investigation Agency Act, 1975 • Contempt of Court Act, 1976 • Drugs Act, 1976. • Criminal Law Amendment (Special Court) Act, 1976. • Prevention of Gambling Act, 1977. • Prevention of Smuggling Act, 1977 • Exits from Pakistan (Control) Ordinance, 1981. • Traffic Offences (Special Courts) Ordinance, 1981 • Surrender of Illicit Arms Act, 1991 • Abolition of Punishment of Whipping Act, 1996 • Anti Narcotics Force Act, 1997 • Control of Narcotics Substances Act, 1997 • National Accountability Ordinance, 1999

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Annexure 63

Annex 2 (Contd...) Anti-Terrorism Acts

• Chemical Weapons Convention Implementation Ordinance, 2000. • Juvenile Justice System Ordinance, 2000. • Police Order 2002 (Amendment) Ordinance 2006 • Acid Control and Acid Crime Prevention Act 2010 • Investigation for Fair Trial Act, 2013

Religious Laws • The Charitable Funds (Regulation Of Collections) Act, 1953(Last Updated On 06-12-2003) • The Punjab Historical Mosques And Shrines Fund Cess Ordinance, 1960 (Last Updated On 06-12-2003) • The West Pakistan Muslim Personal Laws (Shariat) Act, 1962 (Last Updated On 06-12-2003) • The Caste Disabilities Removal (West Pakistan Amendment) Act, 1963 (Last Updated On 06-12-2003) • The Succession (West Pakistan Amendment) Ordinance, 1965 (Last Updated On 06-12-2003) • The Punjab Muslim Personal Law (Shariat) Application (Removal Of Doubts) Ordinance, 1972 (Last Updated On 06-12-2003) • The Muslim Family Laws (Punjab Amendment) Act, 1975 (Last Updated On 06-12-2003) • The Punjab Muslim Personal Law (Shariat) Application (Removal Of Difficulties) Act, 1975 (Last Updated On 06-12- 2003) • The Punjab Waqf Properties Ordinance, 1979 (Last Updated On 06-12-2003) • Enforcement Of Shari Ah Act, 1991 • The Charitable And Religious Trusts Act, 1920(Last Updated On 28-02-2012 • Pakistan Madrassas Education (Establishment And Affiliation Of Model DiniMadaras) Board Ordinance

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 64 Annexure

Annex 3: International Conventions Open to All States

1. 1963 Convention on Offences and Certain Other Acts Committed On Board Aircraft (Tokyo Convention) 2. 1970 Convention for the Suppression of Unlawful Seizure of Aircraft (Hague Convention) 3. 1971 Convention for the Suppression of Unlawful Acts Against the Safety of Civil Aviation (Sabotage Convention or Montreal Convention) 4. 1973 Convention on the Prevention and Punishment of Crimes Against Internationally Protected Persons (Diplomatic Agents Convention) 5. 1979 International Convention against the Taking of Hostages (Hostages Convention) 6. 1980 Convention on the Physical Protection of Nuclear Material (Nuclear Materials Convention) 7. 1988 Protocol for the Suppression of Unlawful Acts of Violence at Airports Serving International Civil Aviation (Airport Protocol) 8. 1988 Convention for the Suppression of Unlawful Acts Against the Safety of Maritime Navigation (Maritime Convention) 9. 1988 Protocol for the Suppression of Unlawful Acts Against the Safety of Fixed Platforms Located on the Continental Shelf (Fixed Platform Protocol) 10. 1991 Convention on the Marking of Plastic Explosives for the Purpose of Detection (Plastic Explosives Convention) 11. 1997 International Convention for the Suppression of Terrorist Bombings (Terrorist Bombing Convention) 12. 1999 International Convention for the Suppression of the Financing of Terrorism (Terrorist Financing Convention) 13. 2005 International Convention for the Suppression of Acts of Nuclear Terrorism (Nuclear Terrorism Convention) 14. 2010 Convention on the Suppression of Unlawful Acts Relating to International Civil Aviation (Beijing Convention) 2010 Protocol Supplementary to the Convention for the Suppression of Unlawful Seizure of Aircraft (Beijing Protocol)

Security Council Resolutions 15. UN Security Council Resolution 731 (January 21, 1992) 16. UN Security Council Resolution 748 (March 31, 1992) 17. UN Security Council Resolution 883 (November 11, 1993)

Regional conventions

Europe 18. 1977 European Convention on the Suppression of Terrorism (Strasbourg, January 1977) 19. 2003 Protocol (Strasbourg, May 2003) 20. 2006 Council of Europe Convention on the Prevention of Terrorism 21. Commonwealth of Independent States 22. Treaty on Cooperation among States Members of the Commonwealth of Independent States in Combating Terrorism (Minsk, June 1999)

The Americas 23. Organisation of American States Convention to Prevent and Punish Acts of Terrorism Taking the Form of Crimes Against Persons and Related Extortion that are of International Significance (Washington, D.C. February 1971) 24. Inter-American Convention Against Terrorism AG/RES. 1840 (XXXII-O/02) (Bridgetown, June 2002) Africa 25. Organisation of African Union Convention on the Prevention and Combating of Terrorism (Algiers July 1999) and the Protocol to that Convention, Addis Ababa July 2004) [as of 30 August 2005 the Protocol was not yet in force] Asia 26. SAARC Regional Convention on Suppression of Terrorism (Kathmandu, November 1987) Additional Protocol to the Convention, Islamabad, January 2004 [As of 30 August 2005 not yet in force]. 27. The ASEAN Convention On Counter Terrorism, Cebu, Philippines, 13 January 2007 [In force from 27 May 2011, on 22 January 2013 all ASEAN members signed the ACCT] League of Arab States 28. Arab Convention on the Suppression of Terrorism (Cairo, April 1998)

Strategy to Combat Terrorism including Effective Implementation of National Action Plan Annexure 65

Annex 3 (Contd...) International Conventions Open to All States

Organization of the Islamic Conference 29. Convention of the Organization of the Islamic Conference on Combating International Terrorism (Ouagadougou, July 1999)

Anti-terrorist legislation in the European Union European Union 30. EU Framework Decision on Terrorism 31. European Court of Human Rights cases related to anti-terrorist legislation Anna Maroufidou v. Sweden – 1981 32. Brogan and others v. the UK-November 1988) Belgium 33. Belgium Anti-Terrorism Act 2003 France 34. The 19th century lois scélérates restricting freedom of expression.

Ireland (Republic of) 35. Offences against the State Acts 1939–1998 via the Special Criminal Court 36. Criminal Justice (Terrorist Offences) Act 2005 Italy 37. Further information: History of the Italian Republic 38.Italy passed various anti-terrorist laws during the "years of lead" (anni di piombo) in the 1970s.

Strategy to Combat Terrorism including Effective Implementation of National Action Plan 66 Annexure

Annexure 4 Definitions of Terrorism Pakistan According to the MANUAL ON ANTI-TERRORISM ACT 1997, the definition of Terrorism reads as follows: “A person is said to commit a terrorist act if he: a) In order to, or if the effect of his actions will be to, strike terror or create a sense of fear and insecurity in the people, or any section of the people, does any act or thing by using bombs, dynamite or other explosive or inflammable substances, or such fire-arms or other lethal weapons as may be notified, or poisons or noxious gases or chemicals, in such a manner as to cause, or be likely to cause, the death of, or injury to, any person or persons, or damage to, or destruction of, property on a large scale, or a widespread disruption of supplies of services essential to the life of the community, or threatens with the use of force public servants in order to prevent them from discharging their lawful duties; or b) Commits a scheduled offence, the effect of which will be, or be likely to be, to strike terror, or create a sense of fear and insecurity in the people, or any section of the people or to adversely affect harmony among different sections of the people; or c) Commits an act of gang rape, child molestation, or robbery coupled with rape as specified in the Schedule to this Act; or d) Commits an act of civil commotion as specified in section 7-A.”

United Nations The UN Security Council Resolution 1566 (2004) defines Terrorism as: "criminal acts, including against civilians, committed with the intent to cause death or serious bodily injury, or taking of hostages, with the purpose to provoke a state of terror in the general public or in a group of persons or particular persons, intimidate a population or compel a government or an international organization to do or to abstain from doing any act". A UN panel, in March 17, 2005, described Terrorism: "as any act intended to cause death or serious bodily harm to civilians or non-combatants with the purpose of intimidating a population or compelling a government or an international organization to do or abstain from doing any act.” It should be noted, however, that there is no agreed definition unanimously agreed by the member nations.

United States of America Definitions of Terrorism in the U.S. Code differentiates between the "international terrorism" and "domestic terrorism" for purposes of Chapter 113B: "International terrorism" means activities with the following three characteristics: • Involve violent acts or acts dangerous to human life that violate federal or state law; • Appear to be intended (i) to intimidate or coerce a civilian population; (ii) to influence the policy of a government by intimidation or coercion; or (iii) to affect the conduct of a government by mass destruction, assassination, or kidnapping; and • Occur primarily outside the territorial jurisdiction of the U.S., or transcend national boundaries in terms of the means by which they are accomplished, the persons they appear intended to intimidate or coerce, or the locale in which their perpetrators operate or seek asylum.* "Domestic terrorism" means activities with the following three characteristics: • Involve acts dangerous to human life that violate federal or state law; • Appear intended (i) to intimidate or coerce a civilian population; (ii) to influence the policy of a government by intimidation or coercion; or (iii) to affect the conduct of a government by mass destruction, assassination. or kidnapping; and • Occur primarily within the territorial jurisdiction of the U.S.

European Union The European Union defines terrorism in Art. 1 of the Framework Decision on Combating Terrorism (2002). This provides that terrorist offences are certain criminal offences of serious nature against persons and property which: given their nature or context, may seriously damage a country or an international organization where committed with the aim of: seriously intimidating a population; or unduly compelling a Government or international organization to perform or abstain from performing any act; or seriously destabilizing or destroying the fundamental political, constitutional, economic or social structures of a country or an international organization.

Strategy to Combat Terrorism including Effective Implementation of National Action Plan