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Strengthening Governance in Pakistan Assessing the National Action Plan to Counter Terrorism and Extremism

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Strengthening Governance in Pakistan Assessing the National Action Plan to Counter Terrorism and Extremism Strengthening Governance in Pakistan Assessing the National Action Plan to counter Terrorism and Extremism Strengthening Governance in Pakistan Assessing the National Action Plan to counter Terrorism and Extremism December 2020 Contents List of Acronyms ���������������������������������������������������������������������������������������������������������������������������� i Acknowledgments ����������������������������������������������������������������������������������������������������������������������� iv Foreword ��������������������������������������������������������������������������������������������������������������������������������������� v Executive Summary �������������������������������������������������������������������������������������������������������������������� vii 1� Introduction & methodology �������������������������������������������������������������������������������������������� 01 Methodology ������������������������������������������������������������������������������������������������������������������������ 02 2� Pre-NAP scenario or NAP baseline ������������������������������������������������������������������������������������ 05 3� NAP so far: successes and failures ������������������������������������������������������������������������������������ 11 3�1 A review of NAP implementation ����������������������������������������������������������������������� 12 3�2 Issues affecting implementation & results ����������������������������������������������������������� 58 3�3 Impact evaluation ���������������������������������������������������������������������������������������������� 61 4� Political and policy orientation of NAP ���������������������������������������������������������������������������� 67 4�1 Relevance to countering extremism and terrorism ����������������������������������������������� 68 4�2 Political will and policy sustainability ������������������������������������������������������������������� 73 4�3 Issues of control and ownership ������������������������������������������������������������������������ 76 5� Recommendations ������������������������������������������������������������������������������������������������������������� 79 Strengthening Governance in Pakistan List of Acronyms ADR Alternate Dispute Resolution AJK Azad Jammu & Kashmir AML Anti-Money Laundering APG Asia-Pacifc Group APS Army Public School AQIS Al-Qaeda in the Indian Subcontinent ASWJ Ahle Sunnat Wal Jamaat ATA Anti Terrorism Act ATCs Anti-Terrorism Courts ATF Anti-Terrorist Force BRAS Baloch Raji Ajohi Sangar CCI Council of Common Interests CCNS Cabinet Committee on National Security CE Counter-Extremism CFT Combating Financing of Terrorism CII Council of Islamic Ideology CoC Code of Conduct CT Counterterrorism CTDs Counter-Terrorism Departments CTF Countering Terrorism Financing CVE Counter-Violent Extremism DGPR Directorate General Public Relations DGRE Directorate General of Religious Education EPTS Elite Police Training School FATA Federally Administered Tribal Areas FATF Financial Action Task Force FBR Federal Board of Revenue FC Frontier Corps FCR Frontier Crimes Regulations FGCM Field General Court Martial FIA Federal Investigation Agency FIF Falah-e-Insaniyat Foundation FIU Financial Intelligence Unit FMUs Financial Monitoring Unit GB Gilgit-Baltistan i Strengthening Governance in Pakistan GC General Committee HEC Higher Education Commission HRCP Human Rights Commission of Pakistan IBOs Intelligence-based Operations ICAP Institute of Chartered Accountants of Pakistan ICJ International Court of Justice ICMAP Institute of Cost and Management Accountants of Pakistan ICT Islamabad Capital Territory IDPs Internally Displaced Persons IPCM Inter-Provincial Coordination Ministry ISI Inter-Services Intelligence ISIS/IS Islamic State [group] ISPR Inter-Services Public Relations ITMP Ittehad Tanzeemat-e-Madaaris Pakistan JeM Jaish-e-Muhammad JI Jamaat-e-Islami JID Joint Intelligence Directorate JuD Jamaatud Dawa JUI-F Jamiat Ulema-e-Islam-Fazal KP Khyber Pakhtunkhwa LeJ Lashkar-e-Jhangvi LeT Lashkar-e-Taiba MER Mutual Evaluation Report MFE&PT: Ministry of Federal Education and Professional Training ML Money Laundering NAB National Accountability Bureau NACTA National Counterterrorism Authority NAP National Action Plan NEC National Executive Committee NFC National Finance Commission NGOs Nongovernmental Organisations NISC National Internal Security Committee NISP National Internal Security Policy NPOs Nonproft Organisations NSA National Security Advisor NSC National Security Council OIC Organisation of Islamic Cooperation PATA Provincially Administered Tribal Areas ii Strengthening Governance in Pakistan PBC Pakistan Bar Council PBUH Peace Be Upon Him PCCs Provincial Coordination Committees PECA Prevention of Electronic Crimes Act PEMRA Pakistan Electronic Media Regulatory Authority PeP Paigham-e-Pakistan PHC Peshawar High Court PIPS Pak Institute for Peace Studies PM Prime Minister PML-N Pakistan Muslim League-Nawaz PoR Proof of Registration PPC Pakistan Penal Code PPP Pakistan Peoples Party PTI Pakistan Tehreek-e-Insaf PTM Pashtun Tahaffuz Movement SAFRON Ministry of States and Frontier Regions SC Supreme Court SHC Sindh High Court SIG Special Investigations Group SLA Sindhudesh Liberation Army SRA Sindhudesh Revolution Army SSU Special Security Unit TF Terrorism Financing TLP Tehreek-e-Labbaik Pakistan TTP Tehreek-e-Taliban Pakistan UN United Nations UNDP United Nations Development Programme UNHCR United Nations High Commissioner of Refugees UNODC United Nations Offce on Drugs and Crime iii Strengthening Governance in Pakistan Acknowledgments Pak Institute for Peace Studies conducted this study with the collaboration of Friedrich-Ebert-Stiftung Pakistan. PIPS sincerely thanks Muhammad Amir Rana for overseeing the study in all phases, from data collection to report writing. Special thanks to Safdar Sial for developing the analytical framework, tabulating and analysing the data, and drafting the report. The Institute is really grateful to all those who helped in making the feldwork possible during the diffcult times of the Covid-19 pandemic, especially Abdullah Dayo, Zia Ur Rehman (in Karachi), Sabookh Syed (Quetta & Gilgit-Baltistan), Shahzada Zulfqar (Quetta), Shozab Askari (Islamabad & Lahore), and Aqeel Yousufzai (in Peshawar). Last but not least, PIPS would like to express its gratitude to Najam U Din for editing the fnal report. iv Strengthening Governance in Pakistan Foreword Pakistan and its citizens have suffered from terrorism for a long time� Thousands of people have been killed, many more were injured� Finally, when in December 2014 seven heavily armed terrorists entered the Army Public School in Peshawar, killing 150 people including 134 pupils, Pakistani politics and society fnally had enough. Very quickly a national consensus emerged to rid the country from the evil of terrorism, no matter how it was justifed. Only eight days after the crime committed in Peshawar, the Pakistani Parliament passed the “National Action Plan (NAP) for Countering Terrorism and Extremism”� In 20 points of different importance the NAP presented a way to overcome terrorism, not even closing the eyes in regard to some diffcult topics, like the role of sectarian extremism and violence� Today, more than six years later, the amount of terrorism and political violence is much lower, with less than 400 people killed in 2019. While terrorism in Pakistan has not ended completely, it does not any longer dominate the attention nationally and internationally� It is high time to look back and analyze to what degree this partial success has been the result of the NAP itself, or of other factors� It is time to evaluate its successes and weaknesses� This will allow to keep and build on the successes the NAP has produced, and identify elements where reform or additional measures might be required. In our humble view, the success or failure of the fght against terrorism in the long run will depend on legitimate and effective governance in Pakistan, as is other countries as well� This paper, researched and written by the Pak Institute for Peace Studies (PIPS) in Islamabad, will hopefully contribute to this� It provides an in-depth analysis of the strength and weakness of the NAP, and presents suggestions to further strengthen it� The Friedrich Ebert Stiftung (FES) has been happy to support this endeavor, without at any time infuencing its contents. The suggestions, analysis and opinions offered in this paper are, therefore, are those of the authors alone, and do not necessarily refect the positions of FES We hope this paper will contribute to a constructive discussion in Pakistan on how the struggle against the crime of terrorism can be strengthened even further� Dr� Jochen Hippler Abdullah Dayo & Country Director Hamayoun Khan Friedrich-Ebert-Stiftung Program Coordinators Friedrich-Ebert-Stiftung December 2020 v Strengthening Governance in Pakistan Executive Summary The National Action Plan (NAP) was rolled out almost immediately after the December 2014 Army Public School (APS) attack with the intent to reach a meaningful consensus on countering terrorism and extremism� The 20 action points under NAP have since achieved varying levels of success� The Karachi operation was concluded successfully, achieving its goals of eliminating armed actors and restoring peace to the city� The erstwhile FATA region has been merged with Khyber-Pakhtunkhwa and the introduction of political, administrative and judicial structures
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