Shari'ah Criminal Law in Northern Nigeria

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Shari'ah Criminal Law in Northern Nigeria SHARI’AH CRIMINAL LAW IN NORTHERN NIGERIA Implementation of Expanded Shari’ah Penal and Criminal Procedure Codes in Kano, Sokoto, and Zamfara States, 2017–2019 UNITED STATES COMMISSION ON INTERNATIONAL RELIGIOUS FREEDOM On the cover: A veiled Muslim woman sits before Islamic judge Nuhu Mohammed Dumi during a court trial over a matrimonial dispute at Unguwar Alkali Upper Sharia Court in Bauchi, Northern Nigeria, on January 27, 2014. AFP PHOTO / AMINU ABUBAKAR Photo: AMINU ABUBAKAR/AFP/Getty Images USCIRF | SHARI’AH CRIMINAL LAW IN NORTHERN NIGERIA UNITED STATES COMMISSION ON INTERNATIONAL RELIGIOUS FREEDOM SHARI’AH CRIMINAL LAW IN NORTHERN NIGERIA Implementation of Expanded Shari’ah Penal and Criminal Procedure Codes in Kano, Sokoto, and Zamfara States, 2017–2019 By Heather Bourbeau with Dr. Muhammad Sani Umar and Peter Bauman December 2019 www.uscirf.gov USCIRF | SHARI’AH CRIMINAL LAW IN NORTHERN NIGERIA Commissioners Tony Perkins Gary Bauer Chair Anurima Bhargava Gayle Manchin Tenzin Dorjee Vice Chair Andy Khawaja Nadine Maenza Vice Chair Johnnie Moore Executive Staff Erin D. Singshinsuk Executive Director Professional Staff Harrison Akins Patrick Greenwalt Dominic Nardi Policy Analyst Researcher Policy Analyst Ferdaouis Bagga Roy Haskins Jamie Staley Policy Analyst Director of Finance and Office Senior Congressional Relations Keely Bakken Management Specialist Policy Analyst Thomas Kraemer Zachary Udin Dwight Bashir Director of Operations and Project Specialist Director of Outreach and Policy Human Resources Scott Weiner Elizabeth K. Cassidy Kirsten Lavery Policy Analyst Director of Research and Policy International Legal Specialist Kurt Werthmuller Jason Morton Supervisory Policy Analyst Policy Analyst USCIRF | SHARI’AH CRIMINAL LAW IN NORTHERN NIGERIA TABLE OF CONTENTS Introduction by USCIRF ����������������������������������������������������������������������������������������������������������������������������������������� 1 Executive Summary ������������������������������������������������������������������������������������������������������������������������������������������������� 3 Map ���������������������������������������������������������������������������������������������������������������������������������������������������������������������������� 4 Key Findings ������������������������������������������������������������������������������������������������������������������������������������������������������������� 5 Introduction & Background ���������������������������������������������������������������������������������������������������������������������������������� 7 History of Legal Pluralism in Nigeria ��������������������������������������������������������������������������������������������������������������������� 7 Democratic Federalism and Changes in Northern Nigeria ��������������������������������������������������������������������������������� 8 Shari’ah Penal Codes and Jurisdiction ������������������������������������������������������������������������������������������������������������������ 8 Court Structure ������������������������������������������������������������������������������������������������������������������������������������������������������ 13 Role of Statutory Agencies ������������������������������������������������������������������������������������������������������������������������������������� 14 Role of Hisbah Groups ������������������������������������������������������������������������������������������������������������������������������������������� 14 Focus on Zamfara, Sokoto, and Kano ������������������������������������������������������������������������������������������������������������������ 16 Zamfara ���������������������������������������������������������������������������������������������������������������������������������������������������������������������� 17 Sokoto ������������������������������������������������������������������������������������������������������������������������������������������������������������������������ 24 Kano ���������������������������������������������������������������������������������������������������������������������������������������������������������������������������� 29 Areas of Concern ���������������������������������������������������������������������������������������������������������������������������������������������������� 37 Human Rights �������������������������������������������������������������������������������������������������������������������������������������������������������� 39 Women’s Rights ������������������������������������������������������������������������������������������������������������������������������������������������������ 40 Religious Freedom ������������������������������������������������������������������������������������������������������������������������������������������������� 41 Conclusions ��������������������������������������������������������������������������������������������������������������������������������������������������������������� 45 Recommendations for Future Research �������������������������������������������������������������������������������������������������������������� 46 Annex A: Glossary �������������������������������������������������������������������������������������������������������������������������������������������������� 47 Annex B: Role of Key Actors ������������������������������������������������������������������������������������������������������������������������������ 48 Annex C: Brief Overview of New Shari’ah Laws in the 12 Northern States ������������������������������������ 50 Annex D: Shari’ah Penal Codes of Kano, Sokoto, and Zamfara ������������������������������������������������������������ 52 Annex E: Three Models of Shari’ah Criminal Law ��������������������������������������������������������������������������������������� 54 Annex F: Key Court Challenges ������������������������������������������������������������������������������������������������������������������������ 55 Validity of Shari’ah Penal Codes ��������������������������������������������������������������������������������������������������������������������������� 55 Jurisdiction of the High Court in Shari’ah Cases ������������������������������������������������������������������������������������������������ 55 Jurisdiction of the Shari’ah Courts of Appeal ������������������������������������������������������������������������������������������������������ 55 Annex G: Methodology ���������������������������������������������������������������������������������������������������������������������������������������� 59 Observations ����������������������������������������������������������������������������������������������������������������������������������������������������������� 59 Interviews ��������������������������������������������������������������������������������������������������������������������������������������������������������������� 59 Data Analysis ���������������������������������������������������������������������������������������������������������������������������������������������������������� 61 Annex H: Bibliography ����������������������������������������������������������������������������������������������������������������������������������������� 62 Endnotes �������������������������������������������������������������������������������������������������������������������������������������������������������������������� 67 USCIRF | SHARI’AH CRIMINAL LAW IN NORTHERN NIGERIA This page intentionally left blank. USCIRF | SHARI’AH CRIMINAL LAW IN NORTHERN NIGERIA INTRODUCTION BY USCIRF INTRODUCTION BY USCIRF For 20 years, the U�S� Commission on International there is also a trust gap between citizens and the Religious Freedom (USCIRF) has monitored and complex array of security and justice providers� evaluated religious freedom conditions in Nigeria� In 2018, USCIRF contracted the consulting This year also marks 20 years since Nigeria’s return to firm Bauman Global to compare the functioning of democracy and the adoption of the 1999 Constitution, Islamic criminal law in three northern states on a which outlines the federal system of government and technical level, including the involvement of police, the hybrid application of religious, customary, and hisbah, and other statutory bodies, and to examine civil laws� The Constitution provides that states shall its impact on freedom of religion or belief for all have High Courts, and may also have Shari’ah and citizens� The research team, including Nigerian legal Customary courts of appeal where required� During experts and practitioners, used various methods the same time period, 12 northern Nigerian states have to review hundreds of documents including court also re-integrated Islamic criminal law in various ways� cases and police records, and to interview a range While the Shari’ah laws are based on long-standing of stakeholders in each state, which resulted in the practices, receive widespread support from Muslims, collection of new data� and apply only to Muslims, state enforcement of This report provides a detailed and updated religious laws presents serious challenges to fully picture of Kano, Sokoto, and Zamfara’s Shari’ah respecting freedom of religion or belief� systems� USCIRF is utilizing the information in this The reintroduction of Islamic criminal law has report and consulting with U�S� government agencies, contributed
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