THE CASE FOR CHANGE A Review of Pakistan’s Anti-Terrorism Act of 1997 October 2013 A Report by the Research Society of International Law, Pakistan i PROJECT RESEARCHERS ISLAMABAD DIVISION Jamal Aziz Muhammad Oves Anwar LL.B (London), LL.M (UCL) LL.B (London), LL.M (SOAS), LL.M (Vienna), D.U. (Montpellier) Saad-ur-Rehman Khan Abid Rizvi LL.B (London), LL.M (Manchester) BA-LL.B (LUMS), LL.M (U.Penn) Aleena Zainab Alavi Zainab Mustafa LL.B (London), LL.M (Warwick) LL.B (London) LAHORE DIVISION Ali Sultan Amna Warsi J.D. (Virginia) LL.M (Punjab) Ayasha Warsi Moghees Khan LL.M (Punjab) LL.B (London), LL.M (Warwick) Mishael Qureshi LL.B (Lond.), LL.M (Sussex) INTERNS Muhammad Bin Majid Muhammad Abdul Ghani Awais Ahmad Khan Ghauri This material may not be copied, reproduced or transmitted in whole or in part without attribution to the Research Society of International Law (RSIL). Unless noted otherwise, all material is property of RSIL. Copyright © Research Society of International Law 2013. ii CONTENTS SUMMARY OF RECOMMENDATIONS .......................................................................................... IX CHAPTER ONE ....................................................................................................................................... 7 TERRORISM IN THE PAKISTANI CONTEXT .................................................................................. 7 1.1 TRENDS IN TERRORISM ........................................................................................................... 7 1.2 THE ANATOMY OF TERRORISM IN PAKISTAN ......................................................................... 8 1.3 THE CONTEXT OF TERRORISM IN PAKISTAN ......................................................................... 11 1.3.1 Military dictatorship under General Zia-ul-Haq .............................................................. 11 1.3.2 Legitimization of Zia’s Military Rule ............................................................................... 11 1.3.3 The Soviet Invasion of Afghanistan .................................................................................. 12 1.3.4 The U.S. Invasion of Afghanistan ..................................................................................... 13 1.4 HISTORICAL LEGAL RESPONSES TO TERRORISM IN PAKISTAN............................................. 15 1.4.1 1972 – 1977 ....................................................................................................................... 15 1.4.2 1988 – 1999 ....................................................................................................................... 16 1.4.3 1999 – 2001 ....................................................................................................................... 20 1.4.4 2001 – Today .................................................................................................................... 22 1.5 THE STATISTICS OF TERRORIST ATTACKS IN PAKISTAN ...................................................... 28 CHAPTER TWO .................................................................................................................................... 31 DELINEATING THE BOUNDARIES OF TERRORISM: ................................................................. 31 DIFFICULTIES PERTAINING TO THE SCOPE OF THE ANTI-TERRORISM ACT, 1997 .......... 31 2.1 INTRODUCTION ...................................................................................................................... 31 2.2 TRIGGERING THE APPLICABILITY OF THE ANTI-TERRORISM ACT: LEGAL REQUIREMENTS 33 2.2.1 Explanation of ‘Scheduled Offence’ ................................................................................. 33 2.3 PRINCIPAL DEFECTS RELATING TO SCHEDULED OFFENCES UNDER THE ANTI-TERRORISM ACT…. .............................................................................................................................................. 40 2.3.1 THE DEFINITION OF “TERRORISM” UNDER SECTION 6, ANTI-TERRORISM ACT ............... 40 2.3.2 THE THIRD SCHEDULE TO THE ANTI-TERRORISM ACT, 1997 .......................................... 98 2.3.3 THE PREAMBLE TO THE ANTI-TERRORISM ACT, 1997 ................................................... 107 2.3.4 THE LACK OF EXPLANATORY NOTES & POLICY GUIDELINES ........................................ 110 CHAPTER THREE............................................................................................................................... 115 SPECIAL POLICE POWERS UNDER THE ATA 1997................................................................... 115 3.1 INTRODUCTION .................................................................................................................... 115 3.2 SPECIAL POLICE POWERS UNDER THE ATA ........................................................................ 116 iii 3.2.1 The Calling in of Armed Forces and Civil Armed Forces .............................................. 116 3.2.2 ATA Powers to Employ Force, Arrest, and Search ........................................................ 117 3.2.3 Use of Force .................................................................................................................... 118 3.2.4 Powers of Arrest.............................................................................................................. 124 3.2.5 Enter and Search ............................................................................................................. 125 3.2.6 Chapter IX and Sec. 132 of the Cr.P.C ........................................................................... 126 3.2.7 Power to Enter and Search Connected with Sec. 8 of the ATA ...................................... 127 3.2.8 Application of the Cr.P.C. to all searches and arrests made under the ATA .................. 128 3.3 JOINT INVESTIGATION TEAMS ............................................................................................. 130 3.4 POWER TO CALL INFORMATION .......................................................................................... 133 3.5 CORDONS FOR TERRORIST INVESTIGATION ........................................................................ 137 3.6 REMAND .............................................................................................................................. 139 3.7 CONFESSION BEFORE A POLICE OFFICER ............................................................................ 142 3.8 POLICE POWERS TO PROHIBIT THE DISPOSAL OF PROPERTY PENDING INVESTIGATION .... 144 3.9 DUTY TO DISCLOSE INFORMATION TO THE POLICE ............................................................ 146 CHAPTER FOUR ................................................................................................................................. 149 PROSCRIBED ORGANIZATIONS AND PREVENTIVE DETENTION........................................ 149 4.1 INTRODUCTION .................................................................................................................... 149 4.2 TERRORIST ORGANIZATIONS .................................................................................................. 149 4.3 POWER OF THE GOVERNMENT TO PROSCRIBE ORGANIZATIONS ......................................... 150 4.4 THE RIGHT OF REVIEW AGAINST PROSCRIPTION ............................................................... 153 4.5 SUBSEQUENT RIGHT OF APPEAL AGAINST PROSCRIPTION AFTER 3 YEARS ...................... 154 4.6 MEASURES AGAINST PROSCRIBED ORGANIZATIONS ......................................................... 156 4.6 THE OFFENCE OF MEMBERSHIP OF A PROSCRIBED ORGANIZATION .................................... 158 4.7 DEMONSTRATING AFFILIATION WITH A PROSCRIBED ORGANIZATION ............................... 163 4.8 RESTRICTIONS IMPOSED UPON PERSONS SUSPECTED OF TERRORIST INVOLVEMENT ........ 164 4.9 POWERS TO ARREST AND DETAIN INDIVIDUALS LINKED TO PROSCRIBED ORGANIZATIONS OR ORGANIZATIONS UNDER OBSERVATION ......................................................................................... 174 4.9.1 Preventive Detention for Inquiry – Section 11-EEEE ....................................................... 178 CHAPTER FIVE ................................................................................................................................... 182 MONEY LAUNDERING AND TERRORIST FINANCING ........................................................... 182 5.1 INTRODUCTION .................................................................................................................... 182 5.2 INTERNATIONAL FRAMEWORK FOR MONEY LAUNDERING AND TERRORIST FINANCING .. 183 5.3 DOMESTIC LEGAL FRAMEWORK FOR ANTI-MONEY LAUNDERING .................................... 185 iv 5.4 DOMESTIC LEGAL FRAMEWORK FOR COUNTERING THE FINANCING OF TERRORISM (CFT) 187 CHAPTER SIX ..................................................................................................................................... 194 RELIGIOUSLY-MOTIVATED VIOLENCE IN THE PAKISTANI CONTEXT ............................. 194 6.1 PREAMBULATORY TEXT ......................................................................................................... 195 6.2 DEFINITIONAL CLARITY .......................................................................................................... 197 6.3 THE DEFINITION OF TERRORISM ............................................................................................. 201 6.4 HATE SPEECH AND THE INCITEMENT OF INTER-COMMUNAL HATRED .................................