sTUDY ON INFORMAL jUSTICE SYSTEM IN PAKISTAN

145 Pages·2011·1.96 MB·English

by  M Murtaza Khan

STUDY ON INFORMAL JUSTICE SYSTEM IN PAKISTAN SJA

Prepared by:
Mr. Justice Saleem Akhtar (Principal Investigator)
Mr. Justice Mushir Alam
Mr. Muhammad Shahid Shafiq
Mr. Iqbal Ahmed Detho

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Contents
P R E F A C E ............................................................................................................................ 6
LIST OF ACRONYMS ............................................................................................................. 7
GLOSSARY .............................................................................................................................. 9
A C K N O W L E D G E M E N T ....................................................................................... 11
EXECUTIVE SUMMARY ..................................................................................................... 12
I N T R O D U C T I O N ........................................................................................................ 16
Objective & expected out comes ......................................................................................... 18
Evaluation Management and consulting organization ......................................................... 18
Data Collection Methodology .............................................................................................. 19
E V A L U A T I O N & F I N D I N G S .............................................................................. 22
Types of mechanisms, their history and normative ‘mandate’ and basis, and their
normative/customary framework ................................................................................. 22
Types of mechanisms ....................................................................................................... 22
Origin and concept ........................................................................................................... 22
History: pre-colonial, colonial, and post-colonial............................................................ 23
Composition (including gender perspective) ................................................................... 28
Categories of crimes, penalties and punishments ............................................................ 28
Social monitoring system linking up with informal diversion system ................................ 32
Interaction and relationship between formal and informal justice systems and impact. ..... 33
Present security situation in Pakistan – its impact on informal mechanisms ...................... 34
Decision by consensus or third party decision ..................................................................... 34
Types of decisions or outcome of these processes............................................................... 36
Procedural aspects of informal justice systems ................................................................... 37
Who/how to bring complaints .......................................................................................... 37
Gender issues ................................................................................................................... 37
Hearings ........................................................................................................................... 38
Claimant’s participation and expectations ....................................................................... 39
Role of witness(es) ........................................................................................................... 39
Decision-making, both in terms of process and identity of decision-makers .................. 39
Enforcement of decisions; monitoring; recourse ............................................................. 41
Possible support to claimant: legal aid, representation, material ......................................... 41
Protection issues related to victims and witnesses ............................................................... 42
Implementation of decision/compromise within the informal justice system ..................... 42
Human rights aspects viz a viz women and children ........................................................... 43
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Human rights implications of the delivery of justice through informal mechanisms,
especially for women, children, and vulnerable and marginalized groups .......................... 43
Community perceptions regarding Informal Justice System. .............................................. 45
Efforts on the part of Government, International and National Bodies to support the
alignment of informal justice systems compatibility with human rights standards ............ 45
Recent Initiatives regarding ADR in Pakistan ................................................................. 47
Scope for intervention through UNICEF, UNDP, and UNIFEM programmes, and
constructive approaches to consider .................................................................................... 48
Scope for intervention through UNICEF ......................................................................... 48
Scope for intervention through UNDP & UNIFEM ............................................................ 49
Risk assessment of challenges that may be engendered through intervention .................... 49
Strengthening Tribal System............................................................................................ 50
Undermine the Judiciary: ................................................................................................. 50
RECOMMENDATIONS ......................................................................................................... 51
Annex 1: Questionnaire ........................................................................................................... 61
Annex 2: List of core group ..................................................................................................... 70
Annex 3: Proposed Draft on Sindh Mediation Act .................................................................. 71
Annex 4: Promotional Material on ADR ................................................................................. 90
Annex 5: Persons Interviewed ............................................................................................... 101
Annex 6: List of Literature reviewed and Laws containing provision of Alternate Dispute
Resolution ............................................................................................................................ 104
Annex 7: Proposed amendment in Code of Civil Procedure (Section 89-A) ........................ 107
Annexure 8 Cases of Apex Courts ......................................................................................... 110
Annex 9: Case Studies ........................................................................................................... 134

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P R E F A C E
This report is based on a study conducted by the Sindh Judicial Academy by associating a
team of professionals having rich experience of observing and remaining part of formal and
informal justice system. The study is titled as ‘Informal Justice System in Pakistan’. The
study is based on an extensive review of the existing literature and case laws on the subject
and field research carried out by collecting information through a questionnaire and
interviews. This report focuses primarily on traditional and informal justice systems in
Pakistan, reflecting the views of actors of informal justice system. However, some positive
models from Asia are also included.
Throughout this report the term “informal justice systems” is used to refer to non-state
justice systems which have existed, although not without change, since pre-colonial times
and are generally found in rural areas. During the study formal justice system was also
observed and views were obtained about its effectiveness and accessibility. It was also the
aim of this study to know about the linkages between formal justice systems and the
informal justice systems and what are Government’s initiatives to introduce structured
alternate dispute resolution system throughout the country.
The purpose of this report is to make the available information on informal justice systems
accessible to a wider audience. Further to suggest Government and non-government actors
for playing active role in strengthening either of the systems (formal or informal) so that
deprived citizens of the country may have access for a quick and inexpensive justice. Law
reform agencies and donors were also targeted for playing their active role. The study on
informal justice system which this report is based, is intended to contribute to and facilitate
the debate on the characteristics of formal and informal justice system.

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LIST OF ACRONYMS

ADR Alternate Dispute Resolution
AGO Attorney General’s Office
AJP Access to Justice Program
CRC Convention of Rights of Child
CAT Convention Against Torture
CIDA Canadian International Development Agency
CPC Civil Procedure Code, 1908
CrPC Criminal Procedure Code, 1891
CEDAW Convention on the Elimination of Discrimination against Women
DoL Department of Law
D&SJ District & Sessions Judge
FCR Frontier Crimes Regulation
FHC Federal High Court
GJTMAP Gender Justice through Musalihat Anjuman Project
HR Human Resource
IC Insaf Committee
ICADR International Centre for Alternative Dispute Resolution
ICG International Crisis Group
ICCPR International Covenant on Civil and Bliticate Rights
IDLO International Development Law Organization
IFC International Finance Corporation
IGP Inspector General Police
KCDR Karachi Centre for Dispute Resolution
LHC Lahore High Court
LJCP Law & Justice Commission of Pakistan
MAs Masalihat Anjumans
MFCO Muslim Family Court Ordinance
MoL Ministry of Law, Justice & Human Rights
MoU Memorandum of Understanding
MoWD Ministry of Women Development
NCCWD National Commission for Child Welfare and Development
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NGO Non-governmental organization
NWFP North-West Frontier Province
PHC Peshawar High Court
PLGO Punjab Local Government Ordinance, 2001
PPC Pakistan Penal Code, 1860
PPO Provincial Police Officer
PCCWD Provincial Commission for Child Welfare Department
QHC Quetta High Court
SC Supreme Court
SCMOCO Small Claims and Minor Offences Courts Ordinance, 2002
SHC Sindh High Court
SJA Sindh Judicial Academy
SLGO Sindh Local Government Ordinance, 2001
TOR Terms of Reference
TOT Training of Trainer
UNDP United Nations Development Programme
UNICEF United Nations Children’s Fund
UNIFEM United Nation International fund for Women
USAID United States Agency for International Development

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GLOSSARY
Badal-i-sullh
It is a term used for settling the blood dispute by exchanging of girl or woman.
Faislo
A local term used to describe meaning of Jirga in Sindh
Jirga
A local term used to define group of people/elders who sit together for resolving a dispute.
It is normally used in Balochistan, NWFP, FATA, PATA.
Karo Kari
Karo kari is a compound word. Literally karo means "black male" and kari means "black
female", A metaphoric term for adulterer and adulteress. Being so labelled leads more often
than not to the murder of both man and woman allegedly guilty of having an illicit affair.
This is especially true in the rural areas of the southern province of Sindh. In other parts of
the country, women are more likely to be accused of sexual improprieties and murdered in
order to wash the sullied family honour.
Kursi
An elevated chair used by the Sardar or decision maker during Jirga proceeding.
Mahaslehat Anjuman
A committee constituted under SLGO at union council level for disposal of disputes of the
people residing in a particular jurisdiction
Musheer
An advisor who participates in the faislo and represents one of the parties to the dispute.
They also facilitate decision makers in resolving the dispute.
Naikmards
A respectable person of a village who are usually approached by the villagers for resolving
their disputes.
Nikah
The legal contract between a bride and groom as part of an Islamic marriage; contract under
Islamic marriage.
Otaq
A sitting place in village/rural areas of Sindh Province.
Panchayat
A local term used to describe Jirga in the Punjab.
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Sakh
It is a Sindhi term denoting administration of oath either on fire or on Holy Quran.
Sardar
Head of community/tribe mostly current in Sindh Province.
Sawara
It is a traditional practice in NWFP where girls are given for settling or resolving blood
disputes between families and clans.
Shahi Jirga
Shahi Jirga, means a Jirga to resolve intricate disputes between individuals and tribes.
Sharam
It is a feeling or gesture in which hesitation is disclosed/exhibited by the communicator.
Surpunch
Head of Panchayat or tribal council
Tumandar
Head of family/community, mostly current in the Punjab Province
Vani
A custom to give a woman of his family to an enemy’s family as part of settlement of a feud.
Wadera
A term denoting small chieftain or a dominating personality of a village owning reasonable
agricultural land and most of the families of his village work on his land as worker/Hari

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