Part I

Chapter 1

Conceptualising Islamic Law, CEDAW

and Women’s Human Rights
in Plural Legal Settings:

A Comparative Analysis of
Application of CEDAW
in Bangladesh, India and Pakistan

Shaheen Sardar Ali

1. Introduction

On December 18, 1979, the UN General Assembly adopted

comprehensive treaty on women’s human rights entitled the
United Nations Convention on the Elimination of All Forms of
Discrimination Against Women (CEDAW)1 The purpose of this
treaty is to eliminate de facto and de jure discrimination and inequality
on the basis of sex. To date 183 countries have acceded to this
treaty including a significant number of Muslim jurisdictions.2
Despite the large number of ratifications, there are grave
indications that discrimination against women persists and acts
to restrict the rights and freedoms of women in all aspects of
their lives. This is especially the case in plural legal jurisdictions
of South Asia including Bangladesh, India and Pakistan where
custom, culture, religious norms and tradition dominates legal
discourse and informs its implementation. Contours of the norm
of equality and non-discrimination enshrined in constitutional
documents, legislative enactments and human rights treaty regimes
present, at best, a fractured reality and fragile framework for
women’s human rights in the three countries under review.
Bangladesh, India and Pakistan have ratified CEDAW and
incurred legal obligations to eliminate all forms of discrimination
within their jurisdictions. How then might this continued
discrimination against women be interpreted? The question may
be addressed at two levels. First, at the international level the

1
Adopted at New York on December 18, 1979; Entered into force on 3
September 1981. UN GA Res. 34/180, 34 GAOR, Supp. (No.46) 194, UN
Doc. A/34/46, at 193 (1979), 2 U.K.T.S. (1989); 19 I.L.M. (1980) 33.
2
http://www.un.org/womenwatch/daw/cedaw/states.htm accessed on July
19, 2006. As of July 19, 2006, CEDAW has attracted 98 Signatures/183
ratifications, accessions and successions. The latest accession is Brunei
Darrusalam which acceded on May 24, 2006.

2
issue is one of normative conflict between equality and non-
discrimination as espoused in CEDAW and other human rights
instruments on the one hand, and right to freedom of religion
and belief as enunciated in the UN declaration on the Elimination
of all Forms of Intolerance and of Discrimination based on
Religion or Belief (the Religious Tolerance Declaration) and
economic, social and cultural rights and rights of ethnic minorities
on the other. Equality among the sexes is perceived by many, as
diametrically opposed to the right to practice one’s religion or
belief and culture as one perceives it. Thus, where religious
traditions and customary practices have been used to create gender
hierarchies, the right to freedom of religion, belief and culture
is said to legitimise these inequalities. Second, at the level of
domestic law, complications arise due to the interface between
state law, customary norms and religious injunctions often
resulting in the application of the most patriarchal and non-
egalitarian face of all these regulatory norms.
The objective of the present study is to highlight some of these
complexities through its focus on Bangladesh, India and Pakistan
and create an increased awareness of the potential of CEDAW
as a universal human rights instrument to advance women’s rights
within these jurisdictions. Whereas Bangladesh and Pakistan are
defined as ‘Muslim’ countries by virtue of the fact that the
predominant population espouse the Muslim faith, India, an
avowedly secular country is home to one of the largest Muslim
populations in the world. How does the intersection of
constitutional and statutory laws, CEDAW, customary practices
and social spaces impact on women’s human rights within these
varied jurisdictions? Are state and legal responses to the discourse
on rights and entitlements of women significantly different in an
‘Islamic’ country as opposed to a secular one?

3
In addressing issues of effective implementation of CEDAW in
the countries under review, the distinction between state and
non-state law is also noted to pose the question of what it
means to implement CEDAW in non-state bodies of dispute
resolution and adjudication (for example, panchayat 3 and jirga 4)?
This is important since the translation of CEDAW objectives
into state law has met with opposition from non-state bodies.
Women appeal to multiple jurisdictions and often face a plurality
of legal subjection from state institutions as well as non-state
dispute resolution forums. Lower courts are often in alliance
with the family or local bodies of dispute resolution resulting in
conditions which make justice impossible for women.5

In India, the importance of local bodies of dispute resolution

has been realised by programs such as the Mahila Samkhaya
where nari adalats (women’s courts) have been inaugurated. These
courts, run by women volunteers at the level of the village,
block or zilla adjudicate matrimonial disputes, domestic violence

3
Traditional dispute resolution forum in many parts of India and Pakistan.
Panch means five indicating the membership of the forum usually drawn from
amongst the most influential men of the area. The presiding member is known
as Sar Panch. Some panchayats are a part of the legal structures of the state
while others are ‘informal’ in nature.
4
A traditional dispute resolution forum in the North West Frontier province
of Pakistan as well as Balochistan (also in Afghanistan). In Bangladesh, the
equivalent of the panchayat and jirga would be a saalish (literally meaning
mediation).
5
See for instance reviews of Pakistani case law on Hudood where lower courts
have invariably convicted women (and men) of adultery and fornication whereas
their convictions have been set aside by Appellate Courts on appeal. See
Shaheen Sardar Ali, ‘Interpretative Strategies for Women’s Human Rights in a
Plural Legal Framework: Exploring Judicial and State Responses to Hudood
Laws in Pakistan’ in Anne Hellum, Shaheen Sardar Ali, Julie Stewart & Amy
Tsanga (eds.), Paths are Made by Walking. Human Rights: Intersecting Plural Legalities
and Gendered Realities (Harare: Weaver Books, forthcoming 2006).

4
and even rape by using their knowledge of state law, a framework
of women’s rights in international law and using techniques of
shaming and social pressure to implement their decisions (ICRW
Report). Likewise in Pakistan, local bodies have a critical mass
of women councillors who are being sensitised and trained to
raise issues pertaining to their female constituents. Such
experiments demonstrate the way transnational categories of
women’s rights as outlined in CEDAW are translated into the
creation of non-state bodies of dispute resolution to address the
need for women centred bodies of dispute resolution at the
local level. In a sense, the objective to study the application of
CEDAW in a comparative perspective in the three jurisdictions
must reckon with the vexatious problem of translating the
objectives of CEDAW in plural jurisdictions, rather than limit
the discussion to state law.
The present study attempts to initiate a process of dialogue and
engagement with state and civil society in order to promote a
learning oriented and future oriented approach to human/
women’s rights in the region. Specifically the study expects to:
i) Enhance understanding of the link between ‘religious’ and
customary processes in the marginalisation of women.
ii) Provide a background document for a dialogue between
religious scholars, human rights activists and government
functionaries on the point of convergence/divergence
between CEDAW and these practices.
iii) Become a base for an effective advocacy strategy for legal
reform with clear prioritisation and an agreed agenda for
legislative and policy change in the area of personal laws
relating to property, inheritance, marriage, guardianship.
iv) To create an increased awareness of CEDAW.

To this end, three country studies of Bangladesh, India and

Pakistan, were commissioned by UNIFEM in 2003. The

5
Bangladesh study (Chapter 2) by Mahmuda Islam sets out to
explore the possibilities of full implementation of CEDAW in
that jurisdiction. It attempts “to ascertain and promote public
opinion so as to help create a favourable condition and
environment that will enable the government to completely
withdraw its reservations to CEDAW.”6 The Indian study (Chapter
3) undertaken by Kirti Singh, Sumaiya Musharraf and Maimoona
Mollah engages in a comparative analysis of CEDAW and Muslim
Personal Law with a view to ascertaining Muslim women’s status
as members of a minority community in secular India. The
Pakistan study (Chapter 4) by Fatimah Ihsan and Yasmin Zaidi
looks at the interplay of CEDAW, national laws and customary
practices in Pakistan through a literature review and focussed
group discussions (FGDs).
The three studies presented here are complementary in nature
and speak of country contexts that place Muslim women as
members of majority communities (as in Bangladesh and Pakistan)
or, as members of a minority group (as in India). The aim of
this introductory chapter is to highlight the complexities inherent
in application of plural legal norms (including CEDAW) to women
in diverse socio-political and locational contexts. Section 3
provides an overview of the international and Islamic norms of
non-discrimination on the basis of sex and women’s human rights.
Section 2 presents an overview of the three studies by locating
them in some of the main conceptual frameworks animating the

6
Mahmuda Islam, ‘CEDAW and Bangladesh: A Study to Explore the
Possibilities of Full Implementation of CEDAW in Bangladesh’ in S. S. Ali
(ed.) Conceptualising Islamic Law, CEDAW and Women’s Human Rights in Plural
Legal Settings: A Comparative Analysis of Application of CEDAW in Bangladesh,
India and Pakistan.

6
concerns underling the research and highlighting their salient
themes.

2. Islamic and International Normative Processes of

Equality and Non-Discrimination on the Basis of Sex:
Complementary or Conflicting Norms?
The right to equality and non-discrimination represent the twin
pillars upon which the entire edifice of modern international law
of human rights is established.7 Since establishment of the United
Nations in 1945, emphasis on equality and non-discrimination
has been so strong that these norms are regarded as not only
representing customary international law, but are also taken to
form part of the norm of jus cogens.8 Notwithstanding the
enormous significance of equality and non-discrimination within
general international law, there are difficulties in articulating a
common understanding of their meaning and devise acceptable
principles for application.9 There is an on-going debate as to the

7
See W. McKean, Equality and Discrimination Under International Law (Oxford:
Clarendon, 1983); N. Lerner, Group Rights and Discrimination in International Law
(Dordrecht: Martinus Nijhoff Publishers, 1991).
8
According to Article 53 of the 1969 Vienna Convention on the Law of
Treaties, a treaty is void if, at the time of its conclusion, it conflicts with a
peremptory norm of general international law. For the purposes of the present
convention, a peremptory norm of general international law is a norm accepted
and recognised by the international community of states as a whole as a norm
from which no derogation is permitted and which can be modified only by a
subsequent norm of general international law having the same character. For
a consideration of the meaning of jus cogens see also Article 64 and E. Schwelb,
‘Some Aspects of International Jus Cogens as Formulated by the International
Law Commission’, American Journal of International Law, Vol. 61, 1967
pp. 1-946.
9
Lerner, 1991, p. 25; M. Craven, The International Covenant on Economic, Social
and Cultural Rights: A Perspective on its Development (Oxford: Clarendon 1995) p.
154. Also see Judge Tanaka’s dissenting opinion in South West Africa (Second
Phase) ICJ Report, 1996, p. 6.

7
means of creating real and meaningful equality including the
true efficacy of affirmative action policies as a means of
overcoming past inequality. The limits of formal law have been
questioned in countries where despite formal equality; substantive
equality continues to elude millions of women, and other
vulnerable groups. In the view of some Muslim states for instance,
the concept of ‘complementarity’ is being advanced as the
‘synonym’ or ‘parallel’ notion to ‘equality and non-
discrimination’.10 The legitimacy and universal nature of CEDAW
and other human rights instruments is also called to question by
some Muslim states on the basis of Sharia’ being the sole divine
source of law. This section attempts to place the discussion of
this study into perspective by presenting a brief account of
women’s human rights in Islam and development of the
international norm of non-discrimination on the basis of sex
culminating in CEDAW.

10
See Egypt’s reservations to Article 16 of CEDAW where ‘complementarity’
is stated to ensure ‘true’ equality between the spouses.

8
2.1 Human Rights in Islam11
Rights afforded to women in the Islamic tradition emanate from
its main sources, i.e., the Quran12 , Hadith13, Ijma14 and Qiyas15. An
important source of Sharia’, but one which is usually known as
a juristic technique in Islamic jurisprudential terms is ijtihad. In
the literal sense, the term implies striving hard or strenuousness,
but technically it means exercising independent juristic reasoning
to provide answers when the Quran and Sunna are silent on a
particular subject. Ijtihad was meant to occupy a central place in
juristic deduction. A person qualified to carry out ijtihad is known

11
This section is based on S. S. Ali, Gender and Human Rights in Islam and
International Law Equal Before Allah, Unequal Before Man? (The Hague: Kluwer
Law International, 2000) pp. 42-91.
12
The Quran is the primary source of law in Islam and is believed by Muslims
to be the word of God revealed through the Angel Gabriel over a period of
approximately 23 years. It has 6,666 verses, divided into 114 chapters and 30
parts.
13
The Hadith, i.e. the custom or usage of the Prophet Mohammed is known
as Sunna; i.e. his words and deeds. Hadith, means the traditions of the Prophet
Mohammed—the records of his actions and his sayings. Unlike the Quran,
which was written and compiled during the lifetime of the Prophet Mohammed,
the Ahadith (plural of Hadith), were not so compiled. It was after the death of
the Prophet that the community realised that in addition to the Quran, the
sayings and actions of the Prophet were guiding principles for Muslims.
14
Ijma or consensus of opinion has been defined as agreement among the
Muslim jurists in a particular age on a question of law. A. Rahim, Muhammadan
Jurisprudence (Lahore: Mansoor Book House, 1995) p. 97. Rahim cites the
following authorities: ‘Taudih’, p. 498; ‘Mukhtasar’, Vol. II, p. 29; ‘Jam’ul-
Jawami’, Vol. III. p. 288.
15
Qiyas, translated as analogical deduction is the fourth source of Islamic law.
As a source of law, it comes into operation in matters which have not been
covered by a text of the Quran or tradition (the term tradition is used
interchangeably with the Hadith of the Prophet Mohammed), nor determined
by consensus of opinion. The law is, thus, deduced from what has been laid
down by any of these authorities, by the use of Qiyas.

9
as mujtahid. It is in the doctrine of ijtihad that the Islamic legal
doctrine was meant to find its evolutionary path. Historically,
however, with the emergence of the four schools of juristic
thought, it was declared that ‘the doors of ijtihad had closed
forever’ and that independent juristic reasoning and hence legal
development in keeping with the times, was precluded forever.
This position has been challenged by many Muslim scholars who
believe that ijtihad is an ongoing intellectual pursuit and cannot
be discontinued.16
Over the centuries, Islamic law developed by drawing upon the
above sources and juristic techniques. Sharia’ which is now used
interchangeably with the phrase Islamic law, became rigid and
less amenable to changing needs. Since the Sharia’ drew heavily
upon the two primary sources, the Quran and Sunna for its
formulations, in due course of time, the entire corpus of the
Sharia’ was elevated to the status of divine law, immutable. Hence,
beyond evolution and change. Sharia’, it may be argued, by its
very definition has evolution built into its meaning and cannot
be rigid. (The term Sharia’ means a watering place, a flowing
stream, where both animals and humans comes to drink water.
Stagnant and standing water is not Sharia’ ).17 How is it then, that
a concept that has mobility built into its meaning is perceived as
being averse to developing new legal concepts such as human
rights? It is submitted that Muslim scholars have failed to make
use of the inbuilt dynamism and flexibility in the Sharia’; neither

16
Cf. Bangladesh study where majority of respondents stated that in their
view, ijtihad was not a relevant or desirable way forward in terms of discussions
on Islamic law and CEDAW.
17
In the opinion of An-Na’im, Sharia’ was constructed by Muslim jurists and
although derived from the Quran and Sunna, is not divine because it is the
product of human interpretations of those sources. An-Na’im, Towards an
Islamic Reformation (Syracuse: Syracuse University Press, 1990).

10
have those juristic techniques where principles of one school are
applied to litigants who in theory belong to another school of
Islamic juristic thought.18 In this context, responsibility for under-
utilisation probably also stems from the lack of appreciation of
how Islamic law and jurisprudence works and has evolved over
the centuries. It also reveals the fact that writers professing a
static view of Sharia’, are unaware of the plurality of legal
tradition in Islam or simply impatient with its complexities and
desire them to ‘will them away’ by refusing to engage in a
discussion on the subject.19 If Muslim scholars (and indeed this
movement must come from within the Muslim community)
succeed in overcoming this psychological barrier of not being
able to work on reforming the Sharia’ which they perceive as
being divine law, whole new vistas for evolving concepts such as
human rights in cross-cultural discourse would open up.

18
Such as the doctrines of Taqlid and Talfik.
19
There is some evidence to suggest that this plurality irritated the colonial
authorities in nineteenth century India, for example, who wanted to ‘apply’ a
cut and dried Islamic law in the courts. For an interesting discussion on the
subject see, M. Anderson, ‘Islamic Law and the Colonial Encounter in British
India’ in C. Mallat and J. Connors (eds.,) Islamic Family Law (London: Graham
and Trotman, 1990).

11
It has been argued that the basic tone and complexion of Islam
is reformative, enjoining upon people equity and justice for all.20
The ethical voice of the Quran is said to be egalitarian and non-
discriminatory.21 At the same time, it concedes to resourceful,
adult Muslim men, as the privileged members of society,
responsibility to care for (and exercise authority over), women,
children, orphans, and the needy. The Quran, therefore, also
contains verses validating the creation and reinforcement of
hierarchies based on gender and resources. But these verses are
very few, not exceeding 6 out of a total of 6,666 that make up
the text of the Quran. Yet it is difficult to understand why and
how these 6 verses outweigh the remaining 6,660, and the position
of women in Islam appears to be determined solely on rules
derived from a literal and restrictive reading of these few verses.22

A number of scholars have challenged the restrictive

interpretations of the religious text in Islam. They argue that
norms in the Islamic tradition, discriminatory to women, are a
result of the fact that historically it was men who acted as

20
For this line of argumentation see generally, F. Rahman, ‘Status of Women
in the Quran’ in G. Nashat (ed.,) Women and Revolution in Iran (Boulder: Westview
Press, 1983); J. L. Esposito, Women in Muslim Family Law (Syracuse: Syracuse
University Press, 1982); A. al-Hibri, ‘A Study of Islamic Herstory: Or How
Did we Ever Get into this Mess?’ Women Studies International Forum, Vol. 5,
1982 B. Utas (ed.,) Women in Islamic Societies (London: Curzon Press, 1983); F.
Hussain (ed.,) Muslim Women (New York: St. Martin’s Press, 1984); F. Mernissi,
Beyond the Veil (Bloomington: Indiana University Press, 1987); F. Mernissi, Women
and Islam Translated by Mary Jo Lakeland, (Oxford: Basil Blackwell, 1991); L.
Ahmed, Women and Gender in Islam: Historical Roots of a Modern Debate (New
Haven: Yale University Press, 1992); An-Nai’m, 1990; R. Hassan, ‘An Islamic
Perspective’ in J. Belcher (ed.,) Women, Religion and Sexuality (Geneva: WCC
Publications, 1990).
21
Ibid.
22
These Quranic verses include the following: 2:221; 2:228; 2:282; 24:30; 4:3;
4:34 and will be dealt with in the study.

12
commentators and interpreters of the religious texts as well as
legislators, jurists and judges and people in power.23 It has also
been observed that latter day legal, political and economic
developments in the Muslim world too contributed to a
perpetuation of an Islamic legal tradition seeking to uphold
gender inequality as the dominant theme of the Quran.24 These
scholars have attempted to present alternative interpretations to
the Quranic verses that declare the inherent superiority of Muslim
men by arguing for a radically different construction to be placed
on them.

2.2 Women’s Human Rights in Islam

A Conceptual Analysis25

Attempting to develop a conceptual framework for women’s

human rights in Islam is a complex and intricate task primarily
due to the multiple layers of regulatory norms informing women’s
status as well as the varying interpretations of the Quran and
Hadith. In an earlier work,26 I have used a methodology for this

23
Ibid 20.
24
The Muslim world has had more than its fair share of authoritarian regimes
where the voice of the people was rarely heard. Traditionally, women were
confined to the home and public life, i.e., matters of state, government and
making interventions in public life was considered outside her domain. The
last three centuries also saw the vast majority of Muslim countries colonised
and hence suppressed under alien rule. The post-colonial era brought its own
political and economic problems. It is not surprising, therefore, that in countries
where the male population found itself unable to share in governance, women’s
participation and empowerment was far more problematic.
25
This section draws upon S. S. Ali, 2000, pp. 42-91.
26
Ibid pp. 42-91.

13
framework by combining Esposito’s hierarchical notion of rights
and Hevener’s categorisation of rights and applying this to
women’s human rights in Islam.

As the very word of God, the Quran is the fundamental textual

source of Islamic law. John Esposito states that the primary legal
value of the Quran stems from the fact that it is an ethico-
religious revelation and acts as the source book of Islamic values
from which specific regulations of substantive law (furu-al-fiqh)
are derived through human effort.27 Esposito believes that this
task may be achieved through Muslim exegesis which is a
systematic study of the value system of the Quran and the
hierarchisation of its ethico-religious values.28 This method would
resolve the problem of naskh (abrogation, the suppression of
one Sharia’ rule by a later one where divergent regulations exist)
as well as supply a reasonable explanation for the
comprehensiveness of the Quran. Most importantly, it would
provide a context within which one could understand the value
of specific Quranic regulations by shifting the emphasis beyond
the specific regulations to its intent, to the value it sought to
uphold.29 Thus, the Quranic prescription has two levels of
importance—the specific injunction or command, whose details
may be relative to its space and time context, and the ideal or
Quranic value, whose realisation the specific regulation intends
to fulfil. Since the task of the Muslim community is the realisation
of these Quranic values, the goals of jurists is to ensure that fiqh
regulations embody these Sharia’ values as fully and perfectly as
possible.

27
Esposito, 1982 pp. 107-108.
28
Ibid, citing I. R. al-Faruqi, ‘Towards a New Methodology of Quranic Exegesis’
Islamic Studies, 1962, p. 35.
29
Ibid., pp. 107-108.

14
Verses from the Quran have been used by different factions to
support a woman’s subservience to a man and to defend her
rights to equality. This seeming contradiction can, therefore, be
resolved by an analysis of the relevant Quranic verses through
a system of ‘hierarchisation of Quranic values’ used by Esposito
to deal with human rights of women in Islam. This method, it
is stated, is reminiscent of the process by which Quranic values
were first applied to newly encountered social situations in the
formative period of Islam by differentiating between the socio-
economic and the ethic-religious categories in Quranic legislation.30
While women’s status is inferior to men in the former, they are
full equals in the latter as to the spiritual and moral obligations
imposed upon them, in their relationship to their Creator, and
in the compensation prepared for them in the Hereafter.31 While
the status difference of men and women in the socio-economic
sphere belongs to the category of Muamalaat (social relations),
which are subject to change, their moral and religious equality
belongs to the category of Ibadaat (religious duties towards God),
which are immutable. 32 By applying the principle of
‘hierarchisation’ of Quranic values, the Muslim reformers argue
that the moral and religious equality of men and women
“represents the highest expression of the value of equality”33
and, therefore, constitutes the most important aspect of the
Quranic paradigm on the issue. Keeping this scheme of

30
Ibid.
31
For example, as stated in Quranic verses 33:35; 9:71; 40:40; 9:72; 48:5;
57:12; 3:195; and others.
32
Esposito, 1982 pp. 107-108.
33
Ibid., pp. 107-108.

15
‘hierarchisation’ in mind, it is possible then to categorise women’s
human rights in Islam.34
Alongside Esposito’s hierarchisation of rights, Hevener classifies
international human rights instruments relating to women, as
having undergone a progressive journey through three stages,
each representing international consensus on women’s human
rights.35 These categories are: protective, corrective, and non-
discriminatory. The protective category is one where laws are
formulated which reflect a societal conceptualisation of women
as a group which either should not or cannot engage in specified
activities. They imply that women are a subordinate, weak and
disadvantaged group in society; hence the need to extend
protection of unlimited duration.36 The second category is the
corrective category, which also identifies women as a separate
group which needs separate treatment. But the aim of the
corrective provisions is “to alter and improve specific treatment
that women are receiving, without making any overt comparison
to the treatment of men in the area. They may be of limited
duration, depending on the time period required to achieve the
alteration desired.”37 Finally, the non-discriminatory, sex-neutral,
category includes provisions, which reject a conceptualisation of
women as a separate group, and rather reflect one of men and

34
A word of caution here. Although Esposito’s attempt at hierarchisation of
rights within the Islamic tradition is an important step in his endeavour to
develop a modern framework for achieving equality for the sexes, we must not
lose sight of the fact that in his attempt to realise the legislative value of
Quranic verses, he places emphasis on exegesis or tafsir. As is evident from
literature on the subject, the process of exegesis itself resulted in some
restrictive interpretations to Quranic verses regarding the status of women.
35
See N. Hevener, International Law and the Status of Women (Boulder: Westview
Press, 1983.
36
Ibid., p. 4.
37
Ibid.

16
women as entitled to equal treatment. The concept is one that
holds that biological differences should not be a basis for the
social and political allocation of benefits and burdens within a
society. These provisions treat women in the same manner as
men.38 For the purpose of analysing women’s human rights in
Islam, it is proposed to add here a fourth category, i.e., the
discriminatory category wherein certain injunctions, rules and
regulations of the Quran and Hadith literature may be placed,
where women and men clearly appear unequal. In the remaining
part of this section, it is proposed to use a combination of the
methods of ‘hierarchisation’ and ‘categorisation’ of women’s
human rights to discuss these within the Islamic tradition.
The non-discriminatory category of rights which is akin to the
Ibadaat hierarchy proposed by Esposito comes closest to women’s
rights to equality and non-discrimination in CEDAW. This equality
comes across most prominently in issues such as the creation of
man and woman, moral and spiritual obligations, and reward
and punishment. The Islamic tradition is clear that God created
men and women from one fundamental substance. As the Quran
says:

He created you from one being, then from that (being)

He made its mate.39

Hadith literature also presents instances where the principle of

complete equality has been espoused. The Prophet Mohammed
is reported to have said:

All people are equal, as equal as the teeth of a comb. There is

no claim of merit of an Arab over a non-Arab or of a white

38
Ibid.
39
The Quran, verse 39:6.

17
over a black person: Only God-fearing people merit a preference
with God. Thus men and women are equal. 40

In the Quran, Adam and Eve are held jointly responsible for the
transgression and consequent expulsion from paradise.41 Verse
7:18-26 is self-explanatory in this regard:

On the ethico-religious level (or Ibadaat on Esposito’s hierarchy

of rights), the position of men and women are on an equal
standing, “both as to their religious obligations toward God and
their peers as well as their consequent reward or punishment”.42
In support of this argument, Esposito cites verses 9:71-72 of
the Quran which state thus:

The Believers, men and women, are protectors one of another:

they enjoin what is just, and forbid what is evil; they observe
regular prayers, practice charity, and obey God and His Apostle.
On them will God pour His mercy... God hath promised to
believers men and women, gardens under which rivers flow, to
dwell therein, and beautiful mansions to dwell in gardens of
everlasting bliss.

Similarly, the following verses also reflect equality in moral and

spiritual obligations:

For Muslim men and Muslim women, for believing men and
believing women, for devout men and devout women, for true
men and true women, for men and women who are patient and

40
The last address of the Prophet Mohammed to the Muslims on the occasion
of the Hajjat-ul-Wida (the last pilgrimage).
41
B. Stowasser, ‘Religious Ideology, Women, and Family’ in B. F. Stowasser
(ed.,) The Islamic Impulse (London: Croom Helm, 1987) pp. 22-23.
42
See Esposito, 1982; M. M. Taha, The Second Message of Islam, translated by A.
A. An-Nai’m (Syracuse: Syracuse University Press, 1987) p. 139. Here he argues
that Islam’s original precept is complete equality between men and women.

18
constant, for men and women who humble themselves, for men
and women who give charity, for men and women who guard
their chastity, and for men and women who engage in God’s
praise, for them has God prepared forgiveness and great reward.43

Whoever doeth right, whether male or female, and is a believer,

him verily We shall quicken with good life.44

Along with equal rewards in the hereafter, equality in punishment

is enjoined for violating divine laws. So, for instance, indulging
in sexual relations outside marriage brings with it severe
punishment for both men and women as stated in verses 24:2-
4 below:

The adulterer and the adulteress,

Scourge each one of them
(with) a hundred stripes.
And let not pity for the
Twain withhold you from
Obedience to Allah,
If ye believe in Allah
And the last day.
And let a party of believers
Witness their punishment.

43
The Quran, verse 33:35. Taha, in support of the equality argument also cites
other Quranic verses. These include 40:17: “Today each soul is rewarded for
what it earned, without unfairness. Surely, God is swift at reckoning.” Verse
74:38 “Every soul is pledged for what it has earned.” Verse 6:164 “Nor does
any bearer of burden bear the burden of another, no matter how overburdened
and not even of a kin. You are to warn (those) who sincerely fear God and
perform the prayer. And who pay alms (zakah) is cleansing himself, and to
God (you) shall return.”
44
The Quran, verse 16:97.

19
The adulterer shall not Marry,
Save an adulteress
Or an idolatress, and the
Adultress none shall marry,
None save an adulterer or an idolater.
All that is forbidden unto believers.
Even though the Quranic verse 2:282 has been used to lay down
a rule that the value of the testimony that a woman given in
court in financial transactions has to be corroborated by another
woman, thus leading to the commonly-held notion that the
evidence of two women is equal to that of a single male, yet
there are instances where the evidence of one woman outweighs
that of a man. A woman’s oath in cases where her husband
accuses her of adultery is enough to avert punishment. Verses
24:6-9 state the following:
As for those who accuse their wives but have no witnesses
except themselves; let the testimony of one of them be four
testimonies, (swearing) by Allah that he is of those who speak
the truth; and yet a fifth, invoking the curse of Allah on him if
he is of those who lie. And it shall avert the punishment from
her if she bear witness before Allah four times that the thing he
sayeth is indeed false. And a fifth (time) that the wrath of Allah
be upon her if he speaketh the truth.
Islam has accorded women civil and property rights, including
rights of inheritance. She has been guaranteed complete control
over what she earns and possesses:
And their Lord hath heard them (and He sayeth): Lo! I suffer
not the work of any worker, male or female, to be lost. Ye
proceed one from another 45

45
The Quran, verse 3:285.

20
Unto the men belongeth a share of that which parents and
kindred leave, and unto the women a share of that which parents
and near kindred leave.46
Unto men a fortune from that which they have earned, and unto
women a fortune from that which they have earned.47
The above-mentioned Quranic verses thus create a hierarchy of
non-discriminatory rights. Some other examples of non-
discriminatory laws granting Muslim women complete equality
with men are: that she is sui juris (legal person) and can make
independent decisions as regards entering into a contract, and
the acquisition, disposal and alienation of property. The property
laws of the Quran guarantee women the right to have full
possession and control of their wealth including dower, during
marriage and after divorce.48 In the sphere of family law too,
certain provisions afford women complete equality. For example,
the right to enter marriage of her own will, on attaining
adulthood, without an intermediary (wali).49

Contrary to popular belief, there is nothing in any verse of the

Quran barring women from participation in public and political
life, including the right to vote, holding public office such as
head of state, judicial office etc. Many Ahadith, however, declare

46
The Quran, verse 4:7.
47
The Quran, verse 4:32.
48
The Quran, verses 4:7; 4:11; and 4:12 as regards inheritance and bequeathal
rights of women. and 4:4; 4:24; 4:20; 4:21; 2:229 for full possession and
control over their wealth.
49
This, however, is a controversial right since under Shafei law a women always
needs a guardian to contract her in marriage even on attaining puberty. Even
under Hanafi law it is subject to debate as seen in the recent Pakistani case
Asma Jehangir vs Abdul Waheed, PLD 1997 Lah. 301. For a detailed discussion,
see chapter 4 of this study.

21
some professions as out of bounds for women, one such being
that of head of state. For instance, one of the most oft-quoted
Hadith runs thus: “Those who entrust their affairs to a woman
will never know prosperity.”50 This Hadith barring women from
public life first appeared on the Muslim political scene about 25
years after the death of the Prophet Mohammed and was narrated
by one Abu Bakra. He recollected this Hadith at a highly
opportune moment—the entry into Basra of the Caliph Ali
after defeating Aisha (wife of the Prophet Mohammed) at the
Battle of the Camel! Abu Bakra was among the notables of
Basra who had refused to participate on either side in the civil
war and was fearing a reprisal from the Caliph Ali. Conveniently
recalling such a Hadith obviously meant soliciting political favour
with a victorious leader at the cost of the vanquished foe. But
this seemingly benign act of political expediency had far reaching
consequences on the status of women and how they would
henceforth be perceived, for in this case, the defeated insurgent
leader happened to be a woman. Hadith being a source of Islamic
law, has to be compiled scientifically along stringent rules to sift
the authentic ones from those that have been fabricated or those
that do not fulfil the rules laid down for determining authenticity
of traditions.51 One such rule is uprightness of character of the
narrator. Applying this rule to Abu Bakra, he allegedly stands
disqualified as he was convicted and flogged for false testimony

50
Bukhari, Sahih, Vol. 4, p.226. The Sahih by Bukhari, along with five other
Hadith collections, rank as the “Six” authentic compilations of the words and
deeds of the Prophet Mohammed. These include Hadith collections of Muslim
ibn’l Hajjaj; Timidhi; Abu Daud; Ibn Majah and Nisa’i. For details of works
see A. Rahim, 1995, pp. 1-31.
51
For a comprehensive discussion on classification of Hadith, and rules for
authenticity see Ibid., pp. 58-65.

22
(Qadhf), by the second Caliph, Umar Ibn-Al-Khattab.52 Despite
this questionable background, many Muslims quote this Hadith
as “authority” for excluding women from decision-making and
public life.

The historical context of the Hadith under discussion is reported

to have been the occasion when the Prophet Mohammed received
news that Khusro’s daughter had succeeded to the throne. It is
said that this woman was known to be highly authoritarian, and
the comment in all likelihood was specifically in relation to her.
Scholars like Dr. Abdul Hameed consider this Hadith as being
informative in nature and certainly not an immutable injunction
for Muslims at all times and in all ages.53

In contradistinction to the above Hadith, one finds that in chapter

27 of the Quran entitled “Naml” or the Ants, Bilquis, the Queen
of Sheba and her rule is mentioned with great commendation.
Verses 32-34 of that chapter in particular describes Bilquis as a
ruler enjoying great wealth and dignity, and full confidence of
her subjects. She administers the country in consultation with
her council who in turn are committed to her and carry out her
bidding. Might we not, therefore, argue, that if Islamic injunctions
were set against women as head of state or holding any other
political office, the Queen of Sheba would not have found such
honourable mention in the Quran? That women were an important

52
Ibn al-Athir, Usd al-Ghabrafi tamyiz al-sahaba, Vol. 5, (Beirut: Daral-Fikr) p.38.
For a detailed discussion of the circumstances surrounding narration of this
Hadith, see Mernissi, Women and Islam, 1987. For a critique of Mernissi’s analysis
see R. Afshari, ‘Egalitarian Islam and Misogynist Islamic Tradition: A Critique
of the Feminist reinterpretation of Islamic History and Heritage’, Critique,
Vol. 4, 1994, pp. 13-33.
53
A. Hameed, Mabadi-e-Nazam ul Hukam Al Islami, cited in Stowasser 1987 pp.
876-878.

23
constituent of the Muslim community and indeed expected to
participate in political life is borne out by the fact that women
as a group participated in the initial pledge of allegiance (bay’a)
extended to the Prophet Mohammed by the Muslims.54 This
practice was continued in later years as well, making it an integral
part of the political process.55

It is important to make the point here that Aisha, wife of the

Prophet Mohammed actively participated in political and public
life. She is one of the most renowned and credible narrators of
the Hadith, and is known to have completed and corrected many
Ahadith reported inaccurately or inadequately.56

The Protective and Corrective Category, Muamalaat and

Women’s Human Rights

In order to appreciate the protective and corrective category of

women’s human rights in Islam, it is important to study these
against the background of the Jahilliyya. The basic teachings of
the Quran focus on efforts to improve the condition of, and
strengthen the weaker segments of society in pre-Islamic Arabia—
orphans, slaves, the poor, women, etc—segments which had
been abused by the stronger elements in society.57 Therefore,

54
Stowasser, 1987
55
L. P. Sayeh & A. M. Morse Jr., ‘Islam and the Treatment of Women: An
Incomplete Understanding of Gradualism’ Texas International Law Journal,
Vol. 30, 1995, pp. 311-323 and accompanying footnotes.
56
Ibid., pp. 322-323 and accompanying footnotes. For an interesting account
of the life and personality of Aisha, wife of the Prophet Mohammed see, N.
Abbott, Aishah the Beloved of Mohammed (New York: Arno Press, 1973). For a
more recent account see, D. A. Spellberg, Politics, Gender, and the Islamic Past.
The Legacy of Aisha Bint Abi Bakr (New York: Columbia University Press,
1994).
57
Rahman, 1983.

24
Quranic verses aimed at ameliorating the plight of the
downtrodden classes, and women in particular stand out
prominently. At the same time it has to be conceded that no
matter how revolutionary the philosophy of Islam may have
been, in order to take root among a tribal, patriarchal society, an
outright break with the past would not have served any useful
purpose. It is perhaps difficult to appreciate today, in the closing
years of the twentieth century, the extent of reform brought
about by Islam fourteen hundred years ago in laying the
foundations of an egalitarian society based on the principles of
social justice. Therefore, a number of rights discussed in this
section will no doubt come across as half-measures and incapable
of according women the same degree of importance as men.

Using Esposito’s ‘hierarchisation’ of Quranic values, we come to

the second category of women’s human rights, i.e., rights that
deal with muamalaat or the socio-economic sphere of life. Here
we discern some verses that accord more rights to men but have
been framed so as to appear as corrective of wider forms of
discrimination in pre-Islamic Arabia and/or seen as protecting
women along with other disadvantaged sections of society. It
may be argued that these categories are not immutable as they
are susceptible and sensitive to changing perceptions of society.58
As Fazlur Rahman argues, “although woman’s inferior status has
been written into Islamic law, it is by and large the result of
prevailing social conditions rather than of the moral teaching of
the Quran.”59 Changing social conditions may, therefore, propel

58
In Hevener’s categorisation of rights, the protective category is deemed of
unlimited duration whereas rights placed in the corrective category may be of
limited duration and no longer required when men and women achieve
complete equality.
59
Rahman, 1983.

25
protective and corrective rights into the non-discriminatory
category.60

Among many Arab tribes, the girl child was an unwelcome

intruder and was buried alive for reasons of poverty and honour.61
The Quran describes the situation in the following words:

When one of them is given the glad tidings of (the birth of) a
female, his face darkens as he tries to suppress his chagrin. He
hides from people out of a sense of disgrace of the news he has
been given and he ponders whether to keep her in disgrace or
shove her under the earth. Evil is, indeed, what they judge.62

In the corrective category of women’s human rights, therefore,

perhaps the most important piece of Quranic injunction is the
prohibition on female infanticide and hence the right to life for
the girl child. In this regard the Quran enjoins thus:

Slay not your children,

Fearing a fall to poverty.
We shall provide for
them and for you.
Lo! the slaying of them
Is a great sin” 63

60
It is here that my views on Hevener’s categorisation differ to the extent that
in applying these I perceive all four categories as a continuum flowing one
from the other.
61
Rahman, 1983, p. 37; Rahim, 1995.
62
The Quran, verse 16:58-59.
63
The Quran, verse 17:31. Similarly, in verse 6:151 the same commandment
is repeated in these words: “Kill not your children on a plea of poverty we
provide for you and for them.”

26
Hadith literature also contains a number of incidents and sayings
of the Prophet Mohammed that are reflective of the concern
that female infanticide gave rise to. Since pre-Islamic Arabia
regarded the birth of a girl-child as a punishment and humiliation
from the gods it was important that pronouncements be made
to reinforce the Quranic statements prohibiting the practice and
removing the prevalent misgivings entrenched in the Arab mind.
These Ahadith were corrective of the social norm of female
infanticide by engendering sentiments of love, affection and
mercy for the girl-child in the hearts of their parents.64
The pre-Islamic practice of zihar whereby an Arab husband
would make a pronouncement of divorce upon his wife by
comparing her with the back of his mother (and therefore
prohibited to him), was also abolished.65 This prohibition came
in the light of the humiliation caused to the woman as a result
of this particular form of divorce. Verse 33:4 of the Quran
states:
God has not put two hearts in any man’s breast: He has not
made your wives with whom you do zihar your mothers, nor has
He made your so-called (i.e., adopted) sons your real sons.

64
It is related from Aisha, wife of the Prophet Mohammed, “If daughters are
born to a parent and he treats them benevolently and beneficently, he will be
secured from the fire of Hell.” Anas bin Malik reports, “He who brings up
two girls and they attain puberty, will come on the day of judgement and he
and I will be like this”. Saying this the Prophet joined his fingers. Abdullah
reports, “If a girl child is born to someone and he brings her up well and
educates and trains her well and whatever mercy is shown to him by Allah is
showered by him on his daughter, that girl will be a screen and curtain for him
from the fire of Hell.” Cited in A. Hussain, Status of Women in Islam (Lahore:
Law Publishing Company, 1987) appendix, pp. 1-10.
65
For a discussion of the various kinds of divorce in pre-Islamic Arabia, see
Rahim, 1995, pp. 8-9; Rahman, 1983.

27
Another corrective measure in the Quranic text relates to a pagan
custom whereby a son inherited his stepmother as part of his
father’s legacy. The son could either force her to marry him or,
debar her from remarrying anyone else for the rest of her life.
In the absence of a son, the next male kin of the deceased had
the same power over her.66

Another example of a protective/corrective right in the muamalaat

hierarchy is the right of inheritance granted to women which is
invariably half that granted to men in comparable situations.
The Quran states:
God thus directs you as regards your children’s (inheritance). To
the male a portion equal to that of two females.67
Although the right to inheritance is corrective of the pre-Islamic
custom of exclusion of women from any form of inheritance
while also being protective of her vulnerable economic position,
the half share is in any case discriminatory of her equal rights.
But many writers on Islamic law have argued that this law does
not discriminate against women. Perveen Shaukat Ali, for instance,
is of the view that:
...in their opinion this is against the basic rules of justice to give
women half of the male’s share. It may, however, be pointed out
that a woman is in no way a loser in this bargain. She gets her
part of property from three different sources i.e., father, husband
and son, and this makes her share almost equal to man.68

66
Rahim, 1995; Rahman, 1983. The prohibition came in verse 4:19 of the
Quran.
67
The Quran, verse 4:11.
68
P. S. Ali, Human Rights in Islam (Lahore: Aziz Publishers, 1980) p.120.

28
It is submitted with respect to Perveen Shaukat Ali’s argument,
that men too inherit from other sources. They inherit from the
mother, wife, and daughter and in most cases their share is
double that of the woman’s.69 Inheritance rights of women may
be placed in the protective category by virtue of the fact that
Quranic injunctions ensure to women a basic minimum share,
recognising the reality that they will always be a class of persons
in need of protection. This is borne out by centuries of
oppression where women have not and in all likelihood, will not
in the foreseeable future be able to attain substantive economic
parity with their male counterparts. At the same time, however,
this minimum share does not preclude an enhanced share or a
share equal to or more than that of a male. A parent, spouse or
any other person may, by executing a valid gift deed, give away
his/her entire wealth to a woman to the exclusion of all expectant
male heirs. Similarly, a husband may, under a stipulation in the
marriage contract, be divested of his entire possessions by way
of dower, as there is no maximum limit to what may be given
as dower to a wife.

In the area of family law, human rights of women are for the
most part of the corrective/protective category although as
mentioned above the initial premise of entering into the marriage
contract is one of complete equality. However, once the contract
is made, then inequality between the contracting parties emerges.
For instance, under the “protective” right of dower as a

69
For example, as a wife who has children, a woman inherits one eighth of
her husband’s estate; one-fourth if she is childless. A husband on the other
hand inherits one-fourth from his wife if they have children, one half if they
are childless. For a detailed exposition of the Islamic law of inheritance see,
M. A. Mannan, Principles of Muhammadan Law (Lahore: PLD Publishers, 1995)
chapter 6, 7, and 8.

29
“consideration” for the marriage contract, the husband becomes
the protector and the wife, the protected. She retains the dower
(or the right over it if not paid already), so long as she remains
the wife or the husband dissolves the marriage tie by talaq.70 But
if the wife is desirous of terminating the contract,71 then this
protection of dower money or property must be returned to the
husband to “ransom herself from her husband”.72

The Quran also introduced significant changes in the concept of

dower. In contrast to the pre-Islamic notion of dower as a form
of bride-price to be appropriated by the father or other male
relative of the woman, the wife became the sole recipient of this
sum of money or other property. Islamic law developed dower
into an essential component of the marriage contract.
Furthermore, verse 4:20 also prohibited the practice of forcing
one’s wife to make a will in one’s favour that remitted the dower
or any other gifts the husband had given to her.

But if you do want to take another wife in her place (i.e., by

divorcing her) and if you have gifted to her a heap of gold, do
not take anything back from it; Will you take it back as a stunning
lie and a clear sin? And how will you take it back when you have
been intimate with each other and they have had solemn promises
from you?73

70
The unilateral right to terminate the marriage contract belongs to the husband
under Islamic law which is technically known as talaq. The husband has to pay
the wife the dower on pronouncement of talaq.
71
The concept of the wife being able to “buy” her freedom by returning her
dower is technically known as khula which affords a woman the right to get
out of an undesirable union.
72
The Quran, verse 2:229.
73
The Quran, verse 4:20.

30
Haeri sums up this reform in family law in the following words:

In the seventh century AD the Prophet Mohammed unified the

multiplicity of pre-Islamic modes of sexual mores of sexual
unions by outlawing all but one form of marriage, namely
marriage by contract. Fundamental to this rearranging of the
existing social structure was the realignment of the role of the
husband and wife into that of the principal transacting parties.
As distinct from the pre-Islamic form of ‘marriage of dominion’,
Islamic law recognised the wife — not her father — to be the
recipient of the brideprice. Implicit in this act is a recognition of
a degree of women’s autonomy and volition. As a party to the
contract, it is the woman herself who has to give consent —
however nominally — for the contract to be valid. And it is the
woman herself, not her father (custom aside), who is to receive
the full amount of brideprice, be it immediate or deferred.”74

It is an established fact that traditional Islamic law accords the

Muslim male a unilateral right to dissolve the marriage (talaq)
without assigning any cause 75 and without the interference of
the court.76 On the other hand it confers on a woman the right
to seek dissolution of the marriage tie by foregoing her dower,

74
S. Haeri, ‘Divorce in Contemporary Iran: A Male Prerogative in Self-Will’
in Islamic Family Law (London: Graham & Trotman, 1990) p. 56.
75
In a famous Pakistani case, Khurshid Bibi vs Mohammed Amin PLD 1967 SC
97, their Lordships were of the view that talaq is not an unfettered right of
the husband as the Quran in 4:35, provides for the appointment of arbiters to
curtail the unbridled exercise of this right. These fetters are hardly effective
if the husband is determined to go ahead with the pronouncement of divorce.
76
Despite this privilege accorded to the husband in traditional Islamic law,
many Muslim countries have legislated certain procedural requirements that
have to be undertaken to finalise the divorce. See for instance, the Muslim
Family Laws Ordinance, 1961 of Pakistan.

31
with the difference that the woman has to convince the court of
her fixed aversion and irretrievable breakdown of the marriage
(khula)77. Although some leading judgements from the superior
courts of Pakistan have tried to equate the right to pronounce
talaq by the husband with the right of khula available to the
woman,78 yet it is submitted that there are major differences
between these two modes of dissolution of marriage. No matter
what obstacles one places in the husband’s right to give talaq, at
the end of the day by its very definition, talaq may be pronounced
with or without the intervention of a court of law. On the other
hand, if a woman fails to convince the judge of the genuineness
of her case for khula, she cannot unilaterally terminate the
marriage contract.79 It is with these drawbacks in mind that the
right of khula is being placed in the protective/corrective category
of women’s human rights rather than in the non-discriminatory
one.
A further protective right as regards dissolution of marriage, is
talaq-i-tafwid or delegated right of divorce given to the wife in
the contract of marriage. Muslim women may take advantage of
the fact that marriage is a civil contract and stipulations limiting
or even prohibiting the husband from dissolving the marriage tie
can be incorporated in it. An effort at achieving some measure
of equality may thus be successful.80

77
PLD 1967 SC 97.
78
For example in Safia Begum vs Khadim Hussain 1985 CLC 1869 and Syed
Mohammed Rizwan vs Mst. Samina Khatoon 1989 SMCR 25.
79
For instance, see Aali vs Additional District Judge I, Quetta 1987 CLC 27,
Raisa Begum vs Mohammed Hussain 1986 MLD 1418 and many others.
80
Here a note of caution as regards these stipulations favourable to women.
Societal pressure strongly discourages use of these rights afforded to women.
For details, see S. S. Ali, ‘An Analysis of the Trends of the Superior Courts
of Pakistan in Matters Relating to Marriage, Dower, Divorce’, Working Paper
for the Women and Law Project, Women Living Under Muslim Laws, 1993.

32
The right of the wife to be properly fed and clothed at the
husband’s expense is another protective right afforded to the
woman.81 This right is available to her even though she may be
wealthier than the husband and capable of maintaining not only
herself but him as well.82

The divorce laws stipulating a waiting period (iddat) during which

the marriage is suspended, but not terminated, may also be seen
in a protective/corrective framework. In the pre-Islamic laws of
divorce, husbands were not required to follow any particular
procedure for terminating the marriage contract. They could at
will marry, divorce, and remarry the same woman. By laying
down a waiting period before which the divorce became
irrevocable, the unilateral right of divorce allowed to men (and
not to women), was toned down and chances for reconciliation
kept alive until the period of waiting expired.83

As regards the rights and privileges of a woman in her capacity

as a mother, the concept of child care as a joint parental and
social responsibility has deep roots within the Islamic tradition.

81
For example as enjoined in the Quran, verse 4:34.
82
But this protective right to be maintained ceases as soon as the woman is
divorced or is widowed. For the issue of post-divorce maintenance, see the
famous Indian case of Mohammed Ahmed Khan vs Shah Bano Begum and others
AIR 1985 SC 945.
83
There are three modes of pronouncing talaq. Talaq-i-Ahsan, Talaq-i-Hasan
and Talaq-ul-Biddat. The first two offer some scope for reconciliation as the
divorce does not become irrevocable for some time. The time afforded before
the divorce becomes irrevocable is the first kind of waiting period. Then
there is the period of iddat, which is a period during which a woman whose
marriage has been terminated either by death or divorce may not remarry.
Talaq-ul-Biddat (the third kind mode), is an irrevocable divorce as soon as it is
pronounced and there is no chance of reconciliation. This mode is not the
one sanctioned by the Prophet Mohammed, and hence rejected by some
Muslims.

33
While breastfeeding and its duration is recommended, the
modalities are to be decided by “mutual consultation” of both
parents. If the mother is unable to fulfil her duty, the father is
under an obligation to make alternate arrangements, e.g., hiring
a wet nurse etc. Where the parents are divorced and the mother
has custody, the father is bound to feed, maintain, and pay the
mother as he would any wet nurse for performing this job.84
This placing of the monetary responsibility for the welfare of
the child and the nursing mother, although within the protective
category of human rights, reinforces the stereotype roles of men
as providers and women as passive consumers and men’s liability.

Regarding custody and guardianship of children, in cases of

divorced parents, a mother is entitled to hizanat or custody of a
boy up to the age of 7 and a female child until she attains

84
“Nor should he (father) to whom the child is born
(be made to suffer) because of his child.
(An heir shall be chargeable in the same way
If they both decide on weaning)
If they desire to wean the child by mutual consent,
And, (after) consultation, it is no sin for them,
And if you wish to give your children out to
Nurse, it is no sin for you provided ye pay
(the nursing woman as hired).
What is due from you (i.e., money that has been either
Fixed or according to common practice)
Observe your duty to Allah, and know that Allah
Is Seer of what ye do.”
Also see discussion on this point in S. S. Ali and B. Jamil, The United Nations
Convention on the Rights of the Child, Islamic Law and Pakistan Legislation: A
Comparative Study (Peshawar: Shaheen Printing Press, 1994).

34
puberty.85 After that period, custody reverts to the father who is
generally known as the “natural guardian” of his children. The
mother cannot, under traditional Islamic law be recognised as
the legal guardian of her own children. One does not come
across any verse of the Quran establishing the father as the sole
legal guardian of his children to the exclusion of the mother.
However, there is a saying of the Prophet, which is an extract
of his sermon on the occasion of the Last Pilgrimage (Hajjat-
ul-Wida), to the effect that “the child belongs to him/her on
whose bed it is born”. In the patriarchal social organisation it is
the man who has to provide the household effects (including the
bed on which the child is born). It has thus been inferred over
the centuries that the child “belongs” to the father. This is also
in line with the above mentioned principle of Islamic law where
the father is made to pay for feeding and rearing the child, even
if it is by the child’s own mother. But what is very important to
realise is that these recommendations/injunctions are always
prefaced by the economic superiority of the man. The question
posed here is: What would be the position if one were to reverse
situations and the woman/mother was the breadwinner/provider
of the family?

Discriminatory Category of Rights: The Verse 4:34 Debate

In the hierarchisation and categorisation of rights, we now come

to an area where the male is provided status, control, and authority
over the woman (although in recent years some male and female

85
These are not uniformly applicable rules as only the Hanafi Sunni school of
thought adheres to them. Under Shia law, a mother is only entitled to custody
of her minor children up to the age of 2 years in case of a male child and
7 years in case of a female. See Mannan, 1995.

35
scholars and theologians86 are challenging the male-oriented
interpretation of some of these verses). In this section it is
proposed to analyse these Quranic verses that arguably establish
and reinforce gender hierarchies within the Islamic tradition.
Although the most oft-quoted verse in this regard is verse 4:34
of the Quran, yet male dominance and priority is determined by
this verse used in conjunction with verse 2:282 (testimony of
women), verses permitting polygamy, superior right of the male
to terminate marriage etc. Each of these verses used over the
centuries as sources of positive law on the subject in various
Muslim jurisdictions are open to diverse interpretations to the
point where they have even been used to promote women’s
rights. (see discussion below).

Some Quranic laws that regulate the structure of authority in the

Muslim household stipulate that within the context of marriage
and as a member of the husband’s household, the wife is his
responsibility and hence under his authority. The Quran thus
endows the man both with authority over the woman in the
family setting, coupled with the obligation to provide for her by
way of material support.87 The classic verse confirming male

86
See for instance the work of Riffat Hassan who is to the author’s knowledge
the first and one of the very few female theologians in the Muslim world and
has written prolifically on the subject. Some of the more relevant to our
present discussion are: R. Hassan, ‘The Role and Responsibilities of Women
in the Legal and Ritual Tradition of Islam,’ Paper presented at a bi-annual
meeting of a Trialogue of Jewish-Christian-Muslim Scholars at the Joseph and
Rose Kennedy Institute of Ethics, Washington, DC, on October 14, 1980; R.
Hassan, ‘On Human Rights and the Quranic Perspective’ in A. Swidler (ed.),
Human Rights in Religious Traditions (New York: Pilgrim Press, 1982); R. Hassan,
‘An Islamic Perspective’ in J. Becher (ed.,) Women, Religion and Sexuality (Geneva:
WCC Publications, 1990).
87
B. Stowasser, 1987, p. 293.

36
superiority (or at least perceived as such by most Muslims) is the
following:

Men are the protectors

And maintainers of women,
Because God has given
The one more (strength)
Than the other, and because
They support them from their means.
Therefore the righteous women
Are devoutly obedient, and guard
In (the husband’s) absence
What God would have them guard.
As to those women
On whose part ye fear
Disloyalty and ill-conduct,
Admonish them (first)
(Next), refuse to share their beds,
(And last) beat them lightly
But if they return to obedience,
Seek not against them
Means (of annoyance)
For God is Most-High
Great (above you all).”88

As mentioned above, a number of scholars have taken up the

challenge of reinterpreting verse 4:34. Riffat Hassan, for instance
argues that:

While Muslims through the centuries have interpreted Sura An-

Nisa:34 as giving them (men) unequivocal mastery over women,

88
The Quran, verse 4:34.

37
a linguistically, and philosophically/theologically accurate
interpretation of this passage would lead to radically different
conclusions. In simple words, what this passage is saying is that
since only women bear children (which is not to say either that
all women should bear children or that women’s sole function is
to bear children) — a function whose importance in the survival
of any community cannot be questioned — they should not
have the additional obligation of being breadwinners whilst they
perform this function. Thus, during the period of a woman’s
child-bearing, the function must be performed by men (not just
husbands) in the Muslim “Ummah”.... It enjoins men in general
to assume responsibility for women in general when they are
performing the vitally important function of child-bearing.89

It is submitted, however, with respect to Riffat Hassan’s

interpretation of verse 4:34 of the Quran that, although by virtue
of her innovative interpretation, one may succeed in placing this
verse in the protective category of rights for women, her argument
cannot be used to acquire non-discriminatory status for women.
What is perhaps possible is to emphasise that verses where wealth
has been described as the sole determinant of superiority, such
as verse 4:34, we may assume that were women to achieve that
measure of financial autonomy, they would be accorded the
same status as men in a similar position.90

A further point with regard to Hassan’s interpretation lies in the

fact that she fails to come up with a plausible explanation of
why men (in that particular superior position) are justified in

89
R. Hassan, extract from a paper presented at a Quranic interpretation meeting
held in Karachi, Pakistan (8th-13th July 1990), under the auspices of Women
Living Under Muslim Laws.
90
This argument needs further research and refinement.

38
beating the woman (women) in their charge. According to her
view all three stages of admonishment are invokable only if
women (en masse), refuse to procreate. However, it has to be said
that neither a textual reading of the verse nor any contextual
evidence leads one to this inference of the said verse as presented
by Hassan.91
Aziza Al-Hibri, another Muslim scholar analyses verse 4:34 in
the following manner: “Men are qawwamun over women in matters
where God gave some of them more than others, and in what
they spend of their money.” Al-Hibri argues that the problematic
concept here is qawwamun, which is difficult to translate. She says
that while some writers translate it as ‘protectors’ and ‘maintainers’
(eg. A.Y. Ali’s translation), this is not quite accurate as the basic
notion involved here is one of moral guidance and caring.92 The
‘standard’ interpretation of the above passage declares men as
being in charge of women’s affairs because men were created by
God as superior to woman (in strength and reason) and because
they provided for women (they spend their money on them). Al-
Hibri challenges it on two counts; that it is unwarranted and that
it is inconsistent with other Islamic teachings.93 She concludes
therefore that:
Nowhere in the passage is there a reference to the male’s physical
or intellectual superiority. Secondly, since men are qawwamun over
women in matters where God gave some of the men more than
some of the women, and in what the men spend of their money,
then clearly men as a class are not qawwamun over women as a

91
Hassan,1990.
92
Al-Hibri, A ‘Study of Islamic Herstory or How Did We Ever Get into this
Mess?’ Women Studies International Forum, Vol 5, 1982, p. 207.
93
Ibid.

39
class. The conditions of being qawwamun as specified in the
passage are two:

that the man be someone whom God gave more in the matter
at hand than the woman and that he be her provider

If either condition fails, then the man is not qawwamun over that
woman. If both obtain, then all it entitles him to is caring for
her and providing her with moral guidance. For, only under
extreme conditions (for example insanity) does the Muslim woman
lose her right to self-determination, including entering any kind
of business contract without permission from her husband. It is
worth noting that the passage does not even assert that some
men are inherently superior to some women. It only states that
in certain matters some men may have more than some women.94

Al-Hibri also makes the point that according to her interpretation

of verse 4:34, no one has the right to counsel a self-supporting
woman and since “Islam emphasises democracy and enjoins
Muslims to counsel each other in making decisions, this resolution
falls totally within the spirit of Islam.”95

The second line of argument pursued by Al-Hibri in support of

her alternate explanation, is to state that the traditional
interpretation is inconsistent with other Islamic teachings. She
cites verse 9:71 of the Quran which declares that:

The believers, men and women, are awliya, one of the another

Awliya may be translated as meaning protectors, in charge, guides.

In fact, conceptually it is quite similar to the term qawwamun. Al-
Hibri then poses the question: “How could women be awliya of

94
Ibid., p. 218.
95
Ibid.

40
men if men are superior to women in both physical and
intellectual strength? And, how could women be in charge of
men who have absolute authority over them?”96

Esposito, arguing in the same vein as Hassan and Al-Hibri,

initiates the discussion by stating that in the socio-economic
sphere, scholars of Islam agree that a major concern of the
Quran was the betterment of woman’s position by establishing
her legal capacity, granting her economic rights (dower,
inheritance, etc.), and thus raising her social status.97 However,
Quranic verses such as 4:34 the traditional interpretations of
which would support what today would be deemed an inequitable
position for women. This verse has been interpreted as indicating
men’s priority over women. According to Pickthall’s translation
of the Quran, verse 4:34 states that:

Men are in charge of women, because Allah hath made one to

excel the other, and because they spend their property (for the
support of women).98

However, the ‘priority’ attributed to men over women is best

understood as originating from their greater responsibility as
protectors and maintainers within the socio-economic context
of Arabian society during the Prophet’s time. Men, by virtue of

96
Ibid. Hibri also quotes a saying of the Prophet Mohammed where he spoke
in favour of equality of the sexes: “All people are equal, as equal as the teeth
of a comb. There is no claim of merit of an Arab over a non-Arab, or of a
white over a black person, or of a male over a female. Only God-fearing
people merit a preference with God” citing M. A. Rauf, The Islamic View of
Women and Family (New York: Speller, 1997) p. 21.
97
Esposito, 1982.
98
M. M. Pickthall, trans., The Meaning of the Glorious Koran (New York: Mentor)
p. 83.

41
their duty to defend and support their extended family members,
enjoyed more rights and subsequently a different status in Muslim
society. This understanding of man’s role is illustrated by another
possible translation of the same Quranic verse:

…men are the guardians (i.e., protectors and maintainers) over

women because God made some of them (to excel) over others
and because they (men) provide support from their wealth.99

Esposito, too appears to be in agreement with the view that it

is primarily the economic superiority and responsibility for the
household that accords to the male a degree of excellence, but
only to those men, who fulfil this task and not all men.

Barbara Stowasser in her study of the status of women in early

Islam states that verses such as 4:34 have fallen prey to the
Quranic interpreters who in their enthusiasm to ensure maximum
application of Quranic provisions attempted to place “a fence
about the law by requiring a precautionary margin in order to
ensure the entire fulfilment of its dictates, so the interpreters of
the Quran demanded more than the original.”100

As a justification of her argument Stowasser cites a number of

commentaries of the Quran and shows how each successive
commentator became more restrictive of women’s rights.
Consequently, by the time one reaches the 17th century, women
have been completely excluded from all spheres of public life
and made ‘invisible’.

99
Esposito, 1982.
Stowasser, 1987, quoting R. Levy, The Social Structure of Islam (Cambridge:
100

Cambridge University Press, 1957) p. 126.

42
The earliest comment on verse 4:34 cited by Stowasser is taken
from Abu Jafar Mohammed Jarir al-Tabari’s (d. 923) work. He
says that:
Men are in charge of their women with respect to disciplining (or
chastising) them, and to providing them with restrictive guidance
concerning their duties towards God and themselves (i.e., the
men); by virtue of that by which God has given excellence (or preference)
to the men over their wives: i.e., payment of their dowers to them,
spending of their wealth on them, and providing for them in
full. This is how God has given excellence to (the men) over (the
women), and hence (the men) have come to be in charge of (the
women) and hold authority over them in those of their matters
with which God has entrusted them.
Tabari’s interpretation of this verse is very literal and specifically
endowing men with authority over their women in the family
setting coupled with the obligation to provide for their women
by way of material support.101
The second commentary of verse 4:34 is taken from Nasir al-
Din Abu aI-Khayr’Abd Allah ibn Umar al-Baydawi (d.1286). This
interpretation following some 350 years after Tabari, becomes
more detailed and restrictive, and sanctioning the view of women
as creatures incapable of and unfit for public duties.102

Men are in charge of women, i.e., men are in charge of women as

rulers are in charge of their subjects.... God has preferred the one
(sex) over the other, i.e., because God has preferred men over
women in the completeness of mental ability, good counsel,
complete power in the performance of duties and the carrying

101
Ibid., p. 26.
102
Ibid.

43
out of (divine) commands. Hence to men have been confined
prophecy, religious leadership (‘imama), saintship (wilaya), the
performance of religious rites, the giving of evidence in law
courts, the duties of the Holy War, and worship (in the mosque)
on Friday etc., the privilege of electing chiefs, the larger share of
inheritance, and discretion in matters of divorce, by virtue of
that which they spend of their wealth, in marrying (the women)
such as their dowers and cost of their maintenance.103

It is clear, therefore, that verse 4:34 has been used to bring

within its ambit the entire legal personality of a woman, denying
to her independent personhood. Ahmad ibn Mohammed al-
Khafaji (1659) further ‘refined’ the restrictive detail provided by
Baydawi’s exegesis by stating that religious leadership (imama)
(which is inaccessible to women) is understood to include both
the imama kubra and the imama sughra. He understands wilaya not
as ‘saintship’ but as ‘assuming of responsibility (tawallin) for the
woman in matters of marriage, which means the power to make
decisions’, (which in any case by this time was no longer theirs).104

The religious rites (Sha’a’ir) from which women are barred

according to Baydawi, are: the call to prayer (adhan), the second
call to prayer (iqama), the Friday sermon, Friday worship (in the
mosque), and the takbirat al-tashriq (certain rites during the
Pilgrimage).105
The foregoing discussion on the varying interpretations of verse
4:34 clearly outlines its importance in creating gender hierarchies
within the Islamic tradition. But the most far reaching implications
for women’s human rights lies in the justification of this verse

103
Ibid.
104
Ibid.
105
Ibid.

44
for physically chastising a ‘disobedient’ woman. Very little
comment in this regard has been offered by any of the writers
mentioned above including Riffat Hassan, Al-Hibri or Esposito.106
Fazlur Rahman however, does take up the issue and offers the
justification that:
…the Quran appears to be saying that since men are the primary
socially operative factors and bread-winners, they have been
wholly charged with the responsibility of defraying household
expenditure and upkeep of their womenfolk. For their duties
and economic struggles and experiences they have become
entitled to manage women’s affairs and, in case of recalcitrance
on the part of women, to admonish them, leave them alone in
their beds and as a last resort, beat them.107

Evidentiary Value of Women’s Testimony

Verse 2:282 of the Quran provides another example where

pronouncements of arguably restricted application, have been
used as justification for creating gender hierarchies within the
Islamic tradition. A number of Muslim jurisdictions including
Pakistan have legislated on the basis of this verse, thus legally
reducing the status of women.108 The verse states that the
testimony of a woman is worth half that of a man in financial
transactions reduced to writing:

106
Mernissi, 1987. She has dealt with the issue at some length in her work,
where she argues that the verse was revealed at a point in time when the newly
formed Muslim (male) community feared that the Prophet Mohammed by
prohibiting violence against women, was encouraging a ‘female rebellion’. Verse
4:34 seems to have quelled those fears forever and reinstated male superiority.
107
Rahman, 1983.
108
Section 17 of the Qanoon-i-Shahadat Order, 1984.

45
And get two witnesses,
Out of your own men,
And if there are not two men,
Then a man and two women,
Such as ye choose,
For witnesses,
So that if one of them errs,
The other can remind her.109
Hadith literature has further presented this inequality in the value
of evidence of a woman as reflecting an innate inferiority of
women as opposed to superiority of men. As mentioned above,
a Hadith quotes the Prophet Mohammed as having stated that
women were inferior both in matters of religion and intelligence.
The reason the Prophet Mohammed is supposed to have cited
for a woman’s inferiority in intelligence is that the value of her
evidence is half that of a man’s.110 Fazlur Rahman, in analysing
this Hadith appears to be questioning its authenticity when he
argues that it (Hadith) presupposes the development of the law
of evidence in early Islam.111 As regards verse 2:282, he is of the

109
The Quran, verse 2:282.
110
But some writers have stated that the intellectual status of a Muslim woman
is “neither marred nor degraded by the commandments of the Quranic verse”.
See R. El-Nimr, ‘Women in Islamic Law’ in M. Yamani (ed.,) Feminism and
Islam (Reading: Ithaca Press, 1996) p. 95. El-Nimr’s views appear to be
representative of many Muslim writers including Mawdudi who argue in a
defensive, apologetic vein. She describes reasons of emotional, physical and
psychological strain as disabling women from acting as competent witnesses.
111
It may be pertinent to point out with reference to this statement of Fazlur
Rahman that while he is not explicitly setting it out, he appears to be challenging
the authenticity of this Hadith.

46
opinion that the Quran is not stating any general law of the
evidentiary value of male and female statements as the law.
If the Quran did really regard a woman’s evidence as half that
of a man’s, why should it not allow the evidence of four females
to be equivalent to that of two males and why should it say that
only one of the males may be replaced by two females? The
intention of the Quran apparently was that since it is a question
of financial transaction and since women usually do not deal
with such matters or with business affairs in general, it would be
better to have two women rather than one — if one had to have
women — and that, if possible at all, one must have at least one
male.112
Fazlur Rahman then goes on to state that one can simply not
deduce from verse 2:282 a general law to the effect that under
all circumstances and for all purposes, a woman’s evidence is
inferior to a man’s. He is convinced that this verse does not have
the slightest intention of proving any rational deficiency in women
vis-à-vis men. As an example, Fazlur Rahman cites the example
of classical Islamic law regarding women with knowledge of
gynaecology as the most competent witnesses in cases involving
gynaecological issues. 113 Finally, he also puts forward the
suggestion that even if a law could be formulated on the basis
of such a generalisation, then may we not change the law when
social circumstances so change that women are not only educated
equally with men but are also conversant with business and
financial transactions?114

112
Rahman, 1983.
113
Ibid.
114
Ibid.

47
With respect to the arguments presented by Fazlur Rahman, it
is submitted that looking at the formulation of the verse under
discussion in its socio-economic perspective, one is inclined to
argue that against the background of the social milieu of 7th
century tribal Arabia, involving a woman as witness in an activity
that clearly lay within the public sphere of life and was until that
time out of bounds for women, may be regarded as an important
first step. It was without doubt corrective of complete non-
recognition of women as legal persons capable of participating
in financial transactions reduced to writing. However, what is a
matter for concern is the fact that this step towards according
woman greater autonomy and legal personality was frozen in
time and not taken forward towards achieving equality.
Furthermore, one has to acknowledge that this incapacity (of
women to give evidence) is not only confined to commercial
transactions reduced to writing. In fact, in cases wherever hadd
punishment115 may be inflicted, the testimony of women and
non-Muslims is not even accepted.116 A further example is that
of the contract of marriage in Islam which is also in the nature
of a financial transaction, and here too, women who witness
signing of the marriage deed suffer from the same disability.117

115
Hadd means limit. In legal terms it means mandatory punishment limits
which have been laid down in the Quran.
116
For details, see for example, the Hudood Ordinances, 1979 promulgated by
General Zia of Pakistan. For adverse implications and human rights violations
of women as a result of these laws see, A. Jehangir and H. Jilani, The Hudood
Ordinances: A Divine Sanction? (Lahore: Rohtas Books, 1990); R. Mehdi, ‘The
Offence of Rape in the Islamic Law of Pakistan’ International Journal of Sociology
of Law, Vol. 18, 1990, pp. 19-29; S. S. Ali, ‘Gender, Islamic Fundamentalism
and Human Rights: A Case Study of Pakistan’, Women Against Fundamentalism
Journal Vol. 18, 1990, pp. 1-9.
117
C. Hamilton, The Hedaya (Karachi: Darul-Ishrat, 1989) p. 74.

48
But it may be argued that verse 2:282 is not necessarily of
general universal application. This may be inferred from verse
24:6-9 of the Quran where a woman’s oath by which she defends
herself against her husband’s accusation of adultery outweighs
that of the man’s (her husband’s) in the absence of witnesses.

Inheritance Rights of Women: A Fixed, Unchangeable Share

or the Basic Minimum?

Another sensitive issue concerning rights of women in the sphere

of family law is that of inheritance. As mentioned above, women
generally inherit half of what men in comparable situations would
inherit. While this was a progressive initial step in a society
where, as Fatima Mernissi remarks, the newly converted Meccan
aristocrats did not mind sharing Heaven and the rewards of the
Hereafter with their Muslim sisters. What hurt their egos (and
economic interests) was that they were being required to share
their worldly possessions in this world with women who until
the dawn of Islam were little more than the chattels and property
of these very men.118 Over the centuries, this entitlement of
women to half the share of a man in a comparable situation
became the fixed, unchangeable and only share that she was
entitled to.119

Of the many justifications advanced by Muslims (men and

women) regarding the half share in inheritance rights for women
the following may be mentioned as the most repeated:120

118
Mernissi, 1991.
119
Rahman, 1983
120
These views are based on personal communications with a wide range of
people as well as readings on the subject. For a recent empirical study on the
subject see S. S. Ali, ‘Using Law for Women in Pakistan’ in A. Stewart (ed.,)
Gender, Law and Social Justice (London: Blackstone, 2000).

49
a) women are not providers for households, while men are;
hence greater burden requiring greater share;
b) Quranic injunctions do not require a Muslim wife to share
her resources with her spouse or spend it on household
expenses even though the husband may be destitute. On
the other hand, a wife may seek a decree for dissolution of
her marriage on the grounds that her husband is incapable
of, or will not maintain her;
c) a husband is required to pay his wife a sum of money or
other property as dower as part of the marriage contract,
therefore, in addition to her half share in inheritance, she
also receives a further share as dower.

With regard to the above arguments, it is submitted that the

situations described above are subject to changing realities of
society, as well as the socio-economic circumstances of the present
day and are, therefore, weak justifications. Thus, for instance, are
men always the bread-winners of families? Is it not a fact that
there are millions of families around the world where women
are heads of households and have had to take on responsibility
for meeting entire household expenses. As to the second line of
argument, while women are not legally required to share
responsibility for the household, yet one would have to look
very hard indeed to find a family where the woman, despite
having the resources goes hungry and places her spouse and
children in a similar predicament. As regarding c), it may be
argued that the amount of dower stipulated in the marriage
contract is invariably less than an equivalent share in inheritance.
Furthermore, in case of a woman seeking dissolution of marriage
from her husband, she will have to forego this amount.

50
Polygamy: An Acknowledgement of ‘Different Needs’ or
Statement of Male Superiority?
The third issue to be addressed in the discriminatory category
of rights is that of restrictions imposed on women within the
institution of marriage without corresponding limitations on men.
Thus Quranic injunctions enjoin strict monogamy on women
and also confine her to a Muslim spouse, while men may marry
up to four wives at any one time from among kitabia121 women.122
Polygamy is permitted in Islam although as the Quranic verse
allowing it states, it is with certain provisos:
Marry women of your choice, two, three or four, but if you fear
that you shall not be able to deal justly (with them) then only
one.123
The debate around polygamy raises a number of questions. Does,
for instance, the Quranic verse create an obligation for all male
Muslims to emulate the practice or, is it a qualified ‘right’ to be
exercised under certain ‘controlled’ circumstances set out in the

121
Kitab literally means book. Kitabia means women of the book. Here it
implies women professing one of the revealed religions i.e., Christianity, and
Judaism.
122
The Quran, verse 2:221 and 5:5.
123
The Quran, verse 4:3.

51
verse above?124 Al-Hibri, is of the opinion that the mere fact that
the Prophet Mohammed was polygamous in his later life is no
evidence of a ‘right’ of Muslim men to also be polygamous. She
argues on the basis of the Quranic verses that state quite clearly
that neither the Prophet nor his wives are like other men and
women.125 Secondly, the passage in the Quran which has been
used to justify polygamy also attaches a condition for such action
i.e., requiring the man to make an undertaking to deal justly with
all his wives. Reinforcing this condition is the Quranic (verse
4:129) statement that “Ye are never able to be fair and just
among women even if you tried hard.” ‘Modernist’ Muslim
scholars are of the opinion that for evolving a rule of law
relating to polygamy these two Quranic verses must be read and

124
A. R. I. Doi, in his book entitled Shariah: The Islamic Law (London: Ta Ha
Publishers, 1984) p. 146, outlines the various circumstances for which he
considers polygamy to be the ‘best solution’. These situations include the wife
suffering from a serious disease; where the wife is barren; is of unsound mind,
where the wife is old and infirm; where the wife is of ‘bad character’ and
cannot be reformed; where the wife moves away from her husband’s place of
residence, is disobedient and difficult to live with; as a result of many men
dying during war leaving behind a large number of widows. The final reason
that Doi advances is that of the husband feels that he simply cannot do without
another wife and is capable of providing equal support to the existing wife(ves),
then he is justified in doing so. Doi has in effect provided a carte blance to
the man to marry if he feels like it. This hardly appears in consonance with
the contextual rationale behind the Quranic verse.
125
The Quran, verse 33:32, 50. For example, while the Prophet encouraged
widows and divorcees to remarry, his own wives were not be remarried after
his death. They were considered ‘the mothers of all believers’, and no believer
may marry his mother. However, as the Prophet grew older, he gave his wives
the choice to leave and marry another male more fulfilling perhaps of husbandly
duties. All but one wife refused to leave him. See, al-Hibri, 1982, p. 216, citing
J. Al-Afghani (1945) p.79.

52
interpreted together.126 The implication of the combined passages
in the opinion of Al-Hibri would be as follows:

a) If you can be just and fair among women, then you can
marry four wives
b) If you cannot be just and fair among women, then you may
marry only one
c) You cannot be just and fair among women; From which
follows: i.e. you may marry only one wife. Furthermore,
given (c) the condition for (a) is never satisfied, so that we
can never conclude: You may marry four wives.127

In response to the above argument, it has to be said that some

Muslim thinkers claim that the words ‘justly’ and ‘just’ occurring
in the two Quranic passages above have two different meanings;
hence the view that these cannot be combined to draw an
inference.128 Abdur Rahman Doi also challenges the view of the
modernists who consider verse 4:129 as a legal condition attached
to polygamous unions.129 Citing Shaikh Mohammed bin Sirin
and Shaikh Abubakr bin al-Arabi, he makes the point that the
inability to do justice between women referred to in the Quran
is in respect of love and sexual intercourse only which is beyond
the control of the man. Justice required of man is, in the opinion
of these scholars confined to matters of providing equality in

126
al-Hibri, 1982, p. 216; Rahman, 1983, pp. 45-49. Law reform in Muslim
jurisdictions in the twentieth century has relied upon this interpretation.
127
al-Hibri, 1982, p.216. Taha’s arguments follow a similar line. He states that
polygamy is not an original precept in Islam and a combined reading of verse
4:3 and 4:129 leads to an implied prohibition of polygamy. See Taha, 1987, p.
140.
128
al-Hibri, 1982 and accompanying footnotes.
129
Doi, 1984.

53
residence, food, clothes to co-wives. So long as a man can provide
these, he is seen as being just between women.130

Hijab (Veiling of Women): A Prescription for Female

Modesty or Symbolic Division of Muslim Space on the
basis of Gender?

In the Islamic tradition veiling represents the ultimate dichotomy

into the public and private spheres of life with the woman
confined to the private sphere. But there exists a wide range of
views among scholars of Islam regarding this institution and its
implication for women’s human rights. General and vaguely
phrased Quranic verses regarding modesty in behaviour for men
and women have been interpreted in a variety of ways by male
Muslim scholars, a process that many writers believe led to an
ever-increasing exclusion of Muslim women from the public
sphere of life.131 Stowasser is of the view that Quranic exegesis
prescribed veiling in absolute and categorical fashion and the
wide degree of difference between the commentaries of Tabari,
Baydawi and al-Khafaji go to show how Muslim women were
forced to disappear behind the veil, not only physically but as a
symbol of their invisibility from public life.132 While Tabari argued
that veiling did not include covering the face, half the forearm,
eye make-up, rings, bracelets and dyes, Baydawi’s interpretation
of verse 24:30 reads as follows:

Let them lower their gaze before the men at whom it is not
lawful to look, and let them guard their private parts by veiling
them, or by bewaring of (or guarding against) fornication.

130
Ibid.
131
For a feminist interpretation of Quranic verses enjoining veiling and
segregation, see Mernissi, 1991; Ahmed, 1992.
132
Stowasser, 1987.

54
 The lowering of the glances is presented because the glance
is the messenger of fornication. And let them not display of
their adornment such as jewellery, dress, make-up — let
alone the parts where they are worn or applied — to those
to whom (such display) is not lawful.... what is meant by
adornment is the place where adornment is put (or worn)….133
As to the opinion that the prohibition to display does not include
the face and hands, because they are not pudendal, Baydawi
argues clearly “this applies to prayer only, not appearance, because
the whole body of a free woman is pudendal, and it is illicit for
anyone (except the husband or the dhawu mahram)134 to look at
any part of her except by necessity such as (medical) treatment,
or the bearing of witness.”
Later commentaries such as al-Khafaji’s Hashiya on al-Baydawi,
this restrictive interpretation is further heightened. al-Khafaji
justifies the complete ‘disappearance’ of women behind the veil
on the authority of al-Shafei declaring categorically: “the whole
body of the woman is pudendal, even face and hand, without
exception (absolutely).”
Since this interpretation so obviously contradicts the Quranic
exemption ‘except that which is apparent,’ al-Khafaji and others
deal with it by interpreting this verse as:
a command of exception from the established rule, which
applies to such exceptional circumstances as the giving of
evidence in law courts and medical treatment only.

133
Ibid., p. 26-27.
134
A male within the prohibited degrees of relationship with whom a Muslim
woman cannot lawfully enter into a contract of marriage. In addition, the
husband who is her mahram, these include a father, brother, son, uncle, whether
paternal or maternal, grandfather, whether paternal or maternal.

55
Among the twentieth century Muslim scholars, Mawdudi is
perhaps the most vocal in his restrictive treatment of veiling as
an ‘Islamic’ institution. In his much-read and publicised book
entitled Purdah,135 he argues vociferously for the institution on
the basis that segregation will prevent ‘loose western morals’
from creeping into Islamic society, and keep the family intact.136
In the discussion on the sphere of operation of women and
segregation, he initiates the debate by stating that women are
rulers of their household and accountable for their actions within
it. They (women) have been released from certain religious
obligations (that men must fulfil). As example, Mawdudi cites
the Friday congregation as not being obligatory on women,
neither is participating in the holy war (jihad) compulsory on her.
A woman may not travel without her mahram. In short, he states
that Islam abhors the venturing out of the home of a woman
unless it is absolutely imperative such as to earn a living.137

But modernist Muslim writers challenge this restrictive and literal

interpretation of the Quranic verses on veiling and segregation.
Fazlur Rahman puts forward the view that the Quran advocates
neither the veil nor segregation of the sexes; rather it insists on
sexual modesty.138 He further states that it is also certain on
historical grounds that there was no veil in the Prophet’s time,
nor was there segregation of the sexes in the sense Muslim
societies developed it. In fact, the Quranic statements on modesty
imply that neither the veil nor segregation of the sexes existed.139

135
Mawdudi, Purdah (Lahore: Islamic Publications, 1997).
136
Ibid. This study uses the Urdu version and all page numbers referred to are
taken from this edition.
137
Ibid., pp. 235-239.
138
Rahman, 1983.
139
Ibid.

56
Hence the need to place some ground rules for male-female
interaction. If segregation of the sexes existed, there would have
been no point in asking the sexes to behave with modesty. The
Quran states in verse 24:31:

Say (O Mohammed) to believing men that they should observe

modesty of the eye and guard their sexual parts—this is purer
for them, but God knows well what they do. And say to believing
women that they should observe modesty of the eyes and guard
their sexual parts and let them not display their attractions except
those naturally exposed—and let them cast down their head-
scarves onto their bosoms.

It is pertinent to make the point here that ‘modesty of the eye’

spoken of in the verse above is in connection with both sexes
and not only with regard to women. Secondly, this injunction
would have no meaning at all if the sexes were segregated or if
hijab (veiling) as we know it today were observed.140 The injunction
to “not display their attractions except those naturally exposed”
have been interpreted in various ways, some restrictive, others
liberal. However, it is generally presumed that attractions as are
commonly exposed include the face, half the forearm, and any
cosmetic or jewellery on these such as rings, bangles, henna or
other colouring for hands and nails.141 The words “and let them
cast their head-scarves down their bosoms” also prove that
covering the face is not required by this verse.

Other verses of the Quran laying down guidelines to women for

venturing outside the house appear in chapter 33. Verses 59-60
of Chapter 33 state that Muslim women including women of

140
Ibid.
141
Ibid.

57
the Prophet Mohammed’s household must “draw tight their outer
garments” when they go out at night “so that they can be
recognised as Muslim women and not molested” and the
“Hypocrites”142 who are said to have molested women are
threatened with exile if they do not refrain from such actions.
Fazlur Rahman is of the opinion that there is nothing in these
verses that calls for the veil as such.143 In the same chapter verse
33:30 warns the wives of the Prophet Mohammed against any
suggestions of immodesty and are threatened with a “double
punishment” if they are immodest; verse 33:32 states that the
“Hypocrites” are eager to spread rumours about the Prophet
Mohammed’s wives who are advised “not to speak in an inaudible
voice to any male — if you are God-fearing — lest he in whose
heart there is sickness covets to exploit the opportunity”. This
verse, however, is a special case addressed to the Prophet
Mohammed’s wives, whom the Quran declares to be “Mothers
of the Faithful” in verse 33:6. On the strength of these Quranic
verses it may be argued that segregation and veiling has roots
deeper than and preceding Islam and is also strongly linked to
class, acting primarily in its present manifestation as a symbol of
honour or status.144

Ustadh Taha differentiates between the conceptual parameters

of al-hijab, which requires covering of all of the woman’s body
except her face and hands and al-sufur, which permits more
exposure, provided modest dress is maintained in general.145 He

142
The Hypocrites were certain inhabitants of Medina who had reluctantly
converted to Islam, but were engaged in subverting it.
143
Rahman, 1983.
144
Ibid.
145
Taha, 1987.

58
believes that Islam’s original precept is al-sufur because in his
opinion the “purpose of Islam is chastity, emanating from within
men and women, and not imposed through closed doors.”146
The veil, Taha further argues, was imposed as a transitional
requisite and would become redundant when inner chastity is
achieved through education and discipline.147 Women Muslim
scholars in recent years have questioned the restrictive
interpretation of Quranic injunctions on veiling and segregation
of the sexes.148 Nazirah Zein-Ed-Din sums up the feeling of
outrage and frustration of the Muslim women in her excellent
work entitled As-Sufur wal Hijab in the following words:
What is this unjust law (of veiling) which is permeated with the
spirit of tyranny and oppression? It is in violation of the Book
of God and His Prophet may God bless his soul. This law is the
law of the victor, the man who subdued the woman with physical
force. Man tampered with God’s book to make this law. He
prided himself on his tyranny and oppression, even as those
hurt him too. He made the law independently, not permitting
the women to share in a single letter. So, it came out in accordance
with his desires and contrary to the will of God.149

From the discussion in the preceding paragraphs, it is evident

that attempting to develop a theoretical framework of women’s
human rights in the Islamic tradition poses insurmountable
difficulties, the basic and most crucial of these being: How and
to what extent, might religious texts be employed as sources of

146
Ibid.
147
Ibid.
148
Mernissi, 1991; Ahmed, 1992
149
N. Zein-Ed-Din, As-Sufur wal Hijab (Beirut: 1928) p.140 cf. al-Hibri, 1982.
Cf N. Zein Ed-Din, “Removing the Veil and Veiling Lectures and Reflections
Towards Women’s Liberation and Social Reform” (1982) Vol. 5 Women Studies
International Forum 221.

59
positive law and rights? Are competing sets of norms in the
Quranic text equally valid, and if so, might we base a rule of law
on either, in the light of the general principles of naskh
(abrogation) laid down by Muslim jurists regarding the order of
revelation of the Quran? A book of Divine revelation such as
the Quran coming together over twenty-three years, is by its very
nature open to varying interpretations. But how much space is
one afforded to discuss and critique laws derived by jurists taking
account of the historicity of events, particularly norms that may
be completely out of line with contemporary needs of society?
And finally, where does one seek legitimation for alternative
human rights schemes and categories within the Islamic
framework, such as the ones discussed in the present section.
It is also evident that restrictive rules of interpretation of the
Quran, Hadith literature and the process of law-making based on
these sources combined to push into the background whatever
norm of equality and egalitarianism Islam represented. Leila
Ahmed presents the view that:
Even as Islam instituted, in the initiatory society, a hierarchical
structure as the basis of relations between men and women, it
also preached, in its ethical voice (and this is the case with
Judaism and Christianity as well), the moral and spiritual equality
of all human beings. Arguably, therefore, even as it instituted a
sexual hierarchy, it laid the ground, in its ethical voice, for the
subversion of the hierarchy.150
Is it this principle of ‘subversion’ present in the ethical Quranic
norms that may, after all be employed to justify a framework for
women’s human rights in Islam today?

150
Ahmed, 1992.

60
A common feature of the various frameworks of women’s human
rights discussed above is that these highlight the fact that no
matter what methodology one attempts to employ, there appears
no escape from certain clear Quranic verses creating gender
hierarchies. When we concede to every word of the Quran, law-
making authority, how can one deny to one group of Muslims
the right to legislate on the basis of verses that discriminate
against women, just as another group would aspire to invoke the
non-discriminatory verses in order to create laws affording
complete equality between the sexes?
Whether it is Esposito’s hierarchisation of Quranic values or
Hevener’s categorisation of rights, complete equality as the term
has come to be understood in modern day usage is difficult to
infer from any of these schemes. It might be strategically
opportune to seek a rigorous implementation of all the
protective/corrective category of rights before embarking upon
the ‘equality’ and non-discrimination path. By applying the Islamic
paradigm of equality of human dignity and worth, and requiring
‘those in authority’ i.e., men and the State to accept responsibility
for fulfilling the material needs of women, children and other
disadvantaged sections of society in their charge, and provide
them access and control over resources, a move towards
substantive as opposed to mere formal equality for all may be
possible.

2.3 International Norm of Equality and Non-discrimination

and CEDAW: An Overview
Although human rights are said to include women’s rights,
traditionally they have been defined as “men’s inalienable right

61
to life, liberty and property.”151 Leading philosophers, such as
John Locke in the 17th century and Jean Jacques Rousseau in
the 18th century defined men as individuals innately possessed
of certain “natural rights”.152 Women, on the other hand, were
defined not as individuals, but as members of men’s households
and thus, along with their offspring, under male control.153

In response, numerous women from around the world pressed

for women’s rights and argued that as members of the human
race, they too are entitled to the same basic rights as men.154 Yet,
even today, despite formal pronouncements of human rights, in
many nations of the world, women find themselves confined to
the private or familial sphere of life with little or no access to
redressal of their human rights violation. The distinction between
the public or political and private or familial sphere has been
transported from domestic jurisdiction into the international law
sphere and, despite the fact that this dichotomy has no place in
human rights discourse, continues to prevail. Women’s rights

151
See e.g., J. Locke, ‘An Essay Concerning the True Original Extent and End
of Civil Government’ and J. J. Rousseau, ‘From the Social Contract’, in S.
Commins and R. Linscott (eds.), The World’s Great Thinkers: Man and the State
(New York: Random House, 1947); the Preamble to the US Declaration of
Independence.
152
Ibid. See Rousseau.
153
R. Eisler, ‘Human Rights. Towards an Integrated Theory for Action’, Human
Rights Quarterly, Vol. 9, 1987, p. 287.
154
Among these women were, Mary Wollstonecraft and Abigail Adams in the
18th century and Elizabeth Cady Stanton and Sojourner Truth in the 19th
century. In the 20th century, these numbers have swelled beyond enumeration
as women’s rights movement has grown in every country of the world.

62
have, therefore, been marginalised both institutionally and
conceptually from national and international human rights
movements.155 Steiner and Alston sum up this inadequacy of the
human rights movement in addressing women’s human rights’
issues by stating that “Of the several blind spots in the
development of the human rights movement from 1945 to the
present, none is as striking as the movement’s failure to give to
violations of women’s (human) rights the attention, and in some
respects the priority, that they require.”156

In recent years, significant challenges have been made to a vision

of human rights which excludes women’s experiences, at the

155
For a detailed discussion of how the human rights of women have been
split off from the mainstream of the international human rights movement
see the special issue entitled ‘Symposium: Women and International Human
Rights’, ed., F. P. Hosken Human Rights Quarterly, Vol. 3, 1981.
156
H. J. Steiner & P. Alston (eds.,) International Human Rights in Context: Law
Politics Morals (Oxford: Clarendon Press, 1996) p. 887. Also see C. Bunch,
‘Women’s Rights as Human Rights Human Rights Quaterly, Vol. 12, 1990, pp.
486-498 ; J. Rehman, ‘Women’s Rights: The International Law Perspective
with Reference to Pakistan’ in R. Mehdi & F. Shaheed (eds.,) Women’s Law in
Legal Education and Practice in Pakistan: North South Co-operation (Copenhagen:
New Social Science Monographs, 1997) p. 109; R. J. Cook, ‘Women’ in C. C.
Joyner (ed.,) The United Nations and International Law (Cambridge: Cambridge
University Press and American Society of International Law, 1997) p. 182; C.
Bunch, ‘Transforming Human Rights from a Feminist Perspective’ in J. Peters
and A. Wolper (eds.,) Women’s Rights Human Rights: International Feminist Perspectives
(London: Routledge, 1995) pp. 11-15.

63
level of governments, NGOs and the international community.157
A wide array of human rights instruments have been promulgated
by the UN and regional organisations for the protection of
women’s rights and non-discrimination on the basis of sex.158

The foundation of the UN was a response to the failure of

states to respect human rights of individuals, including their
own citizens.159 The UN Charter (Charter)160 provides a legal
basis for international co-operation among its members for respect
for human rights, including the elimination of discrimination on
grounds of sex. In fact, the Charter was the first international

157
One of the earliest and ground-breaking article on the subject is H.
Charlesworth, C. Chinkin and S. Wright, ‘Feminist Approaches to International
Law’ American Journal of International Law, Vol. 85, 1991, p. 613. Over the past
decade, an impressive range of writings on feminist approaches to international
law, feminist legal theory, concerns of third world women have emerged.
These include, A. Byrnes, ‘Women, Feminism and International Human Rights
Law—Methodological Myopia, Fundamental Flaws or Meaningful
Marginalisation?’ Australian Yearbook of International Law, Vol. 12, 1989-90,
p. 207; S. Wright, ‘Economic Rights and Social Justice: A Feminist Analysis of
Some International Human Rights Conventions’ Australian Yearbook of
International Law; Vol. 12, 1989-90; D. Dallmeyer (ed.,) Reconceiving Reality: Women
and International Law (Washington, DC: The American Society of International
Law; 1993); C. Mohanty, ‘Under Western Eyes: Feminist Scholarship and
Colonial Discourses’ Feminist Review, Vol. 30, 1988, p. 61; Bartlett, ‘Feminist
Legal Methods’ Harvard Law Review, Vol. 103, 1990, p. 831; C. MacKinnon,
Toward a Feminist Theory of the State (Cambridge: Harvard University Press,
1989); C. Gould (ed.,) Beyond Domination: New Perspectives on Women and Philosophy
(Totowa, NJ: Rowman & Allanheld, 1983).
158
For a list of human rights documents adopted by the UN and regional
institutions for the protection of human rights see, I. Brownlie, Basic Documents
on Human Rights, (Oxford: Oxford University Press, 1992); P. R. Ghandhi,
International Human Rights Documents (London: Blackstone, 1995).
159
Cook, 1997.
160
UNTS XVI; UKTS 67 (1946); Cmnd 7015.

64
treaty to spell out the principle of equality in specific terms. The
Preamble to the Charter affirms “the equal rights of men and
women” and gives priority to human rights before the rights of
states. In addition to the Preamble, the goal of achieving equality
between the sexes is reiterated in several Charter provisions with
Article 1(3) outlining the purposes of the UN to include
“promoting and encouraging respect for human rights and for
fundamental freedoms for all without distinction as to race, sex,
language, or religion.”161

Although promotion and protection of human rights on the

grounds of non-discrimination was one of the main objectives
of the UN, yet it has been argued that when the Charter came
into operation in 1945, there were serious impediments in
establishing a regime based on equality and non-discrimination.
Colonialism had not yet breathed its last and racial, religious and
sex-based discrimination prevailed in varying degrees.162 Renteln
is of the view that the major powers, particularly the United
States and Great Britain had not been very supportive of
sanctifying the cause of complete equality and non-

161
This affirmation is repeated in subsequent articles. Article 8 demands that
there be no restrictions on eligibility of women to participate in any capacity
in UN affairs; Article 13(1) declares that the General Assembly shall initiate
studies to promote international economic and social co-operation without
distinction as to . . . sex; Articles 55(c) and 56 provide that the UN and its
members shall promote respect for international economic and social co-
operation without distinction as to . . . sex; Article 62(2) states that the Economic
and Social Council shall promote respect for human rights and fundamental
freedoms for all; and Article 76(c) lays down that the UN Trusteeship system
shall encourage respect for human rights and fundamental freedoms for all
without distinction as to . . . sex.
162
Rehman, 1983.

65
discrimination.163 In the opinion of Charlesworth, Chinkin and
Wright, the inclusion of Article 8 in the UN Charter (no
restrictions on eligibility of women to participate in UN affairs
in any capacity) presents an example of how gender-blind the
vast majority of the participants were:164

While there was no overt opposition to the concept of gender

equality at the 1945 San Francisco Conference, which drafted
the Charter, some delegates considered the provision superfluous
and said that it would be “absurd” to put anything so “self-
evident” into the Charter.165

The concept of non-discrimination on the basis of sex found

further elaboration with the adoption by the UN General
Assembly of the Universal Declaration of Human Rights
(UDHR).166 Article 2 of the UDHR gives emphasis to entitlements
to all rights and freedoms stated therein “without distinction of
any kind, such as race, colour, sex...or other status,” and, although
the Declaration is not legally binding in itself, it is widely treated
as the “international community’s authoritative guide to the

163
A. D. Renteln, International Human Rights Universalism versus Relativism (Newbury
Park, California: Sage Publications, 1990) p. 219.
164
Charlesworth et al, 1991.
165
Ibid. Laura Reanda notes on this point, “It should be stressed . . . that
although at San Francisco a consensus was achieved on including in its Charter
the principle of equality between the sexes, there was no common
understanding of its meaning nor agreement on the concrete measures to be
taken.” See L. Reanda, ‘The Commission on the Status of Women’ in P. Alston
(ed.,) The United Nations and Human Rights: A Critical Appraisal (Clarendon:
Oxford University Press, 1992) pp. 265-303.
166
Adopted on December 10, 1948, GA Res. 217A (III), UN Doc. A/810,
1948.

66
meaning of human rights.”167 The UDHR found legal force
through two covenants, namely the International Covenant on
Civil and Political Rights (ICCPR)168 and the International
Covenant of Economic, Social and Cultural Rights (ICESCR).169
Both covenants reiterate the norm of non-discrimination by
stating that a State party undertakes to respect the individuals’
rights recognised in each covenant “without distinction of any
kind, such as race, colour, sex . . . or other status.”170 Non-
discrimination on grounds, among others of sex, appears at
several points in each of the two covenants, in particular in
Article 26 of the ICCPR requiring equality before the law and
equal protection of the law.171

167
Cook, 1997, p. 184. Also see, A. Eide, G. Alfredsson, G. Melander, L. A.
Rehof and A. Rosas (eds.,) The Universal Declaration of Human Rights A Commentary
(Oslo: Scandinavian University Press, 1992). For discussion on the UDHR as
constituting part of customary international law see, R. B. Lillich, ‘Civil Rights’
in T. Meron (ed.,) Human Rights in International Law Legal and Policy Issues, (Oxford:
Clarendon Press, 1984) Chapter 4; H. Hannum, ‘Human Rights’ in C. C. Joyner
(ed.,) The United Nations and International Law (Cambridge: Cambridge University
Press, 1997) Chapter 5.
168
GA Res. 2200 (XXI), UN GOAR, 21st Sess., Supp. No. 16, at 52, UN Doc.
A/6316 (1966), reprinted in 999 UNTS 171 and 6 ILM 368 (1967). The
ICCPR entered into force on March 23, 1976.
169
GA Res. 2200 (XXI), UN GOAR, 21st Sess., Supp. No. 16, at 52, UN Doc.
A/6316 (1966), reprinted in 993 UNTS 3 and 6 ILM 360 (1967). The ICESCR
entered into force on January 3, 1976.
170
ICCPR article 2(1); ICESCR, Article 2(2).
171
Specific prohibition of discrimination appears in the ICCPR in Article 3
(equal rights of men and women with respect to the rights set forth in the
Covenant; Article 4 (measures derogating from the obligations cannot involve
discrimination on grounds of . . . sex); Article 14 (equality before the law);
Article 23 (equality of rights and responsibilities of spouses as to marriage,
during marriage and at its dissolution); Article 24 (equal protection of the
child irrespective of . . . sex) and Article 25 (equal rights of citizens without
distinction on grounds of . . . sex with respect to voting, public service and
public representation). See also ICESCR, article 3 (equal rights of men and
women with respect to rights set forth in the Covenant) and Article 7 (equal
pay for work of equal value).

67
Very soon after the adoption of the UN Charter in 1945,
establishment of a body with a mandate to study and prepare
recommendations on issues of special concern to women was
proposed. The Commission on the Status of Women (CSW)
was, therefore, established by the Economic and Social Council
(ECOSOC) in 1946 in accordance with Article 68 of the UN
Charter. 172 Its function is two-fold: first, to prepare
recommendations and reports to ECOSOC on promoting
women’s rights in political, economic, civil, social and educational
fields. Second, to make recommendations to ECOSOC on urgent
problems requiring immediate attention in the field of women’s
rights with the object of implementing the principle that men
and women shall have equal rights and to develop proposals to
give effect to such recommendations.173 Views on the degree of
success of the CSW in advancing the international norm of
non-discrimination on the basis of sex by placing it on the
human rights agenda, are not uniform. It has been argued by
some writers that while the purpose of establishing the CSW
was to bring women’s rights concern into focus, yet this strategy
has in itself been counter-productive.174 In the words of Laura
Reanda, “the adoption of separate instruments and the
establishment of specialised machinery to deal with specific
women’s rights has resulted in a narrowing of the global human

172
In all, six functional commissions were established. In addition to the CSW,
there were five others including the Commission on Human Rights, Commission
on Social Development, the Population Commission, the Sustainable
Development Commission, and the Commission on Narcotic Drugs.
173
S. Davidson, Human Rights (Buckingham: Open University Press, 1993) p.
72; Cook, 1997.
174
M. Karl, Women and Empowerment. Participation and Decision Making (London:
Zed Books, 1995) p. 122. See H. Pietila & J. Vickers, Making Women Matter. The
Role of the United Nations (London: Zed Books, 1994) pp. 118-119 who are of
the view that at first the creation of the CSW drew some criticism, but the
work it has carried out over the years has amply demonstrated its importance.

68
rights perspective, in a ‘ghettoisation’ of questions relating to
women and their relegation to structures endowed with less power
and resources than the general human rights structures.”175
The CSW has enjoyed most of its success in the area of setting
international standards of women’s human rights and a number
of international conventions have been formulated under its
sponsorship. These include the Convention for the Suppression
of the Traffic in Persons and of the Exploitation of the
Prostitution of Others, 1949,176 the Convention on the Political
Rights of Women, 1952,177 the Convention on the Nationality
of Married Women, 1957,178 and the Convention on Consent to
Marriage, Minimum Age for Marriage and Registration of
Marriages, 1962.179 Moreover, the CSW has assisted a number of
specialised UN agencies, particularly the International Labour
Organisation (ILO) and the United Nations Educational, Social
and Cultural Organisation, (UNESCO), in developing
international instruments to improve the conditions of women
in employment, education and retirement. The ILO has a history
predating the UN of setting standards for the specific protection
of women in the workforce. These include matters such as
maternity protection (1919) night work (1919), employment in
underground mines (1935), and the Convention Concerning
Equal Remuneration for Men and Women Workers for Work of

175
L. Reanda, ‘Human Rights and Women’s Rights: The United Nations
Approach’ Human Rights Quarterly, Vol. 3, 1981, p. 12.
176
96 UNTS 272 (1950). Although this Convention refers equally to men and
women, but in practice applies mainly to women because they are the
overwhelming majority of victims of such traffic and exploitation. See on this
point, Pietila and Vickers, 1994.
177
193 UNTS 135 (1953).
178
309 UNTS 65 (1957).
179
521 UNTS 231 (1962).

69
Equal Value.180 UNESCO adopted the Convention Against
Discrimination in Education.181

Since 1945, more than two dozen different international legal

instruments have been drafted which deal specifically with women.
Each of these instruments reflects an international consensus on
particular problems relating to women and, it may be said, provide
a unique insight into the state of international consensus on the
role of women in society.182 However, because of their restricted
scope and lack of provisions for enforcement, these instruments
had very little impact on the condition of women world-wide.
Neither did they succeed in integrating women’s human rights
into the mainstream human rights framework. Dissatisfaction
with the impact of existing instruments led, from the mid-1960s,
to increasing efforts to develop international instruments
providing global conceptualisation of the human rights of women
and containing concrete measures of implementation and
supervision. These efforts led to the adoption of the Declaration
on the Elimination of All Forms of Discrimination Against
Women in 1967183 and culminated in the Convention on the
Elimination of All Forms of Discrimination Against Women
(the Women’s Convention) in 1979. Therefore, it was with the
adoption of the Women’s Convention, that separate concepts
of “women’s rights” were recast in a global perspective, and
supervisory machinery with terms of reference similar to those
of existing human rights organs was provided for.

180
ILO Convention No. 100, reprinted in 165 UNTS 303 (1951). In this
Convention, the ILO pioneered the principle of women’s entitlement to equal
pay for work of equal value to that performed by men.
181
429 UNTS 93 (1960).
182
For a detailed description and analysis of international human rights
instruments relating to women, see N. Hevener, p. 983.
183
GA Resolution 2263 (XXII), UN Doc. A/6717 (1967).

70
CEDAW: Substantive Provisions and Implementation
Mechanism

CEDAW has been hailed as a major breakthrough in international

human rights law since it adopts a holistic approach towards
human rights law and as an effective tool for women’s
empowerment. It represents the culmination of efforts to develop
the international legal norm of non-discrimination on the basis
of sex and recognises in its Preamble the need to go beyond
legal documents to address factors that will help to eradicate de
facto inequality between men and women. It highlights the
inequities faced by women and affirms non-discrimination and
equality as an overarching human right for women. Hellum (1999)
states that in adopting CEDAW, the UN sought to lay the
foundation for an international women’s law of human rights
that transcends the borders of national, religious and customary
laws.184 The convention was to provide “a socio-legal tool which
within a single and unified framework is intended to help women
fit into social, economic and political modernisation processes in
all parts of the world”.185

Rebecca Cook sees CEDAW as the third stage of overlapping

and interactive developments within women’s human rights law.186
During the first phase of development, States focused on the
promotion of specific legal rights of particular concern to women
through specific conventions relating to employment. During
the second stage, States included sex as a prohibited ground for

184
A. Hellum, Women’s Human Rights and Legal Pluralism in Africa (Oslo: Tano
Aschehoug 1999).
185
Ibid.
186
R. Cook, ‘Introduction: The Way Forward’ in R. Cook (ed.), Human Rights
of Women: National and International Perspectives (Philadelphia: University of
Pennsylvania Press, 1994) p. 47.

71
discrimination in instruments such as the UDHR, the ICCPR,
the ICESCR and regional human rights conventions. CEDAW,
as the third stage of this development, addresses the structural
nature of violation of women’s human rights. As such, Hellum
argues that the convention is informed by various theories that
address women’s roles in development processes, including the
women in development (WID) and gender and development
(GAD) approaches.187

The definition of discrimination against women put forward in

CEDAW is important as it transcends the traditional public/
private dichotomy by calling for the international recognition of
women’s human rights both inside and outside the familial sphere
(Article 1). The framers of this convention realised that customs
and practices as well as formal legislation often perpetuate
discrimination against women (Article 2). Article 5 of the
convention, for example, addresses this issue by committing States
Parties (i.e., signatory States to the Convention) to actually modify
“the social and cultural patterns of conduct of men and women”
in order to eliminate prejudices and practices based on notions
of inferiority and superiority of either sex. Other substantive
provisions demand that States Parties grant women complete
equality in every field of life, be it nationality, family matters,
contracts, right to property, etc. (Articles 9, 13, 15, and 16).

The four parts of CEDAW cover the major areas of women’s

rights within the rubric of the human rights discourse. As
overlapping areas, addressing historical/cultural exclusion through
affirmative action (Part I) sits well with endorsing women’s
participation in public political life (Part II) and is substantiated

187
Hellum, 1999, p. 23.

72
through covering in Part III the arena of socio-economic rights,
including those of education and employment. These rights are
stabilised within a legal regime of equal rights in civil law (Part
IV).

The implications for states are potentially far-reaching. Not only

must they abolish all existing discriminatory legislation and
practices, they are also obliged to eliminate stereotyped concepts
of male and female roles in society. Hiding behind ‘traditional
customs and practices’ will not do. The convention’s language is
essentially universalist and non-discriminatory and emphasises a
rights-based framework, representing a significant difference from
previous legislation that was usually welfarist and ‘protective’ in
tone. While obliging State Parties to provide the socio-legal
framework for women’s equality, CEDAW also provides local
struggles with a possibility of speaking a global legal language.188
It creates the possibility for local groups and movements to by-
pass national institutional constraints and structures that appeal
to the international legal institutions for redress. However, as the
study of the monitoring processes of the convention shows,
nation-states and cultural norms can place considerable limitations
on a universal rights discourse that women seek to employ as
part of their strategy for empowerment.

Part V (Articles 17–22) outlines the monitoring rules for

implementation of the rights contained in the treaty. Pursuant to
these provisions, the convention established the Committee on
the Elimination of All Forms of Discrimination Against Women,
a body of twenty-three experts, elected by the States Parties to
serve in their personal capacity.189 The committee is established

188
See, the work of the International Women’s Rights Action Watch Asia
Pacific (IWRAW-Asia Pacific).
189
A. Byrnes, 1989–90, p. 207.

73
“for the purpose of considering the progress made in the
implementation of the Convention” (Article 17(1)). This is to be
carried out through the examination of reports submitted by
States Parties. These reports are to be submitted every four years
or whenever the committee requests them. However, unlike the
Convention on the Elimination of All Forms of Racial
Discrimination (on which CEDAW is closely modelled), no
provision was made for one State to complain of a violation by
another State. Until very recently, there was no provision for an
individual who claims to have suffered a violation of the
convention to submit a complaint against a State Party.190 The

190
In June 1993, the World Human Rights Conference in Vienna emphasised
the need for “the adoption of new procedures to strengthen implementation
of the commitment to women’s equality and the human rights of women.” It
called upon the CSW and CEDAW to examine the possibility of introducing
the right of petition through the preparation of an optional protocol to the
Women’s Convention. Since January 1994, efforts were underway towards the
achievement of this goal, as a result of which an optional protocol has been
adopted. See further A. Byrnes and J. Connors, ‘Enforcing the Human Rights
of Women: A Complaints Process for the Women’s Convention?’ Brooklyn
Journal of International Law, Vol. 21, 1996, pp. 682 . Amnesty International,
‘Claiming Women’s Rights: The Optional Protocol to the UN Women’s
Convention’, March, 2001; Amnesty International, ‘The Optional Protocol to
the Women’s Convention: Enabling Women to Claim their Rights at the
International Level’, December 1997; A. Byrnes, ‘Slow and Steady Wins the
Race? The Development of an Optional Protocol to the Women’s Convention’
Proceedings of the 91 st Annual Meeting of the American Society of
International Law, 1997, p. 383; S. Cartwright, ‘Rights and Remedies: the
Drafting of an optional Protocol to the Convention on the Elimination of All
Forms of Discrimination against Women’ Otago Law Review, Vol. 9, 1998, p.
239; U. O’Hare, ‘Ending the ‘Ghettoisation: The Right of Individual Petition
to the Women’s Convention’ Web Journal of Current Legal Issues, Vol. 5, 1997;
M. Roche, ‘The Proposed Optional Protocol to the Convention on the
Elimination of all forms of Discrimination against Women’ Human Rights Law
and Practice, March 3, 1993, p. 268; A. Wörgetter, ‘The Draft Optional Protocol
to the Law on the Elimination of all Forms of Discrimination Against Women’
Austrian Review of International and European Law, Vol. 2, 1997, p. 261.

74
approach taken to enforcement of the convention was one of
“progressive implementation” rather than a requirement of
immediate action on part of States Parties. Rather than formally
pronouncing a State Party to be in violation of the convention,
the committee preferred to engage in a “constructive dialogue”
with States Parties. The result of this has been that while, on the
one hand, countries remain party to the convention, and are not
alienated within that system, on the other, however, they do not
feel under any immediate pressure to implement and conform to
the requirements of the convention.

On October 6, 1999, the Optional Protocol (OP) to the Women’s

Convention was adopted.191 It entered into force on December
22, 2000 and as of June 5, 2006, has 79 signatories.192 The OP
consists of 21 articles laying out the procedure for the complaints
system.193 Its main objective is to allow individuals and groups
of individuals who have exhausted national remedies to petition
the Committee directly about alleged violations of CEDAW by
their governments. The OP also permits the committee to conduct
inquiries into grave and systematic violations of the convention
in countries that are parties to the convention and OP. An
important provision of the OP is that states may not enter
reservations to the OP but may opt out of an inquiry. A number
of cases have now made their way to the Committee and decisions
adopted and it is aniticipated that important jurisprudence under
CEDAW will evolve.194 Of the countries under review, only

191
A/RES/54/4
192
See http://www.un.org/womenwatch/daw/cedaw/protocol/sigop.htm
accessed on July 19, 2006.
193
The full OP text is available at http://www.un.org/womenwatch/daw/
cedaw/protocol/text.htm accessed on 19th July 2006.
194
The committee adopted its first decision under Article 2 of the OP in July
2004. Some of the cases decided include: B.J. v. Germany 1/2003; A.T. v.
Hungary 2/2003; Rahime Kayhan v. Turkey 8/2005.

75
Bangladesh signed the OP but no case has thus far been
reported.195 The present study, therefore, does not include the
OP as part of the discussion towards effective implementation
of CEDAW but will raise it as one of the issues in the concluding
section.

Linkages between women’s rights and child rights, especially in

non-western jurisdictions bring into focus the girl-child as a
common beneficiary of the UN Convention on Rights of the
Child (CRC)196 and CEDAW. It is this linkage that may act as the
final catalyst in concretising women’s rights as human rights.
This linkage may be the most important step in the journey of
developing a norm of non-discrimination on the basis of sex.
Thus, the Vienna Conference of 1993 and the Beijing Conference
of 1995 endorsing this point of view recognise that “the full
implementation of the human rights of women and the girl
child (is) an inalienable, integral and indivisible part of all human
rights and fundamental freedoms.”197 As Savitri Goonesekere
states: “This is a powerful development linking the Vienna and
Beijing Declarations and commitments. Both sets of rights have
their foundations in international human rights, and it is clear
that gender equality cannot be realised without eliminating
discrimination against girl children…. A positive environment,
therefore, has been created for developing strategies and plans
of action which recognise that the realisation of children’s rights
and the human rights of women are intrinsically linked, both
because the core agenda is one of human rights, and because

195
Bangladesh ratified the OP on September 6, 2000.
196
Adopted by the UNGA Resolution 44/25 of November 20, 1989. Entered
into force on September 2, 1990. Reprinted in 28 ILM 1448 (1989).
197
Vienna Declaration and Programme of Action, para 18.

76
gender inequality cannot be addressed without linking women’s
issues to the issue of equality of the girl child.”198

A further dimension of vital importance in this discussion is

that the CRC has developed a framework that recognises a child’s
right to survival and development, protection from exploitation
and participation. The concept of indivisibility of socio-economic
and civil and political rights, so crucial to affording opportunity
to women in all phases of the life cycle is thus established. This,
in turn, leads to the truly remarkable conclusion that, were (girl)
children afforded equal rights from birth to the first eighteen
years of their life, their rights as women would automatically
follow. And, finally, through the CRC, a real possibility of
developing a concept of universal human rights arises, as this is
the human rights treaty that, barring the United States of America
and Somalia, stands universally ratified.199

Contextualising CEDAW within the Islamic Tradition: A

Discussion of Reservations to CEDAW and Implications
for Women’s Human Rights

Exercising their right under Article 19 of the Vienna Convention

on the Law of Treaties, Bangladesh, India and Pakistan entered
reservations/declarations to CEDAW at the time of ratification.
Bangladesh ratified CEDAW a few years after the convention
was adopted on November 6, 1984, while India and Pakistan
took several more years to ratify the convention. India ratified

198
S. Goonesekere, ‘The Links Between the Human Rights of Women and
Children: Issues and Directions’, Key note address at the consultation meeting
of UNICEF, IWRAW, Save the Children Alliance, New York. January 21,
1998, p. 8.
199
Information accessed from UN documents on the internet. See www.un.org/
Depts/Treaty/final/ts2/newfiles/part_boo/iv boo/ iv_11.html

77
CEDAW in 1993 and Pakistan acceded to the convention on
March 12, 1996. Bangladesh initially entered reservations on
Articles 2, 13(a) and 16.1(c) and (f) on the basis that it conflicts
with Sharia law based on the Sunna and the Holy Quran. Pakistan
entered a general declaration that the provisions of the convention
are subject to the Constitution of the Islamic Republic of
Pakistan; it also has a specific reservation on Art 29(1) (on the
arbitration of disputes).

India has entered several reservations to the convention. It has

declared that it cannot comply with Art 5(a) (on sex role
stereotyping and prejudice based on cultural, social customary
practices) and Art 16(1) (on marriage and family relations) because
of its policy of non-interference in the personal laws of different
religious communities in India. It has further declared that it
cannot comply with Art 16(2) (registration of marriages) because
of the impracticality of the application of the article in a vast
country such as India. India also has a reservation on Art 29(1)
(arbitration of disputes). (See Table 1 below)

Reservations200 and declarations are reflective of state practice

and provide evidence of a state’s response to norms espoused

200
The subject of reservations to the Women’s Convention in general and
those entered by Muslim states in particular have been the focus of a number
of scholarly articles and books and lies beyond the scope of the present
article. Muslim states’ reservations and declarations are here used to illustrate
the argument that there appears an inherent normative conflict between the
Women’s Convention and the Religious Freedom Declaration. Previous writings
include S. S. Ali, A Comparative Study of the United Nations Convention on the
Elimination of All Forms of Discrimination Against Women, Islamic Law and the Laws
of Pakistan (Peshawar: Shaheen Printing Press, 1995); A. E. Mayer, ‘Islamic
Reservations to Human Rights Conventions: A Critical Assessment’ Recht van
de Islam, Vol. 15, 1998, p. 25.

78
 Table 1

Status of ratification and reservations to CEDAW by

Bangladesh, India and Pakistan
Country CEDAW Reservations Reasons
Ratification and Declarations given for
Date made to CEDAW Reservations
to CEDAW

Bangladesh November Article 2, “Conflict with

16, 1984 Article 13 (a), Sharia Law based
Article 16(1) (c) (f) on the Holy
Withdrew 13(a) Quran and
16.1 (f) 23/07/97 Sunna.”

India July 9, 1993 Article 5(a), “Abide… in

Article 16(1)(2), conformity with
Article 29.1 interference in
the personal
affairs of any
community
without its
initiative and
consent.”

Pakistan March 12, 29(1) “Subject to the

1996 provisions of the
Constitution of
the Islamic
Republic of
Pakistan.”

in a particular treaty. Reservations entered by Bangladesh, India

and Pakistan to CEDAW, present an interesting example of the
position that in their view, international human rights treaties are

79
subservient to the overriding supremacy of constitutional,
religious and cultural norms (in this case Islamic law and
traditions) and exigencies of state policy (in the case of India).
In the context of our present study, it also highlights the extent
of the normative conflict between the right to equality enshrined
in CEDAW and notions of religious freedom as well as
expressions of custom, culture and tradition. A commonality of
approach is clearly visible in the body of reservations and
declarations entered by the three countries despite the disparate
ideological and political positions of these jurisdictions.

The three countries under review share similar histories that

have diverged over the past decades.201 Pakistan was creatd an
Islamic republic; this factor being constitutive of its identity.
India on the other hand has its particular history of secularism
whereas Bangladesh broke away from Pakistan and articulated a
Bengali nationlist identity.202 In India, Muslims are a minority,
and yet it has the second largest Muslim population of the
world. The clamour for Muslim Personal Laws was a common
demand articulated by Muslims of all three countries (when they
were part of undivided India). These demands (propelled by the
political environment of the time) was nevertheless very much
controlled by the male Muslim elite. Their ‘Muslimness’ therefore
was not unbridled and stopped short of an all out demand for
application of Islamic law. Thus, agricultural land and other

201
Until 1947, Bangladesh, India and Pakistan formed part of the Indian
subcontinent, prior to which they were under British colonial rule for one and
half century. After 1947, India was divided to become two sovereign states,
India and Pakistan (Bangladesh was called East Pakistan). In 1971, Pakistan
was further divided into Bangladesh and Pakistan.
202
This war was marred by violence against women and allegations of
widespread abuse of Bengali women by the Pakistan Army.

80
immovable property was excluded from the purview of Islamic
law in order to ‘escape’ sharing their property with female heirs
as demanded by Islamic law of inheritance.

After the Partition of India, law reform continued in Pakistan

and Bangladesh, albeit at a slow and uneven pace, and Muslim
women acquired a few more rights as a result of progressive
legislation adopted in the name of Islam (most prominently the
Muslim Family Laws Ordinance 1961). Yet, Indian Muslims
remained deprived of these initiatives now that they were part
of a secular country due to the special protective policy adopted
by the Indian government. The politics of multiculturalism thus
rendered law reform for Indian Muslims as a two step forward,
one step back situation.203

Despite the divergence in the pace, tone and tenor of reform in

the area of personal laws in Bangladesh, India and Pakistan, the
position of all three governments when it came to adopting
human rights instruments such as CEDAW, is amazingly similar.
Their defence of personal laws in the name of religion is seen
as the principle rationale for entering reservations, making it
appear as if Islam is a monolithic entity across geographical
boundaries and national frontiers. This, of course, is not the
reality on the ground. We must bear in mind that at the
governmental level, the degree of opposition to international
human rights norms is determined to a large extent by ideological
leanings of the particular Muslim State as articulated by the
government in power, that may or may not be representative of
the people’s view on Islam.204 On the other hand, the position

203
This is evident from the Shah Bano case referred to in the Indian study.
204
An-Na’im, ‘Islam, Islamic Law and the Dilemma of Cultural Legitimacy for
Universal Human Rights’ in C. E. Welch, Jr. and V. A. Leary (eds.), Asian
Perspectives on Human Rights (Boulder: Westview, 1990) pp. 31–32.

81
of a country like India, that does not fall within the definition
of a Muslim country, remains in line with some of the most
conservative, literalist positions adopted within the Islamic legal
tradition. An-Na’im makes a particularly incisive point in this
regard. He states that, “it is important to note that Islamic norms
may be more influential at an informal, almost subconscious
psychological level than they are at the official legal or policy
level. One should not, therefore, underestimate the Islamic factor
simply because the particular state is not constituted as an Islamic
state, or because its legal system does not purport to comply
with historical Islamic law, commonly known as Shari’a.
Conversely, one should not overestimate the Islamic factor simply
because the State and legal system are publicly identified as such.
This is particularly important from a human rights point of view
where underlying social and political attitudes and values may
defeat or frustrate the declared policy and formal legal
principles.”205

Thus, countries like Iran reject unequivocally and completely,

any notion of ‘secular’ human rights, whereas others such as
Indonesia, Turkey and Tunisia, to mention a few, adopt a more
compromising stance towards international human rights
documents. These positions at international law are not, however,
indicative of the degree of ‘Muslimness’ of the people of these
countries. Shari’a, or principles of Islamic law, however, does not
form a single coherent body of law. The corpus of Shari’a existing
today is a collection of individual juristic opinions, and
considerable differences continue to exist among jurists as to its
requirements; hence the multiplicity of formulations on, among
other subjects, women’s human rights in Islam.206 It may be argued

205
Ibid.
An-Na’im, Toward an Islamic Reformation (Syracuse: Syracuse University Press
206

1990) p. 185.

82
that while Shari’a represents the human endeavour to understand
and implement the core values and principles specifically referred
to in the Qur’an, and has a religious nature, it is not immutable
or unchangeable as is the Qur’an itself.207 The true essence of the
Shari’a is brought out by Parwez who describes it thus:
The Shari’a refers to a straight and clear path and also to a
watering place where both humans and animals come to drink
water, provided the source of water is a flowing stream or
spring.208 It is, therefore, as Hassan so forcefully argues: no slight
irony and tragedy that the Shari’a, which has the idea of mobility
built into its very meaning, should have become a symbol of
rigidity for so many in the Muslim world.209
Thus, restrictive and literal interpretation of the religious text in
Islam became the norm when (in a controversial and much-
debated subject), some scholars adopted and advanced the view
that the “doors of ijtihad” were closed forever.210 On the other
hand, a number of writers have argued against this ‘closure’ of
ijtihad stating that, “The notion that at the end of the third
century (or shortly thereafter) the doctors of Islam reached an
immutable consensus of opinion that further ijtihad was
unnecessary is untenable.” 211

207
Ibid. The distinction is usually drawn between the Shari’a (defined as the
totality of divine categorisation of human acts and fiqh (the science of
jurisprudence). We have pointedly made the difference between the Qur’an as
words of God and Shari’a as the human formulation of that divine will. See,
B. Weiss, The Spirit of Islamic Law (Athens: University of Georgia Press, 1998)
p. 18.
208
G. A. Parwez, Lughat-ul-Quran (Lahore: Adara Tulu-e-Islam, 1960) p. 941.
209
Hassan, 1980, p. 4.
210
Rahim, 1995, p. 142.
211
Weiss, 1998, supra n. 38, p. 208. See in particular W. Hallaq, ‘Was the Gate
of Ijtihad Closed?’ International Journal of Middle Eastern Studies, Vol. 16, 1984,
p. 3; F. Vogel, ‘The Closing of the Door of Ijtihad and the Application of the
Law’ American Journal of Islamic Sciences, Vol. 10, 1993, p. 3961.

83
Women became the greatest victims of the abandonment of the
Shari’a as an emancipatory and creative force since in the area
of family law, which affected them acutely, need for reform or
accommodation was neither felt nor forced. On the other hand,
in the male and ‘public’ sphere, including structures of governance
and financial matters, the pressures of a changing world forced
modification in traditional Islamic norms.

A further element arising in the discussion of reservations to

CEDAW by Muslim states is the cultural influences on the
perception of women’s rights in Islam. Discussion of Shari’a
would, therefore, be incomplete without appreciating the impact
of the more potent force of Islam as a cultural reality and a
strong motivating force behind the rejection of international
human rights obligations by Muslim states. Since its initial
phenomenal expansion within the first few decades of its
existence, Islam has tended to incorporate and assimilate the
social customs and institutions of the various regions and
communities which converted to Islam.212 In these societies,
religion and culture interacted, creating a blend of ‘cultural Islam’
the manifestations of which are evident in the diverse cultural
patterns of various Muslim societies. In some areas of Pakistan,
women are completely debarred from inheriting, particularly
land.213 Female circumcision, practised in Sudan, Egypt and some
other African countries is virtually unknown in Pakistan. The

212
Instances include the practice of female circumcision in Egypt, Sudan and
other African countries; denial of inheritance rights to women, requirement
of covering the face for women when venturing outside the home, accepting
money as bride-price for a woman, accepting a woman in exchange for resolving
a blood feud and so on.
213
In particular, the North West Frontier Province and Balochistan province
of Pakistan. Rural Sindh and rural Punjab also practice similar norms.

84
Daudi Bohras – an Ismaili Shia sect – a community of approximately
half a million, settled in port towns of Karachi (Pakistan) and
Bombay (India) are exceptions in this regard. The argument of
‘cultural Islam’ with regard to female circumcision is further
strengthened by the Egyptian connection of the Bohra
community.214 The varying shades of interpretation of Shari’a
result in divergent views on what constitute ‘Islamic’ values and
norms, thus paving the way for national governments to use
religion as an escape route from domestic and international legal
obligations.

Reservations formulated by Muslim States Parties to CEDAW

bear strong evidence of the disparate positions adopted by these
jurisdictions on the subject. In the years immediately following
the coming into force of CEDAW, very few Muslim states215
were parties to the convention.216 This situation has improved
considerably and presently forty Muslim jurisdictions have ratified
and one country – Afghanistan – has signed, though not ratified,

214
For a discussion on the practice of female circumcision among Bohras see
R. Ghadially, ‘All for Izzat. The Practice of Female Circumcision among Bohra
Muslims in India’ in M. Helie-Lucas and H. Kapoor (eds.) Dossier 16, Grabels:
Women Living Under Muslim Laws 1996 pp. 13-20.
215
The identifying criteria for Muslim countries vary. One criterion is to
consider those countries where Muslims constitute over 70 per cent of the
total population as Muslim countries. For statistics, see R. V. Weeks (ed.),
Muslim Peoples: A World Ethnographic Survey (Westport CT: Greenwood, 1984) p.
882. In this study, the list of member states of the Organisation of Islamic
countries (OIC), as the determining criteria for identifying states with large
numbers of Muslim populations has been used.
216
S.S. Ali and S. Mullally, ‘Women’s Rights and Human Rights in Muslim
Countries: A Case Study’ in H. Hinds, A. Phoenix and J. Stacey (eds.), Working
Out: New Directions for Women’s Studies (London: Falmer, 1992) pp. 113-117, cite
ten Muslim states who have ratified the Women’s Convention and one that has
signed it.

85
the Women’s Convention.217 Of these countries, the signature
and ratification of Algeria, Bangladesh, Egypt, Iraq, Jordan,
Kuwait, Libyan Arab Jamahiriya, Malaysia, Maldives, Morocco,
Pakistan, Tunisia and Turkey are subject to substantial reservations.
Albania, Azerbaijan, Benin, Bosnia & Herzegovina, Burkina Faso,
Cameroon, Chad, Comoros, Gabon, Gambia, Guinea, Guinea
Bissau, Mali, Mozambique, Nigeria, Senegal, Sierra Leone,
Surinam, Tajikistan, Togo, Turkmenistan, Uganda and Uzbekistan
have become party to the Women’s Convention without entering
any reservations while the reservations of Indonesia and Yemen
are confined to Article 29(1) relating to the settlement of disputes
which may arise concerning the application or interpretation of
the Women’s Convention.218

States that have used adherence to Islam as justification for

entering reservations to the Women’s Convention include
Bangladesh, Egypt, Iraq, Kuwait, Libya, Malaysia, Maldives and
Morocco. Tunisia and Pakistan have not expressly cited Islam as
reason for reserving their position, but the religious argument
may well be inferred from the text of what appears a general
reservation.

217
Afghanistan, Albania, Algeria, Azerbaijan, Bangladesh, Benin, Bosnia and
Herzogovnia, Burkina Faso, Cameroon, Chad, Comoros, Egypt, Gabon,
Gambia, Guinea, Guinea-Bissau, Indonesia, Iraq, Jordan, Kuwait, Kyrgyzstan,
Lebonan, Libyan Arab Jamahiriya, Malaysia, Maldives, Mali, Morocco,
Mozambique, Nigeria, Pakistan, Senegal, Sierra Leone, Suriname, Tajikistan,
Togo, Tunisia, Turkey, Turkmenistan, Uganda, Uzbekistan and Yemen. Muslim
countries that have so far refrained from signature/ratification of the Women’s
Convention include, Brunei, Qatar, Iran, Somalia, Sudan. Updated information
on signatures, ratifications and accessions are available at gopher://
gopher.un.org:70/00/ga/cedaw/RATIFICA
218
http.//untreaty.un.org (accessed on November 1, 2003).

86
We have noted that CEDAW is undoubtedly a huge milestone
in attaining equality for women. The convention nevertheless
has it weaknesses, and its substantive provisions are emasculated
by a range of reservations – many of these based on the apparent
incompatibility with religious norms and beliefs. Islamic states
have relied upon their construction of the Shari’a to enter
reservations to the convention, although as indicated above, there
are inconsistencies and contradictions in these practices. Thus
some Islamic states accept the provisions of the conventions,
whereas others have objected to several provisions on the basis
that these conflict with the Sharia.

Women’s human rights as set out in CEDAW, are based on a

predominantly western liberal feminist discourse that insists on
individual rights of women to the exclusion of the multiplicity
of her identities. Several writers argue that this approach is
premised on a combination of law, modernisation theory, and
western liberal feminist jurisprudence.219 The assumption is that
there is an identifiable human nature which is at the heart of
recognising appropriate rights to develop, protect and contain
elements of this core human identity. Further, that
underdevelopment and gender inequality in the Third World are
caused by traditional values and traditional social structures. The
prescription for attaining equality for women is therefore to
address the human rights of women without reference to the
cultural embeddedness of these rights in the western liberal States.
However, the question that is being posed by women around the
world is: To what extent are the concepts of equality and non-

219
See H. Charlesworth, C. Chinkin and S. Wright, ‘Feminist Approaches to
International Law’, American Journal of International Law, Vol. 85, 1991, p. 613;
A. Hellum, 1999, supra n. 24, p. 412.

87
discrimination cast within the western liberal framework equally
beneficial for all women? For example, the point has been made
that in the African and Asian contexts most women rely on
entitlements embodied in family and community relationships
that do not relate to the “equal rights” language. Similarly, religion
forms an important part of many women’s identity. They are not
comfortable with being asked to frame their identities within a
discourse that is avowedly secular. Is the monolithic and
individualistic concept of abstract equality able to meet the
everyday needs of such women? Critiques of CEDAW pointed
to the presence of conflicting human rights principles such as
gender equality on the one hand and the right to freedom of
religion, culture, and custom on the other. Indeed, it was argued
that the Religious Tolerance Declaration of 1981, in conjunction
with Article 18 of the Universal Declaration of Human Rights
and Articles 18, 26 and 27 of the International Convention of
Civil and Political Rights (ICCPR), creates an invisible hierarchy
of human rights by placing freedom of religion at a higher level
than right to equality irrespective of sex and gender. It follows,
therefore, that if the freedom to manifest and practice one’s
religion or belief led to discrimination against women, such
discrimination could be upheld on the basis of the right to
practice one’s religion or belief. Thus, despite its holistic approach
toward questions of women’s empowerment through human
rights, CEDAW was said to have failed in providing a clear
methodology to resolve these conflicting rights.

A balance may be achieved by going beyond a mechanical reading

of equal rights for women in international human rights law,
assessing critically the evolutionary journey traversed by the
concept of ‘equality’ and ‘non-discrimination’ since it was first
introduced into international human rights documents. In the
initial stages of application, ‘equality’ and non-discrimination
was generally interpreted in formal legalistic terms on the premise

88
that by making that statement in law, equality and non-
discrimination would follow in practice. This interpretation and
manifestation of the concept was flawed on a number of counts.
Equality was perceived and defined as being like a man. As
Catherine Mackinnon writes, “man has become the measure of
all things.” Over the decades and with inputs from human rights
scholars, activists, human rights treaty bodies and domestic courts,
the non-discrimination norm and equality has achieved a more
nuanced and sophisticated position. It now includes within its
meaning the interconnectedness of various human rights to give
it substantive content. Equal rights to health, employment and
education may imply different and unequal measures – in order
to arrive at equal access for all. Where the norm remains to be
developed and firmed up is in the area of allocation of resources,
both human and material. Most importantly, measures such as
gender budgeting need to be introduced as an integral component
of any planning, monitoring and evaluation aspect of government
projects.

Men and women start the race for equal rights from totally
different starting points. As illustrated in the case studies in the
present collection, there prevails deep inter connectivity and inter
relation between civil and political rights (the issue of non-
discrimination and equal access both as women belonging to
majority and minority communities), with economic social and
cultural rights (safe transport for women to access an educational
institution, a health facility and the workplace or simply access
to a toilet within the public space).220 Women’s disadvantages are

S. S. Ali, ‘Where is the Toilet? Getting down to Basics in Accessing Women’s

220

Rights’ in Anne Hellum, S. S. Ali, Julie Stewart & Amy Tsanga (eds.,) Paths are
made by Walking: Human Rights, Intersecting Plural Legalities and Gendered Realities
(Harare: Weaver Books, forthcoming 2006).

89
often based on structural injustice and rethinking human rights
through innovative applicatory mechanisms, may afford
opportunities to address those structural injustices and make
women’s human rights a reality.

3. Islamic Law and the Politics of Identity in India,

Pakistan and Bangladesh: A Historical Overview

The three countries of India, Pakistan and Bangladesh have

complex and inter-connected politics of identity in relation to
Muslim communities which can be traced in part to the history
of ‘secularism’ and ‘personal laws’ in the British Indian
subcontinent. The subsequent independence of the two separate
states of Pakistan and India, and thereafter, the Independence
of Bangladesh from Pakistan continue to inform the politics of
identity of Muslim communities in the region. India has the
second largest Muslim population in the world, accounting for
13 per cent of the population of the country. In Pakistan, given
the history of its birth as a nation, Muslim communities are in
majority accounting for approximately 98 per cent of the
population. In Bangladesh, Muslims are also in majority,
accounting for 88 per cent of the population of the country.

India is an avowedly secular state. Whilst secularism was added

into the fabric of the Constitution via an amendment to the
preamble to the Constitution in 1976, the state has been pursuing
avowedly ‘secular’ policies since its inception as a state. This has
meant a policy of non-interference in the ‘personal laws’ of the
various religious communities of the country. The Constitution
of India, in its Directive Principles of State Policy calls for the
institution of a universal civil code, to have a uniform operation
of ‘personal laws’ in the country. The politicisation of this
directive with the language of ‘appeasement of minorities’ by
right wing groups such as the Bharatiya Janata Party (BJP) has

90
meant that the issue of discrimination against women in the
personal laws has been usurped for a politics of identity in
India. This was starkly evident through the events surrounding
the famous Shah Bano case in the 1980s in India.

Pakistan on the other hand, with its particular struggle for

independence from British India, gives a context for the
continuing (contested) processes of ‘Islamisation’ of the state.
However, the history of secularism in Pakistan is a chequered
one. Islamic ideology was formally incorporated into the
Constitution in the early 1950s, but in 1962, under martial law,
the word ‘Islam’ was dropped, but was re-incorporated under
the 1973 Constitution. While Pakistan is officially an Islamic
Republic, the state continues with the practice of personal laws
for the different communities of the country.

The early history of Bangladesh attests to the incorporation of

the precept of secularism in the Constitution of Bangladesh.
However, in 1988, secularism was repealed from the Constitution
and it was replaced by ‘absolute trust and faith in almighty Allah’
and the Constitution was introduced by the opening words of
‘In the name of Allah…’. Under Gen Ershad, Islam was made
the state religion of Bangladesh. However, like India and Pakistan,
Bangladesh too follows the principle of personal laws for the
various religious communities in the country.

In what follows, we examine the history of the incorporation of

the principle of ‘personal laws’ in the ethos of the subcontinent
and indicate the ways in which the three countries evolved their
particular understandings of Islamic law. The attempt, therefore,
in this section is to historicise the issues around Islamic law by
examining the ways in which it has been strengthened, contested
and transformed in the three countries.

91
History of Personal Laws under British India: An Overview

The history of the relationship of religion and the state in the

Indian subcontinent has been a vexed one and in part, can be
traced to the introduction of the concept of personal laws by
the British very early on. Personal laws in the subcontinent has
come to mean both the application of religious laws of the
particular communities in the areas of family matters and
inheritance as well as an avowed policy of non-interference in
these matters on the part of the state. The concept of personal
laws, as it was understood in British legal history, drew upon a
distinction between personal and territorial laws: personal laws
attached to a person at birth and followed them wherever he or
she went.221 The introduction of this concept into the legal
framework of the subcontinent, as the India report shows, is
traced to the Hastings Plan of 1772, and especially to Article
xxiii of Regulation II of 1772, which established a hierarchy of
civil and criminal courts and charged them with the task of
applying indigenous legal norms ‘in all suits regarding inheritance,
marriage, caste and other religious usages or institutions’. The
thrust of Hastings’ initial formulation, which was to reappear in
modified form in all constitutive legal documents of the early
colonial period, laid out that indigenous norms comprised ‘the
laws of the Quran with respect to the Muhammadans’ and those
of the ‘shaster with respect to the Gentoos’ (Hindus).222 The

221
Archana Parashar, Women and Family Law Reform in India: Uniform Civil Code
and Gender Equality (New Delhi: Sage Publications, 1992) p 46.
222
Ibid; M. Anderson, Islamic Law and Colonial Encounter in British India (London:
Curzon Press Ltd., 1993); J. Nair, Women and Law in Colonial India: A Social
History (New Delhi: Kali for Women, 1996); Flavia Agnes, Law and Gender
Inequality: The Politics of Women’s Rights in India (New Delhi: Oxford University
Press, 1999).

92
plan also provided for maulvis and pandits to advise the courts on
matters of Islamic and Hindu law, respectively. In effect, as
Parashar suggests, the Hastings Plan laid out the foundation for
the British differentiation between laws applicable to personal
and to other matters, as well as a policy of non-interference in
the private affairs of the various communities by British law-
making, by what Parashar terms ‘saving for’ the Hindus and
Muslim communities the right to apply their own religious laws
in these matters.223

There are several important arguments that Parashar makes in

relation to this policy of non-interference in the ‘religious’,
‘personal’, ‘private’, ‘family’ matters by the British. For a start,
she suggests that this policy was not evenly applied: for instance,
for a long time there was no similar provision to ‘save’ the
personal laws of communities such as the Parsis, Jews and
Armenians.224

Secondly, Parashar argues that there was a conflation between

‘personal’ and ‘religious’ laws by the British administration. The
two major communities of India were identified by the religions
they followed and the personal laws, which the English
administrators had decided to save, were in turn also understood
to be religious. Thus the categories ‘religious laws and ‘personal
laws’ became interchangeable but in the process it was forgotten
that before the intervention of the British all other aspects of
law for Hindus and Muslims were as religious as the religious
personal laws.225

223
Parashar, 1992.
224
Ibid.
225
Ibid.

93
Thirdly, Parashar argues that this policy of non-interference did
not extend to the legislative powers of the state.226 Janaki Nair
contextualises the argument that Parashar makes by suggesting
that the colonial state in India passed through at least three
identifiable stages:

From a period of predatory mercantilism (from the earliest days

of the East India Company in India in the seventeenth century
to the late eighteenth century), to the period when its intervention
encouraged forms of capitalist enterprise, culminating in a period
when the power of the state was increasingly challenged by the
moral-intellectual leadership of the Indian national movement.227

The related argument that Nair makes is that processes of

intervention by the British in the personal laws of the
communities were by no means linear: in the early years, the
intervention was minimal, by the early nineteenth century, some
social practices of the Indians were legally challenged, whereas
by the end of that century, the colonial intervention was far
more timid.228

Although the proclamation of Queen Victoria, on assuming direct

control of India contained the assurances that the customs and
practices would be respected, the Charter of 1833 conferred
extensive powers of legislation on the newly established legislative
council.229 However, the recommendations of the Second Law
Commission constituted in 1853, urged against the codification
of Hindu and Musli laws. Nonetheless, it recommended that
almost all other aspects of civil law be codified on the basis of

226
Ibid.
227
Nair, 1996.
228
Ibid.
229
Parashar, 1992.

94
English civil law.230 Over a period of time, however, some matters
initially considered ‘personal’ were legislated upon. For instance,
contract laws were later made the subject of a separate code;
and famously, the practice of sati was legislated upon.231 Further,
there were legislations enacted on the ‘personal’ matters of other
minority communities such as the Christians and Parsis. Hindus
(communities such as Sikhs and Jains were considered Hindus)
and Muslims were excluded from the purview of legislations
such as the Married Women’s Property Act of 1874.

Flavia Agnes, in her work on law and gender equality also makes
several arguments about the British engagement with personal
laws. She suggests that with the British categorisation of
communities based on their religion, a legal fiction was created
that the laws of Hindus and Muslims are rooted in their respective
scriptures, leading to the Brahminisation and Islamisation of
laws. A further assumption that was cemented through this
process, she suggests, was that Hindus and Muslims were
homogeneous communities following uniform laws.232 Michael
Anderson takes the critique even further and suggests that the
binary categorisation of Hindu and Muslim was inadequate to
contain the diversity of legal life on the subcontinent.233

Therefore, to summarise from the discussion, while the British

followed an avowed policy of non-interference in the personal
laws of communities, this was by no means applied evenly, or
even adhered to strictly. Further, with the categorisation of
communities based on their religion, the presumption of the

230
Ibid.
231
Ibid.
232
Agnes, 1999; Anderson, 1993.
233
Anderson, 1993.

95
homogeneity of the communities was augmented and a scriptural
view of Hindu and Muslim laws was imposed leading to the
Brahminisation and Islamisation of the laws. Towards the end
of the colonial period, especially in the 1930s, several laws were
passed regarding the personal laws of both Hindu and Muslim
communities. As a stark result of all of these processes, ‘what
were called “personal laws” at the moment of independence,
were often seriously modified laws, amounting in some cases, to
nothing more than State enactments’.234

This history is important to understand because the processes

of reform (or lack thereof) especially with regard to Muslim
communities in the context of India (and to other minority
communities in Pakistan and Bangladesh) has continued to refer
back to the colonial precept of non-interference in the personal
laws of the communities, and where such intervention is sought,
it is perceived as infringing on the rights of minority identity. We
shall examine this further in the next couple of sections. In the
next, we shall examine the transformations that occurred in the
personal laws affecting Muslim communities in British India.

Muslim Personal Law under British India

It has been widely noted that the colonial period was a gradual
period of Islamisation for Muslim personal laws in India (Parashar,
1992; Anderson, 1993; Nair, 1996; Agnes, 1999). Anderson makes
several arguments in relation to Islamic identity and the processes
of Islamisation during the colonial intervention. Firstly, he
suggests that the British worked with the presumption that the
Shariat was authoritative for Islamic scholars, consequently, they

234
Nair, 1996.

96
glossed over its internal contradictions and set about applying it
as a more or less homogeneous set of rules. In the process of
looking for a unified ‘Muhammad’ law, administrators, therefore,
made the mistake of treating certain classical Islamic texts as
binding legal codes. Secondly, he argues that under the colonial
state, the category of Muslim or Muhammadan took on a new
fixity and certainty,

In theory, each individual was linked to a state enforced religious

category. Identities that were syncretic, ambiguous or localised
gained only limited legal recognition; for the most part, litigants
were forced to represent themselves as Muhammadan or Hindu.
(Anderson, 1993: 21).

Therefore, according to Anderson, on the one hand, there was

a scripturalist turn in the British understanding of Islamic law,
which fixed on certain Islamic texts as binding legal codes; and
on the other, there was a polarisation of identity into the
categories of Hindu and Muslim, thereby eliding the several
amorphous and ambiguous identities that existed at the time in
India. As Agnes puts it, a fiction was created that Muslims and
Hindus were homogeneous communities (Agnes, 1999: 43). Nair
makes the related argument that the colonial processes of
codification and reform through the nineteenth century, fixated
on Hindu law (with instances such as widow remarriage, sati),
and not on Muslim law. She suggests that when Muslim law was
focused upon, its ‘scriptural roots were traced fairly easily by
those anxious to produce administrable laws’. This, she suggests
was done by relegating customary practices amongst Muslim
communities to the influence of Hinduism (Nair, 1996: 26-27).
However, the regulation of child marriage in the later political
climate of the 1920s did incorporate Muslim communities (Nair,
1996: 80-81).

97
The further arguments that Anderson makes in relation to the
colonial impacts on Islamic law are in relation to the laws of
evidence. He argues that the amplification of the process of
documentation and the role of the scribe slowly chipped away
at the primacy of the oral testimony, especially in criminal law.
The culmination of processes of change in evidentiary law was
the enactment of the Criminal Procedure Code (CrPC) of 1861
and the Indian Evidence Act (IEA) of 1872 (Anderson, 1993:
18). Agnes, on the other hand, contextualises the changes in
Islamic law in terms of the regulation of the ‘public’ domain by
the British. She speaks of the enactment of the Indian Penal
Code of 1860 and the Indian Contract Act of 1860 which laid
down uniform laws regulating the spheres of crime and
punishment and economic transactions, in terms of the regulation
of the public domain (Agnes, 1999: 60).

However, as Zakia Pathak and Rajeshwari Sunder Rajan point

out, even enactments such as the Criminal Procedure Code did
infringe on personal law, for instance, by granting women a right
to maintenance. The religion of the woman was considered
immaterial under this law, and women from all communities
made use of its provisions since the 1870s (Pathak and Rajan,
1992: 259).

Therefore, as the India report attests, many facets of Islamic law

underwent modification in the process of the codification of
laws by the British. Islamic criminal and evidentiary laws
underwent modification, as did the principles of economic
transactions with acts such as the Indian Contract Act, and the
Transfer of Property Act. All of these acts served to narrow the
sphere of Muslim law to encompass certain laws relating to the
family. Further, instances such as the Sarda Bill in the 1920s did
incorporate Muslim communities in the processes of codification
of the minimum ages for child marriage; and other non-personal

98
laws, such as the Criminal Procedure Code, did infringe on
personal matters.

In the wake of the Government of India Act of 1935, which

provided the first opportunity for Indians to have a representative
legislature, several reform initiatives were introduced for both
Muslim and Hindu communities. For Muslim communities, the
initiative to change Muslim personal law was taken by the ulema.
The issue that the ulema tackled was the question of customary
practices, which the ulema felt were inconsistent with the Shariat.
While several resolutions were passed by the ulema disapproving
of this practice, a bill which was introduced into the legislature
of the North West Frontier Province was enacted in 1935 as the
NWFP Muslim Personal Law (Shariat) Application Act. Thereafter
a central law was sought to be passed to the same effect. The
main reason for the bill was to secure uniformity of law amongst
Muslims throughout India. A further argument for this process
of codification was that it would improve the status of women.
This was because, it was argued, customary practices denied
women their rightful share of property (under Islamic inheritance)
(See Parashar, 1992: 146-147).

Thereafter, in 1937, the Muslim Personal Law (Shariat)

Application Act, a legislative measure to islamise Muslim personal
law in British India by abrogating the role that customary law
played, was enacted. However, the benefits for women were
limited since Section 3 of the act permitted individuals to choose
between customary law and the act in matters relating to wills,
adoption and legacies (Nair, 1996: 193). Further, Section 2 of
the Act which says that questions of property shall be dealt with
by Muslim personal law where the parties were Muslims, left
agricultural property out of the purview of the act, leaving that
to customary practices.

99
The Dissolution of Muslim Marriages Act, 1939 was a further
act that was enacted prior to independence. The argument based
on which it was enacted was that the Hanafi School applicable
in much of the subcontinent, allowed for Muslim women’s right
to dissolution only on apostasy. Troubled by this, the ulema through
a series of processes culminating in the enactment of the
legislation, which was based instead on the Maliki School,
provided limited rights to Muslim women to dissolve their
marriage. Under this act, a wife is entitled to judicial divorce on
neglect or failure of the husband to provide maintenance for
two years. However, if the wife ‘refuses herself ’ to her husband
without any lawful excuse and deserts her husband, she has no
right to claim maintenance and cannot obtain a decree for
dissolution of marriage on non-payment of maintenance.235 The
act also differentiated between men and women in terms of
apostasy as a ground for dissolution. After the act was passed,
apostasy of the wife does not dissolve the marriage, whereas
apostasy of the man does. Further, Muslim men’s right to
unilateral divorce was not affected by the reform. (See Parashar,
1992; Nair, 1996 and Agnes, 1999).

The two acts of 1937 and 1939 used the language of the situation
of Muslim women in order to carry out reforms in Muslim
personal law. The Shariat Act had the added objective of securing
uniformity of law amongst Muslims throughout British India.
But as we have seen, these processes were by no means evenly
applied and whilst the gains for women were limited, they seem
to have strengthened the processes of Islamisation of Muslim
personal law (See Parashar, 1992; Nair, 1996 and Agnes, 1999).

235
M. H. Kamali, Principles of Islamic Jurisprudence (Cambridge:Islamic Text Society,
1989).

100
Post-Independence: The Politics of Muslim Identity in
India, Pakistan and Bangladesh

Post-independence, the processes of reform in Muslim personal

law have reflected the particular political context of Muslim
identity in the countries of West and East Pakistan, Pakistan,
Bangladesh and India. In India, given India’s stance of avowed
non-interference in the personal laws of minority communities,
as the report shows, the struggle for reform in Muslim personal
laws has been fought mostly through the courts, albeit with
contradictory effects. In Pakistan, on the other hand, given the
shifting processes of Islamisation, the gains for Muslim women
have also been contradictory. In this section, we shall trace the
gains as well as setbacks achieved by Muslim women in India,
West and East Pakistan, and thereafter Pakistan and Bangladesh.

In India, there was an overhaul of Hindu personal law in the

1950s with the enactment of the Hindu Marriage Act, and the
other act which provided limited gains for Hindu women.
However, the Partition of India, which had deeply divided
communities on religious lines, did not provide a viable context
for reform of Muslim personal law.

The exigencies of the post-partition situation in the country

prevented the government from doing anything that might be
interpreted as a persecution of the minorities, especially the
Muslims. The particular circumstances of Muslims in post-
partition India demanded that they should be ‘encouraged’ to
become part of the nation voluntarily rather than made to feel
that as a minority they would always be coerced by the majority.236

236
Parashar, 1992.

101
Therefore, in the sliding scale of rights, the legal rights of minority
women were superseded by the overwhelming need to integrate
the minorities into the national mainstream (Parashar, 1992, 159).
However, although there has been very little reform of Muslim
personal law in India since Independence, the question of reforms
to Muslim personal law has come up from time to time since the
Constituent Assembly debates on the uniform civil code. Agnes
points out that the Special Marriage Act of 1954 is the only
‘significant move in post-independence period to secularise family
laws’ (Agnes, 1999: 95-96). She suggests that the opposition to
the act from religious communities was struck down with the
argument that it was a facilitatory act, as individuals were not
bound by its provisions, unless they chose to be (Agnes, 1999:
96). However, Parashar makes the argument that it was with the
debate around the Special Marriage Act of 1954, and its
applicability to Muslim communities, that the issue came to be
crystallised in terms of the sentiments of Muslim communities.
However, the question of the similarity of treatment in reform
initiatives across communities continued to rear its ugly head, to
which the government response was that the reform initiatives
were one step towards the normative ideal of the uniform civil
code (Parashar, 1992: 163-164).

Agnes notes that the next attempt at uniformity the Adoption

Bill of 1972, which lapsed and was re-initiated several times (this
went on for about a decade), but did not see the light of day.
The bill was opposed by certain segments of the Muslim, Parsi
and tribal communities. Although there was support for the bill
by several prominent Muslim scholars and jurists, the bill was
thwarted with the argument that adoption would create prohibited
relationships in matrimonial alliances, and that it would disrupt
the Islamic laws of inheritance. The fear of property transferring
to individuals was also expressed by the Parsi and tribal
communities. Agnes argues that what the Adoption Bill debate

102
did was to establish the government’s acceptance of the religio-
political leaders as the true spokespersons of the entire community
and conceded to their posture that no Muslim would have the
opportunity of rejecting Islamic law through a state enactment
(Agnes, 1999: 99-100).

In 1973, a new Criminal Procedure Code was introduced to

replace the Criminal Procedure Code of 1898. Under the old
code, a divorced woman was not named as a legitimate recipient
of maintenance and this was introduced into the new bill. This
turned out to be controversial, as certain Muslim religious leaders
saw it as infringing on already existing Muslim laws of
maintenance. The issue was resolved by amending Sec. 127 with
the argument that ‘under the customary or personal laws of
certain communities, certain sums are due to a divorced woman.
Once such a sum was paid, the magistrate’s order giving
maintenance (under Sec. 125) could be cancelled’ (Parashar, 1992:
167). Parashar makes a similar argument to Agnes in suggesting
that the debates around the CrPC and the Adoption Bill
established that the Muslim leaders ‘seemed to have a carte
blanche with regard to matters claimed to be governed by their
personal law’ (Parashar, 1992: 168). The Shah Bano case
(discussed at some length in chapter 3, epitomises this controversy
surrounding reform of Muslim personal law by a secular judiciary.

Pakistan has had a different, but not less turbulent relationship

with secularism and personal laws. On obtaining Independence,
Pakistan set about reviewing its laws in relation to marriage and
family matters. In 1955, a seven-member commission, on
Marriage and Family laws, called the Rashid Commission, was
set up to consider the personal status laws applicable in the new
state and to determine the areas needing reform. The report of
the commission which was submitted a year after, led to much
debate, especially amongst the ulema, who felt that there was an

103
unjustified tampering of classical laws. In 1961, the Muslim Family
Laws Ordinance, which drew on some of the recommendations
of the commission, was passed. The MFLO overhauled Muslim
personal law in East and West Pakistan and legislated on many
important areas such as polygamy and talaq. Under this ordinance,
although polygamy was not prohibited, it was regulated by
requiring a man to apply to the local union council for permission
to carry out another marriage, as well as to notify them of
existing wife or wives. Similarly, the ordinance provided for the
regulation of talaq. It treated every utterance of talaq in any
form whatsoever (except the third of three) as having the effect
of being single and revocable. Thereby it formalised the process
of talaq.

The third Constitution of Pakistan of 1973, which was later

suspended in 1977, re-instituted in 1985 and again suspended in
1999, enshrined certain religious principles. However, the changes
to personal laws were very significant in the 1970s. The legacy
of the Zia-ul Haq regime, which is widely perceived to have set
in motion further efforts at Islamisation, carries on with the
Hudood Ordinances of 1979, and the constitution of another
system of religious courts in the legal system of Pakistan, the
Federal Shariat Court. Under the Hudood Ordinances five
criminal laws were constituted: covering property (theft, armed
robbery), Zina Ordinance, Prohibition Order, Qazf ordinance
(dealing with false accusation of zina) and the Execution of the
Punishment Ordinance. (Laws of Qisas and Diyat also fall in the
category of the ‘Islamised’ laws brought in by Zia-ul Haq).

The law of evidence of 1984 is another discriminatory law,

which along with the zina laws, requires the testimony of four
adult male witnesses for rape.

104
When Bangladesh secured Independence from Pakistan in 1971,
secularism was one of the precepts that were central to
Fundamental Principles of State Policy of the Constitution of
1972. However, in 1977, the Constitution was amended to remove
the term ‘secularism’ and in 1988, Islam was declared the state
religion. However, this was done along with the principle that
other religions be practised in peace and harmony. The principle
of separate personal laws for the various communities of
Bangladesh continues to be enforced. However, there are several
laws that have affected the personal laws of the various
communities. Some personal laws initiated in the colonial era,
continued to apply after the Independence of the country in
1947 when it was East Pakistan. These included the Shariat
Application Act, 1937, the Dissolution of Muslim Marriages
1939 and the Child Marriages Restraint Act 1929. Likewise,
although the Muslim Family Laws Ordinance was passed when
Bangladesh was still East Pakistan, it continues to operate in
Bangladesh, with some modifications. This ordinance made the
registration of Muslim marriages compulsory, and similar
provisions have been made by the Muslim Marriage and Divorce
Registration Act of 1974. Under the 1974 Act, documentation
and registration of marriage contracts mentioning the amount
of dower is provided for. Further, the Muslim Family Laws
Ordinance provided for the payment of ‘prompt dower’— dower
which is payable immediately on demand by the wife. Also, this
claim is not lost when the marriage is dissolved by court at the
instance of the wife or when the wife exercises the right to
divorce (See Kamali, 1989).

In addition to the above personal laws, The Dowry Prohibition

Act of 1980 and its amendment in 1986 has made the custom
of dowry an offence punishable by fine and imprisonment. The
Family Court Ordinance of 1985 has established family courts
at the district and other levels, to deal with cases relating to

105
marriage and divorce, restitution of conjugal rights, recovery of
dower, maintenance and custody of children. Provisions have
been made for mediation and quick disposal of cases.

The latest law reform affecting women is the Prevention of

Women and Child Repression Act 2000 in which sexual
harassment and repression are identified as punishable crimes.
This law provides the death penalty for those convicted of rape
offences and also prevents publication of victim’s photographs
in newspapers. The introduction of the concept of the safe
custody is one of the most important features of the law.

The discussion in this chapter attempted to outline the contours

of a conceptual framework for analysing effective implementation
and application of CEDAW to women governed by multiple
legal norms (one of which is Islamic law). It highlighted the
difficulties imminent in such a project and provided some avenues
for explorations of strategies on the way forward. The succeeding
chapters provide an insight into such application in light of
specific country studies undertaken in Bangladesh, India and
Pakistan.

106
 Part II
Chapter 2

CEDAW and Bangladesh: A Study to

Explore the
Possibilities of Full Implementation of
CEDAW in Bangladesh

Mahmuda Islam
1. Introduction

Women the world over are subject to gender discrimination that

results in lack of enjoyment of full civil, political and personal
rights by women equally with men. Laws, traditions and customs
create and perpetuate gender discrimination. On December 18,
1979, the United Nations General Assembly adopted the
Convention on the Elimination of all Forms of Discrimination
Against Women (CEDAW) with the objective of providing ethical
and legal sanction to the enforcement, protection and promotion
among women in equal terms with men all human rights
guaranteed under the Universal Declaration of Human Rights
(UDHR), and bringing about full gender equality between men
and women.

Bangladesh was the first of the three countries under review to

ratify CEDAW in 1984 albeit with reservations to Articles 2,
13(a), 16(1)(c)(f). In view of the demands from women’s
organisations and human rights groups, the government of
Bangladesh set up a committee with representatives from women’s
groups; the committee recommended withdrawal of all
reservations. But the Ministry of Law and Justice, on examination
of all aspects of the legal system, approved withdrawal of
reservation on Articles 13(f) and 16.1(f). Accordingly, reservations
to Articles 13(a) and 16.1(f) were withdrawn so that reservation
is now limited to Articles 2 and 16.1(c).

2. Objective of the Study

The main objective of the present study is to explore possibilities

of full ratification of CEDAW by helping to create an enabling
environment for the government to completely withdraw its
reservations. Articles 2 and 16.1(c) of CEDAW come into conflict
with religious laws which form part of the legal system in as

108
much as there is discrimination between men and women in
personal family matters like inheritance, guardianship (Article 2)
and in marriage and dissolution of marriage (Article 16.1(c).

Reservations of the government of Bangladesh regarding these

articles stems from its unwillingness to interfere with personal
religious laws and reluctance to legislate to replace them. In its
Fifth Periodic Report for the UN Committee for Elimination of
all forms of Discrimination Against Women, January 2003, the
government of Bangladesh stated:

In Bangladesh religious precepts influence and govern personal

affairs like marriage, divorce, custody of children, inheritance of
property etc. In case of Muslims, personal laws are drawn from
Shariah Law, which is based on the Holy Quran and Sunna. The
Hindu population is governed by Hindu Law. Significant reforms
in Muslim Family Laws, particularly in case of polygamy, divorce
etc., have already been undertaken to protect women’s interest
indicating that the Sharia Law is not immutable and there is
scope for initiating further reformatory measures. The government
endorses the need for initiating reformatory measures for
considerations of well being of people and society. It is also
aware of the need to prepare the society for social acceptance
of these reforms.

The following facts emerge from government’s stand on the

issue:
i) The reservations are not final and may be withdrawn in
course of time;
ii) Religious customs and traditions are amenable to
reinterpretation and
iii) Public opinion is malleable and should be moulded in favour
of implementation of CEDAW.

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The present study thus originates from the need to create the
conditions and environment for enabling the government to
withdraw the reservations. Comprehensive knowledge and reliable
information are pre-requisites to awareness about the provisions
of CEDAW, its importance and significance, and crystallisation
of a well-informed, effective public opinion. This study is,
therefore, designed to circulate all relevant documents on CEDAW
and existing personal laws to a cross section of the population
holding different shades of opinions, beliefs and specialisations
and to ascertain, analyse and document their knowledge, ideas,
views and experience on the issue.

3. Methodology of the Study

In line with the objectives of the study, a paper was compiled

containing information about CEDAW, relevant provisions of
Islamic jurisprudence, legislation already passed on matters dealt
with by religious laws, steps taken by other Muslim countries
with regard to CEDAW. On the basis of the information thus
compiled, a questionnaire was prepared which asked respondents
to give their views on the reserved provisions of CEDAW taking
into consideration the information provided. If response is
negative on both or either of the two issues, respondents were
called upon to adduce reasons/arguments in support of the
particular view. Respondents also had the option to propose
Islamic juristic principles of Ijtihad.237

A list of respondents was prepared giving preference to persons

in leadership roles connected with institutions, such as, Baitul
Mokkaram Mosque, Masjid Mission, universities, law associations,
political parties, students union, NGOs, media, television, radio.

237
See questionnaire in Appendix III.

110
 Number of Respondents

Religious thinkers including Ulema, teachers in the

Arabic, Islamic Studies, Islamic History Departments
of Universities, Principal, Alia Madrassa, Chairman,
Madrassa Education Board, Imams of important
mosques, representatives of religious organisations 30
like Islamic Foundation

University Professors including those at Faculties 25

of Law

Members of Political Parties 10

Lawyers 20
Journalists 10
Students 20
Representatives of NGOs including women’s 20
Organisations
40
Civil Society

Total 175

The questionnaire was supplied to respondents requesting for

written views. The research assistant pursued the respondents.
In some cases, the questionnaire was filled by the assistant on
the basis of interview with the respondents. The principal
researcher personally talked to a number of respondents to
facilitate their response. In all, 175 questionnaires were circulated
with the expectation that at least 100 would willingly respond.
97 persons, whose breakdown is presented below, responded.

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 Category of Respondents238

Category Number

Religious thinkers 18
University level teachers including
faculties of Law 21
Political Parties 04
Lawyers 10
Journalists 04
Students 05

Representatives of NGOs including

women’s Organisations 09
Civil Society 26

Total 97

4. Human Rights of Women in Bangladesh

Women’s human rights in Bangladesh, in common with other

countries in the region, are informed by multiple sets of norms
and laws, both formal and informal. The legal system broadly
defined, consists of:

i) The Constitution of the People’s Republic of Bangladesh,

which determines the form and character of the government
and specifies fundamental rights of citizens. The Constitution
declares equality before law, yet all laws are not equally

238
About 21per cent of the respondents are from outside the capital Dhaka
and 29 per cent are women.

112
 applicable to every body. The actual situation is that there
are different laws for different communities and different
religious laws continue to be applicable to citizens professing
different religions;

ii) Customs and traditions prescribed by different religions which

have the force of law and are enforceable by the judiciary
in respect of members of the particular religion. The areas
in which religious laws are applicable include interpersonal
relationships in the family context, such as, marriage,
dissolution of marriage, protection and maintenance of the
family, guardianship of wife and offspring, alimony,
inheritance, gift, bequest, adoption, custody of children,
descent. These laws are discriminatory to women and provide
unequal relationship between men and women;

iii) Laws enacted by the legislature apply to all other spheres of

public and private life. These laws do not discriminate
between men and women except in certain limited cases.

Structure of the Judiciary in Bangladesh

Supreme Court = Appellate Division +

High Court Division

Appellate Division

High Court Division

Sessions Court

Civil Court = Magistracy

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The judicial system is the only legal forum for hearing cases,
disposing of disputes and providing interpretation in all matters
arising out of the legal system including the Constitution, civil
and criminal laws and personal laws. There are no religious courts;
Fatwa given by a religious authority has no validity in law and
Hudood239 is not recognised by the legal system.240 Any body
trying to enforce Hudood will be liable to prosecution under the
criminal law of the country. The issue of Hudood and Fatwa has
been settled by verdicts of the high court which describes it as
illegal.

4.1 Economic Rights of Women

The Constitution of Bangladesh does not discriminate between

men and women in economic activities. It confers on women
the right to participate in gainful business occupation and
vocation. Every citizen has the right to enter any lawful profession
and occupation and to conduct any lawful trade or business. The
Constitution provides that no one shall be ineligible for or
discriminated against in respect of any employment or office in
the service of the state. The Constitution requires the state to

239
Literally means ‘limit’; As a term of jurisprudence it means an offence for
which a prescribed punishment is set out in the Islamic legal tradition.
240
Hudood refers to crimes for which the Quran clearly specifies the procedure
of trial and evidence and prescribes the punishment. Adultery is such a crime
for which the Quran clearly lays down system of trial and punishment. In
Bangladesh, these Hudood laws laid down in the Quran are not enforceable.
Bangladesh has specific laws of crimes, trial, evidence and punishment which
are totally different Hudood laws and have nothing to do with the Quran.
Hudood is not, therefore, legal in Bangladesh. However, in Pakistan legislature
passed a specific law with the view to enforce Quranic laws on crime especially
adultery.

114
ensure participation of women in all spheres of national life and
to adopt effective measures to ensure equitable distribution of
wealth among citizens. Further, the Constitution authorised the
state to make special provision for women for their advancement
and on that authority, has introduced special quota for women
in employment. Despite this progressive trend within the
constitutional document, there is provision for thee state to
exclude women from jobs, which by its nature is unsuited to
them. But the state has not taken any step to exclude women
from any employment including the armed forces.

4.2 Social Rights of Women

The Constitution of Bangladesh prohibits discrimination on the

grounds of sex and gives women equal rights with men in all
spheres of the state and public life. No citizen can be subjected
to any disability, liability, restriction or condition with regard to
access to any place of public entertainment or resort or admission
to any educational institution. Women have the right to move
freely throughout Bangladesh.

As already pointed out, customs and traditions prescribed by

different religions have the force of law in family matters including
interpersonal relationships in the family context, and are
enforceable by the judiciary in respect of members of the
particular religion. These laws are discriminatory to women and
negate the constitutional provision of equal rights of men and
women in the social sphere and make women subordinate to
and dependent on men. Muslims in Bangladesh are guided by
the Hanafi School of Islamic Jurisprudence241 under which the

241
For juristic schools of thought in Islam see discussion on Chapter 1.

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commonly held perception is that polygyny is allowed to husband,
but bigamy is punishable for women; a son has double the share
of daughter in parental inheritance and bequest of property to
children by will is not permissible. The husband is the guardian
of the wife and the children, and can divorce the wife any time
without assigning any reason and without being required to go
through any divorce proceedings. 242 Women do not have
corresponding rights and normally have no right to divorce
husband except through an elaborate legal proceedings in which
she has to justify her claim by showing grounds acceptable to
the court.243 If a person is survived by at least one son the
property of the deceased is retained by the son, and daughter,
if any. But if a person is survived by daughters only and leaves
no son behind, daughters inherit only a part of the property and
a part goes to the male kin to the deprivation of the daughters.244

Under the Constitution of Bangladesh, the legislature has the

right to pass laws overriding religious laws, which will then become
inoperative; but it normally does not legislate on these matters.
However, in the past, laws have actually been passed in the area
of personal laws in the public interest and in order to mitigate
hardships, to ensure equality and to protect women’s rights and

242
This is clearly a perception as opposed to an actual Quranic injunction as
stated in its Chapter 4 entitled Women.
243
Women have a right to khula i.e., dissolution of the marriage contract at the
initiative of the wife and by agreeing to give up her mahr.
244
As regards inheritance, Islamic law prevails in Bangladesh. Muslims in the
world are broadly divided into two sects —Sunni & Shia & there are differences
in the practices followed by the two sects. One such area of difference is the
practices of inheritance. Muslim in the subcontinent including Bangladesh are
overwhelmingly Sunni and follow the Sunni Hanafi School, Shias follow Shia
Jurisprudence.

116
for consideration of well being of people and society. These
laws including the Child Marriage Restraint Act 1929, the
Dissolution of Muslim Marriages Act 1939, the Muslim Family
Laws Ordinance 1961 and the Muslim Marriage and Divorce
(Registration) Act 1974 have, arguably, made inroads into the
Islamic traditions of polygyny, divorce and inheritance.

Violence against women is a telling reflection of the unequal

relationship between men and women and women’s subordination
and discrimination and is now recognised as a serious constraint
to women’s advancement and empowerment. One of the worst
manifestations of subordination of women is reflected in the
institution of dowry which is the prime cause of domestic
violence. The menace has assumed such proportion that the
prime minister has given special attention to launching a mass
movement against it and personally sent an appeal to 120
thousand persons including government officials, local
government representatives, members of civil society, political
leaders, teachers and religious leaders to work against dowry.

Dowry, however, is only part of the phenomenon of violence.

Information collated by the Bangladesh National Women
Lawyers’ Association states that violence in all forms, including
rape, physical, mental and sexual harassment and torture of
women in the family, the workplace and in the wider society, is
on the increase and has almost doubled in 2003 from 2002.

4.3 Political Rights of Women

The Constitution does not make any discrimination between

men and women in the area of political rights and gives women
equal rights with men to stand as a candidate in election to the
Parliament and to vote in elections on the basis of adult franchise.

117
Women can be members of Parliament, speaker, prime minister
or president. Both the prime minister and the leader of the
Opposition in the Parliamentary democracy of Bangladesh have
been women.

However, historical absence of women from the political arena

has weakened women’s position for putting themselves forward
as candidates. Very few women contest elections to Parliament
and not more than 10 women have ever been elected in a
Parliament of 300 members. Recognising the situation, an interim
provision of 30 reserved seats for women in a Parliament of
300 members was made in the Constitution. The 30 women
members were selected by the 300 general members of
Parliament. The interim provision has expired and the
Constitution has been amended making provision for 45 reserved
seats for women. Their right to contest in the 300 general seats,
however, remains unaffected.245

At the grassroots level, local government institutions have

provision for women membership to be elected by adult franchise.
One third of the membership of these institutions has been
assigned to women to be elected through direct election similarly
as the general members. In 1997, direct election of women
members in Union Parishad, the lowest tier of local government,
took place. Women members at the Union Parishad constitute
almost 22 per cent of the total members. In addition to direct
election to the reserved seats, 20 women were elected as
Chairpersons and 110 women were elected members in the
general seats contesting against men candidates.

245
Similar experiences are reported from other countries in this collection.

118
5. Women’s Rights in CEDAW and the Sharia:
Perspectives from the Respondents

As indicated in Section 3, respondents in the present study

represent a fairly well distributed section of the population. We
believe their views are likely to be considered well-thought and
learned opinions that will go a long way in creating the
environment for full implementation of CEDAW by the
government of Bangladesh.

5.1 General Observation

The fieldwork was spread over a period of twelve months from

September 2002 to August 2003. The effective time of interviews
and receipt of the questionnaires from respondents was January
to March 2003. It needs, however, to be noted that very few
respondents came forward voluntarily to fill in the questionnaire
and most of them had to be persuaded to do so. Both the
principal researcher and research assistant had to make follow
up visits and telephone them several times. In some cases, the
assistant had to fill up the questionnaire on the basis of the view
expressed by the respondents. Despite our best endeavors, many
did not co-operate mainly due to sheer apathy. This has led to
the impression that people in general are either not aware of
CEDAW or did not take due notice of it, or simply ignored
information on the subject. There appears to be apathy towards
women’s development and a lack of commitment regarding rights
of women. The situation cuts both ways. On the one hand, the
government feels insecure about public reaction to ratification
of provisions of the CEDAW which fall in the domain of Sharia
laws. On the other hand, there is the prospect that if the
government ratifies CEDAW in full, its action will go unnoticed
and there will be little adverse reaction or active opposition. In
the past, governments have passed legislations encroaching on

119
the domain of religious laws, for example, restricting polygamy,
revising religious precepts on inheritance, providing arbitration
by such civil authority like Municipal Corporation in divorce
matters. The Ulema accepted the situation ostensibly because
they could not muster public support to oppose the legislation.
One respondent pointed out that the Ulema in Bangladesh are
divided and there is rivalry and even hostility among them so
they cannot carry the people with them. In the vacuum, political
decisions can and do play a decisive role. A bold and firm
political will is the need of the hour and is capable of delivering
the goods. One respondent went so far as to say that neither the
public nor the Ulema have at any stage voiced effective opposition
to CEDAW and, therefore, delay in its complete ratification is a
political stunt on the part of the government.

5.2 Respondents’ Observations on Article 2 of CEDAW

An overwhelming majority of the respondents favoured

ratification of Article 2. However, 14 respondents were against
any legislation on religious law. Those in favour as well as those
opposed to ratification of this article agreed that Islam cherishes
equality of men and women and promotes and protects rights
of women. There is, therefore, no basic contradiction or
incompatibility between Islam and CEDAW so far as these
objectives are concerned. Respondents opposing CEDAW,
however, believe that equality enshrined in Islam and protection
of rights accorded to women in the Quran and Sunna are much
more suited to promotion of social peace and stability, family
solidarity and discipline and ultimate welfare and good of
humanity. Moreover, they believed that Allah is decidedly the
better judge, arbiter and dispenser of what is good for human
progress and prosperity than any human institution. Religious
principles and dispensations should, therefore, have precedence

120
over CEDAW and, Allah being the better guide, any change in
religious law will be harmful.

Respondents in favour of ratification of articles of CEDAW

argued that in Islam there is no inequality in substantive matters;
but difference has been created in functional matters by taking
piecemeal view and giving narrow and prejudiced interpretation
by an all-male religious leadership. The inequality between men
and women was a product of the then prevailing social
environment. But that environment has undergone profound
and widespread change and the time has come for rationalisation
of women’s rights in the contemporary context. Such
rationalisation certainly leads to a broader and more liberal
interpretation of Islam and makes CEDAW acceptable keeping
within the parameters of Islam. To this end, it may be mentioned
that the Supreme Court has given verdicts on guardianship,
maintenance of family and marital relationship on the basis of
the principles of equality and equity that have rationalised Sharia
laws and thus enriched a liberal Islamic jurisprudence.

It is pertinent to make the point that action proposed in Article

2(a) to (e) and (g) of CEDAW is already in place in the
Constitution of Bangladesh which proclaims equality of all men
and women before law, prevents discrimination on the ground
of sex, prohibits discrimination in admission to educational
institutions on ground of sex, declares equality of opportunity
and eligibility for all men and women in respect of employment
or office and prohibits restriction on movement. Thus, equality
of men and women in relation to civil, political, economic and
legal rights is enshrined in the Constitution.

Problems however, remain with clause 2(f) in relation to which

personal laws of Islamic jurisprudence are in force. Some
respondents referred to the clear constitutional provision that

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laws inconsistent with the Constitution are void and inoperative
and claimed that personal laws are void and inoperative as they
violate constitutional guarantee of equality between men and
women, especially the Article 28(2) which states, “Women shall
have equal rights with men in all spheres of the state and public
life”. Some respondents disagree on the ground that the word,
‘family life’, does not appear in and is not covered by this article
of the Constitution and as such Islamic laws regulating personal,
family life cannot be called unconstitutional. This view has been
considered by some respondents as narrow and misleading. Family
is considered the ideal centre for fullest development of
individuality of the human species and a child brought up in an
unequal family environment will not be able to adjust to equality
in state and public affairs. Family life is not, therefore, separable
from public life. Moreover, the Constitution aims at removal of
discrimination and its spirit clearly and unequivocally against
discrimination.

It may be stated that even with regard to clause (f) of Article 2,

the position of the government has undergone substantial
modification over time. It has already ratified all the clauses of
Article 16 with the lone exception of clause (c) and such
ratification has set at rest many of the Islamic traditions in
favour of CEDAW provisions for equality.246

The government has, therefore, assumed obligations to pass

legislation or otherwise take measures to do away with
discrimination and discrepancies in these matters. Certain changes
have already taken place. The notion of the female-headed family
has emerged and is officially recognised. Women can be known/

246
See Appendix 1 for text of CEDAW.

122
identified by the name of parents and not necessarily by their
husband’s identity. Names of both parents must appear in all
official documents. Women need not adopt surname of husband
and may continue maiden name. Women can opt for parents’
household as permanent address and need not adopt in-law’s
abode.247

One respondent asserted that Allah has given men guardianship

over women and therefore, brings into question the concept of
equality for men and women. In response to this line of argument,
it may be stated that in recent years this position has become
controversial. The Quranic verses which deal with this issue are
subject to different interpretation in the context of time and
situation. In the An-Nisa248 it is stated that men are protectors
and maintainers of women because men support and spend
money for women from their means. Ostensibly, this guardianship
is conditional and based on the husband’s ability to support the
wife. A woman can repudiate the marriage and secure her release
from the bond if the husband fails to maintain her. The question
is often posed as to interpretation and application of this verse
in situations where the woman has an independent income and
does not depend on her husband for support. In Bangladesh
women are increasingly entering the labor market to earn an
income to support the family. Logically, the husband cannot
claim guardianship in such case. It has, therefore, been claimed
that protection and maintenance means responsibility to provide
a service i.e., financial support and does not automatically mean

247
Note: Rights presented in this paragraph are recognised as fairly non-
controversial within the Islamic legal tradition.
248
The Quran, Chapter 4, verse 34.

123
superiority or leadership. Moreover, there are Quranic verses (Al
Baqura, 228; Al Tawba, 71) which state that men and women
have rights over one another and are protectors of one another.
Thus, a rational, liberal and practical interpretation of the Islamic
laws will support equality between man and woman. The
government in ratifying Article 16.1(d) and (f) has accepted this
liberal interpretation which is reflective of the contemporary
situation and prevailing conditions in society.

Another issue which some respondents raised in connection with

Article 2 is the Islamic law of inheritance which does not afford
equal share to men and women. Among the respondents who
opposed ratification, 2 specifically referred to the inheritance
issue in as much as they believe that the Quran has clearly laid
down the principle of inheritance and that this must be respected.
Among respondents who favoured ratification, 3 suggested that
the Islamic law of inheritance should be reviewed in the full
perspective of Islamic social arrangement before ratification. They
believe that in the Islamic tradition, certain protective advantages
given to women may be evoked to justify the discriminatory law
of inheritance. For instance, mahr is a first charge on the property
of the husband and it must be paid from the property before
inheritance. Husbands are obligated to maintain their wife and
children from their own income, resources of the wife
notwithstanding. The husband has no right over the property of
the wife and cannot appropriate that property for maintenance
of the family. Even if the wife has an independent income, she
has no financial obligations and the husband’s responsibility to
maintain his wife and children neither ceases nor is reduced.
Men, therefore, have much greater financial responsibility and
burden than women and in this context men should justifiably
have greater access to parental property.

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It needs to be pointed out here that the reality on the ground
is not as narrated by our respondent. The Islamic law of
inheritance no longer applies in full in Bangladesh and has been
substantially modified by the enactment of the Muslim Family
Laws Ordinance in 1961. The Hanafi School of Jurisprudence
which prevails in Bangladesh ordains that children of pre-
deceased son/daughter are not entitled to share in the property
of grandparents. Application of this position of Hanafi
interpretation of the Quranic verses on inheritance led to
problems for orphan grandchildren. The law enacted in 1961
gave such children share as if the son survived the parents, thus
overriding the Hanafi tradition. The legally effected change has
been justified on considerations of well being of people and
society as it mitigates the gross hardship caused to the children
by the Hanafi tradition. Similar hardship is imposed on daughters
by the Hanafi law that gives daughters smaller share than sons
and deprives daughters of full patrimony if the parents had no
son. Daughters are no longer married early and they are given
education as much as the sons; needs of unmarried daughters
are as much as the unmarried sons and as a result extreme
hardship is caused to unmarried daughters and their upbringing,
their future is adversely affected due to denial of equitable share
in the parental property. Justice demands that the rationale of
hardship and considerations of well being of people and society
is extended to the case of the daughters and the Islamic tradition
be rationalised. This is the view of the majority of the
respondents.

The views of respondents on Article 2 may be statistically

summed up in the following table:

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 Views of Respondents on Article 2

Respondents not favouring ratification 14 (14%)

Reason cited: Islamic laws are unalterable 11

Islamic law of guardianship is against CEDAW 01

provision

Islamic law of inheritance is against CEDAW 02

provision

Respondents favouring ratification 79 (81%)

Reason cited: Both Islam and CEDAW have

76
the similar objective of equality and equal rights
of women with men

Islamic law of inheritance should be 03

rationalised before ratification

Respondents remaining non-committal 04

Reason cited: The issue should be resolved by 04

a meeting of or committee consisting of all
shades of opinion.

An overwhelming majority of our respondents were of the

opinion that Article 2 of CEDAW should be ratified and the
reservation withdrawn.

5.3 Respondents’ Observations on Article 16.1(c) of CEDAW

The CEDAW requirement of same rights and responsibilities

during marriage and divorce has a direct bearing on two Islamic
traditions: (a) polygamy is claimed to be allowed to men, but
monogamy is obligatory on women and (b) husband can divorce

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wife at will at any time by just uttering the word divorce three
times and without assigning any reason; but wife can only seek
divorce through the court and on specified reasons to be
scrutinised by the court. Views of the respondents also centered
round these two issues.

Out of 97 respondents, only 12 opposed ratification of Article

16.1(c). The basic argument presented against ratification is the
same as in the case of Article 2 i.e., that Quranic laws are better
and more beneficial to mankind and must take preference over
man-made laws. The basic question here is whether polygyny is
Quranic law. There is a controversy on the interpretation of the
relevant part of Sura Al-Nisa which deals with the issue. One
interpretation is that the conditions attached to polygyny are so
stringent that the spirit of the Quran is against it. Allah has
ordained that if one cannot observe the conditions laid down
for equal treatment of all wives as well as pre requisite for
polygamous marriages, then one must be limited to one wife; in
the Sunna the Prophet (sm) has spoken of severest punishment
to those who breach the conditions. Thus the conditions are
interpreted as prohibitive and factually disapproving of polygyny.
On this interpretation, some Muslim countries have already
prohibited polygamy in all forms.

Those who oppose ratification defended polygyny not only on

the ground of inviolability of Quranic law but also by considering
it necessary for maintaining equilibrium and discipline in the
family and in the society. They argued that when a wife is barren,
incapable of sexual relations, physically ill and disabled, mentally
imbalanced, unable to perform family responsibilities, a
subsequent marriage prevents the husband from going astray,
protects him from moral turpitude and extra-marital relationship
and thus saves the family as well as the society from disintegrating.
It is claimed that monogamy has led to sexual promiscuity in the

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West and such social behavior is destructive of human values
and cannot be approved. They consider approval of polygyny in
Islam as a safety clause and not an open permission to marry
indiscriminately.

As regards denial of equal rights to women in divorce, the belief

in superiority of the Quranic injunction is sought to be
strengthened by the following assertions:

(i) In the Quran, women have been described as ‘objects’ in the

affair of marriage and as such they cannot have the option
to divorce;
(ii) Women are quick-tempered, emotional and whimsical; they
are, therefore, incapable of taking sound and rational
decisions in matters of divorce;
(iii) For the past 1,400 years, these traditions are in existence
and wives of the Prophet (sm), sahaba-e-keram [closest
companions of the Prophet(sm)], and other women
contemporaries never complained or objected; and
(iv) Since women enjoy some advantages like dower,
maintenance, custody of child, possession of tangible assets,
it will be discriminatory to give the wife the right to divorce.

Some among those who opposed ratification, held the view that
while provisions of the Quran and Sunna are not alterable, it is
always possible to find, within the parameters of religious laws,
solution to new problems as they arise depending on their
intensity, dimension and urgency.

An overwhelming majority — 79 out of 97 — opted for outright

ratification of Article 16.1(c). In addition, 3 respondents favoured
ratification subject to fulfillment of some conditions. Respondents
who favoured unconditional approval believe that the provision
in the CEDAW is in complete accord and agreement with Sharia.

128
One respondent further added that those who disagree are not
aware of the true precepts of Islam. The general consensus
among these respondents is that since the Quran accords equal
rights to man and woman, they should have equal rights in
marriage and divorce.

One respondent pointed out that despite the concession to men

to marry four wives, prostitution continued throughout the
history; trafficking, rape, abduction, violence are rampant; and
as such, men have forfeited the concession.

Another respondent claimed that polygamy has, in most cases,

disturbed family peace and led to disintegration due to bickering
among co-wives and step children and other practical problems,
polygyny is on the wane and now practically non-existent.

One respondent argued that there is no inherent ideological

conflict between the Sharia and CEDAW. While proclaiming
equality of men and women, in practice, Islam ordains upon
Muslims to show utmost respect and consideration to women.
Protective provisions for women, such as mahr, maintenance,
child support etc. which place a burden on men are counter
balanced by denying women rights to divorce. If the provision
of CEDAW is adopted, all such practical discrimination to men
or women will vanish and there will be no bar to women enjoying
the right to divorce.

One respondent found the reservation by government to be a

political maneuver. He argued that in the past, the government
did legislate on personal, family matters of marriage, divorce,
inheritance, etc. which are considered to be the domain of
religious law and tradition. Child Marriage Restraint Act, Muslim
Family Laws Ordinance, Muslim Marriage Registration Act, Family
Court Ordinance are some instances which operate in the face
of religious laws and such laws have been accepted by the people

129
and are being enforced by the courts of law. The truth is,
therefore, that the government can ratify CEDAW without any
fear of opposition provided it has the will and conviction.

Some respondents gave conditional approval for withdrawal of

reservation to Article 16.1(c) but raised the following objections:

(i) Dower, maintenance and similar provisions which are, in

fact, discriminatory to men should be abolished before the
right to divorce is granted to women; and

(ii) Kabinnama (Marriage Registration Form prescribed under

Muslim Marriage Registration Act) should be suitably
modified to allow freedom of choice regarding contract of
marriage to both men and women.

The statistical outcome is overwhelmingly in favour of ratification

of the Article 16.1(c). This is summed up below:

Views of Respondents on Article 16.1(c)

Respondents opposed to ratification 12 (12%)

Respondents favouring ratification 82 (85%)

Ratification forthwith 79

Conditional ratification 03

Respondents who remained non-committal 03

They will prefer to leave the issue to be

resolved by a meeting of or committee
consisting of all shades of opinion.

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5.4 The Hermeneutics of the Legal Process: Ijtihad on
CEDAW

Ijtihad is a decision-making process approved by Imams including

Abu Hanafi whose school of jurisprudence prevails in Bangladesh.
It is a process of judicial reasoning to interpret or reinterpret
rules for new situations arising over time for which the Quran
and Sunna have no specific stipulations.

Our research indicates that very few respondents were prepared

to leave the decision to such a process — 04 in case of Article
2 and 03 in case of Article 16.1(c). All others, irrespective of
being in favour or against ratification, felt that Ijtihad is
unnecessary, redundant or fruitless. Those who opposed
ratification were of the opinion that instructions and provisions
in the Quran and Sunna regarding marriage, divorce, guardianship,
inheritance and related personal and family matters are clear,
unambiguous and transparent and transcend time and place and
no ijtihad can change them. They argued that Muslim lawgivers
— the four Imams and their immediate followers have left an
adequate legacy in which a body of knowledge solutions for all
problems are available. Some of them believe that ijtihad in the
present circumstances will only be a motivated stratagem to get
CEDAW approved.

Respondents recommending complete ratification of CEDAW

argued that since there is no conflict between the Quranic law
and CEDAW as regards objective of equality and equal rights,
the differences in actual operation can be rationally resolved by
adopting the provisions of CEDAW and no ijtihad is called for.
It is further argued that CEDAW is a measure to ensure justice
and fair play to women and to eradicate discrimination; Islam
also works to that end. No individual with a healthy mind and
sober conscience can object to CEDAW and it should, therefore,
be ratified without debate.

131
Another point raised against ijtihad is that there is no undisputed
religious leader within the Islamic legal tradition who is acceptable
to all Muslims. The ulema are divided leading to a division amongst
their followers. It is impossible to obtain a unanimous verdict
and time will be wasted in verbose debates. In the process,
implementation of CEDAW will be unnecessarily delayed.
A further point suggested by some respondents is that education
of the ulema in general is restricted to a very narrow horizon;
they have never exposed themselves to the vast store of
knowledge that has accumulated worldwide. They, thus, lack the
broad, universal and liberal bent of mind to reinterpret equality
and equal rights in the perspective of changing time, condition,
environment and thought process. Ijtihad in such situation of the
ulema will not yield practical, down-to-earth, rational solution. In
this vacuum, only political decisions can provide solutions to
legal issues.
Another fact noted by some respondents is that in the past the
government has legislated in the domain of religious laws without
any ijtihad. Considerations of well being of people and society
involving removal of hardship, public interest, justice and equity
were the guiding principles in such legislations. None of these
laws have been rejected by the public. What is required is following
up these principles to the logical denouement by completely
ratifying the CEDAW. A strong political will and rational political
decision is the need and not ijtihad. Finally, it was the view of
some respondents that whatever equality and rights have been
gained over the past years were the result of demands of
contemporary time and situation and not the product of ijtihad.

6. Conclusion

A range of views and opinions expressed by the respondents

highlights some important perceptions regarding the potential

132
and possibilities of full and effective implementation of CEDAW
in Bangladesh. Our research indicates that respondents generally
agreed that there is no substantive or ideological conflict between
Sharia laws and CEDAW with respect to concern for equality
and equal rights of women with men. There are, however,
differences in actual application of both legal frameworks. The
majority opinion is that differences can be resolved by adopting
a liberal, progressive, rational reinterpretation of the Islamic
tradition keeping in view the exigencies of time, circumstances
and contemporary thinking. The majority of respondents
recommend immediate ratification of CEDAW including Articles
2 and 16.1(c) without delay. Since this majority represents a
cross section of the population, the government may consider
their views as reflective of effective public opinion and ratify the
CEDAW in full. There is a small minority opposing ratification
but we interpret this opposition as a sign of democracy and
unanimity in legislative matters is unlikely. The majority will,
however, should prevail.

Finally, the view may be advanced that in the past, the government
of Bangladesh has passed laws in what is claimed as the domain
of religious laws and these have been accepted as based on the
considerations of well being of people, society and in the larger
public interest. CEDAW may thus be ratified in full by applying
these principles. Society at large does not appear to go down the
path of ijtihad. What is necessary is political will and rational
decision on the part of the government.

133
134
 Chapter 3

Inching Towards Equality:

Application of CEDAW and Muslim
Personal Law in India

Kirti Singh, Sumaiya Musharraf

and Maimoona Mollah
Introduction

In India as in other South Asian countries, different personal

laws are applicable to different religious communities. These
personal laws in India operate only in the area of family law and
inheritance. A common feature of all these laws is that they
discriminate against women in varying degrees on the basis of
gender, community, class and caste and religion, are subjected to
exploitation and oppression. The state response to the
discrimination faced by women in the family has been less than
satisfactory. Personal laws have remained largely static during the
last 50 years with some improvements in the Hindu personal
laws during the 1950s and later in 2005,249 and other reforms in
the Christian law of divorce in 2003.250

The Context and the Study

India has the largest Muslim population in the world after

Indonesia. However, since Muslims constitute a minority in India,
they have specific concerns and face particular obstacles in asking
for their rights, which are different from those in other countries.
Reforms in Muslim personal law are often opposed by sections
within the community in the name of protection of minority
identity, since personal law or rather a traditional patriarchal
interpretation of it, appears to have become or purposely been
made the main marker of their identity.

The provisions of the Sharia,251 as they have been understood

and applied in India, have also not been fully compared with

249
The Hindu Succession (Amendment) Act, 2005. This was amended to give equal
rights in ancestral property to daughters.
250
The Indian Divorce Act, 1869.
251
Shariat or Sharia is the religious law followed by the Muslims.

136
CEDAW. This report attempts to study the extent of compatibility
between Muslim personal law and the manner in which it is
applied in India, against the backdrop of CEDAW. The
Convention on the Elimination of all forms of Discrimination
Against Women (CEDAW) provides a framework for addressing
women’s human rights to protect and enhance women’s equality
and status.

Even though India ratified CEDAW in 1993, it made a declaration

that it would abide by Article 5(a) and 16(i) in conformity with
its policy of non-interference in the personal affairs of any
community without its initiative and consent. Since Article 5(a)
of the CEDAW Convention asks all States to take appropriate
measures to modify conduct to achieve “elimination of prejudices
and customary and other practices which are based on the idea
of the inferiority or superiority of either of the sexes or on
stereo type rules for men and women”, this stand has obvious
negative implications for reform in women’s status in India as
the retention of the inferior status of the women in the family
is often justified in the name of culture and tradition. Similarly,
Article 16(i) contains a mandate to State parties to take “all
appropriate measures to eliminate discrimination against women
in all matters relating to marriage and family relations”. This
article, as stated above, also details important areas in the family
in which the equality of men and women is a must including
free and full consent to enter into a marriage, the same rights
and responsibility as parents, the same rights and responsibilities
during marriage and at its dissolution. The government has
tried to justify its stand by saying that it is being sensitive to the
feelings of the minority communities. However, this is not wholly
as correct as its actions have been dictated more by reasons of
political expediency than any genuine sensitivity to religious and
community feelings. The Indian government’s declaration under
Article 16(ii) stipulates that child marriage shall have no legal

137
affect and mandates State parties “to make the registration of
marriages in an official register compulsory” is even less
convincing. The government’s declaration has stated that though
in principle it fully supports compulsory registration of marriages,
it is “not practical in a vast country like India with its variety of
customs, religions and level of literacy” to accept this part of
the article. This declaration shows the lack of seriousness with
which the state has dealt with the issue.

The government has also entered a reservation under Article

29(i) of the women’s convention, which allows for dispute
between State parties to be submitted to arbitration and in case
of failure to be put up to the International Court of Justice.
The policy of the Indian government that it will not reform
personal law except with the consent and at the initiative of the
concerned community has proved to be extremely problematic.
Instead of defining community in a broad way to mean all
sections, denominations of a community, the state seems to
have defined community to mean the most conservative and
traditional members of the minority communities. This has often
meant that either no reforms have been introduced or
retrogressive amendments to personal law have been brought
about mainly to gain political mileage. For instance, the Indian
state introduced the Muslim Women (Protection of Rights on
Divorce) Act 1986 at the behest of the most fundamentalist and
patriarchal members of the Muslim community to deny divorced
Muslim women their right to monthly maintenance under the
Code of Criminal Procedure. This showed the lack of concern
for women’s rights on the part of the state.

Nevertheless, Muslim women along with liberals in the community

as well as women’s organisations and groups have time and
again struggled for their rights. For instance, prior to the 1980s,
reforms in the Muslim Personal Law were demanded by women’s

138
groups and activists and other liberal sections within the
community in terms of the constitutional provisions of equality
and non-discrimination on the grounds of sex. After the Shah
Bano Judgment,252 these groups plus certain committees launched
a campaign and asked for retention of divorced Muslim women’s
rights to maintenance on the grounds that the Shariat allowed
this and the equality clauses of the Constitution of India entitled
them to this. More recently, about two years ago, there were
discussions between the women’s organisations Muslim women’s
groups and the Muslim Personal Law Board253 about making a
standard Nikahnama254 with pro women stipulations. Muslim
Personal Law in India is based on the Shariat and customs.
While the Shariat Application Act abolished the use of customary
law in certain areas, customary practices continued to prevail in
certain areas like adoption and making of wills etc. Further
legislation regarding agricultural land and the tenancy laws etc.
modified the Shariat. Common laws like the Dowry Prohibition
Act, 1961, The Child Marriage Restrain Act, 1929 and all the
provisions regarding violence against women in the Indian Penal
Code apart from other common laws, have to varying extents,
made inroads into the Shariat. Judicial interpretation has also
played a part in defining the Muslim Personal Law. Finally and
most importantly, the manner in which the Muslim Personal
Law has been practiced in India has in significant ways been
stated to be against the spirit of Shariat and contrary to its basic
tenets of equality and justice for women.

252
Mohammad Ahmad Khan vs Shah Bano Begum, 1985, 2 SCC 556.
253
The All India Muslim Personal Law Board was formally established at a
meeting held at Hyderabad on April 7, 1973 ostensibly to save the Sharia Law.
The board meets from time to time.
254
Muslim contract of marriage.

139
Against the backdrop of the social and economic conditions in
which Muslim women live in India and the various political,
economic and social issues that impact Muslim women’s rights,
this study attempts to evaluate the application of Muslim Personal
Law, alongside the principles laid down by CEDAW.

Methodology

In order to get an overall picture of the situation of Muslim

women in India, regional workshops were conducted in which
Muslim women from different social, economic groups, along
with other subject matter experts interacted.

The study mainly centres on the collection of secondary data of

major studies done on the issue as well as recommendation by
the government and other statutory bodies like the National
Commission for Women. It has drawn upon various landmark
judgments dealing with Muslim Women’s rights within the family,
whilst concomitantly making a comparison of the formal laws
applicable to Muslim women to the different clauses of CEDAW,
therein highlighting both the similarities and differences.

The study has resulted in various sections, which have been

demarcated according to different aspects of the research. In all
the sections, the Muslim Personal Law as interpreted or practiced
in India and the codified law, if any, has been discussed. Section
1 broadly discusses the development of Muslim Personal Law in
pre and post-independent India and compares it to the Indian
Constitution. Section 2 discusses the political, social, economic
and cultural status of Muslim women in India and incorporates
the main experiences spoken of by the respondents in the
workshops. Section 3 discusses Muslim Personal Law and the
existing rights of Muslim women within the family regarding
marriage and divorce. Section 4 discusses the economic and

140
financial status and inheritance rights of Muslim women within
the family and at the time of separation and divorce. Section 5
discusses the custody guardianship and adoption rights regarding
children in the Muslim Personal Law. Section 6 discusses the
problem of child marriage. It also discusses the laws relating to
abortion for Indian women, including Muslim women. Section
7 compares and contrasts the Muslim Personal Law and CEDAW
and makes recommendations.

2. The Development of Muslim Personal Law in India

2.1 Historical Evolution

In India, Muslim Personal Law (MPL) is largely confined to the

areas of family and succession law. During the colonial era,
though MPL expressly sought to be applied to Muslims
throughout India by various statutes of the ‘Imperial Parliament’,
principles of justice, equity and good conscience255 and the
concept of legally binding precedents or ‘stare decisis’ also impacted
on MPL. Muslims who settled in these areas abided by customary
law and practices prevalent in the country. These customs during
the colonial period were specifically sought to be abrogated by
the Shariat Application Act, 1937. Nevertheless, some of these
customs remain even today. These include both practices, which
may be considered positive256 and others that are contrary to the
Shariat and have a negative impact on women’s rights such as the
practice of dowry. Further, interpretations by the courts of various
provisions of the Shariat have further influenced the law. Apart

255
M. Hidayatullah & A. Hidayatullah, Mulla’s Principles of Mahomedan Law in the
Nineteenth Century (Butterworths: London, 2004) pp. 1-2.
256
Large sections of both Muslim and Hindu women as a norm do not practice
purdah or wear burqas (veils), though in the past they did so.

141
from the courts, interpretations of Muslim Personal Law (MPL)
by religious clerics like the Ulema257 and Kazis258 and in religious
panchayats and Shariat courts259 on issues of marriage and divorce
have had an impact on MPL and the rights of women. In India,
these extra legal interpretations by religious clerics and scholars
have primarily been based on patriarchal readings of the Shariat
and are biased against women. Further, though these
interpretations are not legally binding they have influenced and
continue to influence significant sections of the Muslim
population in India for a variety of reasons.

There have, however, been certain liberal and pro-women

interpretations in certain critical areas by the appellate courts260
in India. Thus, MPL as it is practiced and preached by certain
groups 261 in India is in several respects patriarchal and
discriminatory towards Muslim women. This study, however,
mainly examines the developments in MPL in independent India
after briefly looking at the manner in which MPL was molded
during the colonial rule in India.

One of the early reformers Asaf A.A.Fayzee262 in his book Outlines

of Mohammedan Law has observed “the Mohammedan Law as it

257
Ulemas are religious scholars.
258
Kazi is the one who decides cases on the basis of religious laws.
259
Religious panchayats/Shariat Courts – A recent case in point is the case
which was heavily publicised. The case related to a woman who was raped by
her father-in-law. A fatwa was passed against her saying that she has now become
the mother of her own husband as she has been violated by the father-in-law.
260
Each state in India is headed by a high court. Below the high courts are the
district courts.
261
Muslim Personal Law Board, Darul-uloom (fatwa against women contesting
elections, supporting triple talaq, against women working, against watching
television).
262
A.A. Fayzee, Outlines of Muhhamedan Law (New Delhi: OUP, 2003).

142
exists today is the result of a continuous process of development
during the fourteen centuries of the development of Islam”.
Similarly, other reformers in the 1960s and 1970s who had argued
for reform in the personal laws in India had stressed on the
dynamic nature of the MPL. They had argued that MPL had
developed in different countries in response to the “changing
needs of time”. Most liberal and progressive Indian women’s
organisations and groups till the mid 1980s had talked of reform
of all personal laws by the introduction of a Uniform Civil
Code for all Indian women to ensure equal rights in the home.
Amongst other reasons, they justified their demand on the basis
of the Indian Constitution, which guaranteed the fundamental
right of equality to all Indian citizens. However, after the Shah
Bano judgment by the Supreme Court of India in 1985 and the
passing of the Muslim Women (Protection of Rights and Divorce)
Act, 1986 the demand for a uniform civil code was dropped by
the most progressive and liberal women’s organisations and groups
who then started emphasising on reform within various personal
laws. Most of these organisations still based their demands on
the equal rights enshrined in the Constitution and simultaneously
argued that the Shariat envisages gender equality and had been
deliberately misinterpreted by patriarchal and fundamentalist
interests.

Furthermore, the Mughal emperors in India were Hanafis and

the Kazis appointed by them administered the Hanafi law as the
law of the land. This continued till the establishment of the
British rule, when the influence of the English common law and
the principles of equity slowly made an impact on the law. Muslim
law was applied as a branch of personal law to the Muslims in
accordance with the principles of their own school or sub-school.

143
2.2 Impact of British Rule on MPL

As the East India Company was only exercising the right of

collecting revenue, Fayzee notes that in the earlier days of the
British rule, only Islamic law was practiced and administered.
The law officers were mostly Muslims and the criminal law was
Muslim. However, in civil matters, Islamic law was applied to
Muslims and Hindu law was applied to the Hindus in accordance
with the opinions of the maulvis and the pundits attached to the
courts. In fact, soon after the grant of Diwani, the East India
Company sought to improve the indigenous judicial machinery
and the Warren Hastings plan of 1772 provided for the
establishment of civil and criminal courts in each district. This
plan also, under Article xxiii of the famous regulation II made
the provision that in all suits regarding inheritance, succession,
marriage, caste and other usages or institutions, the laws of the
Quran with respect to the Mohammedans and those of the shastras
with respect to the Hindus, shall be applied. Where the personal
laws of the parties differed, the law of the defendant was
applicable. This provision is said to have “laid the foundation
for the differentiation on the part of the English administration
between laws applicable to ‘personal’ and to other matters.”263
Some authors have suggested that Hastings and his advisors
probably based their thinking on the contemporary English
division of law into ecclesiastical and temporal matters.264 It has
also been suggested that the application of religious laws of
Hindus and Muslims in family matters showed the concern of
the British administrators not to interfere with the religious laws

263
Archana Parashar, Women and Family Law Reform in India: Uniform Civil Code
and Gender Equality (New Delhi: Sage Publications, 1992), p.62.
264
Ibid., p. 63. See also Agnes 1999, p.41.

144
of the various communities. However this explanation is said to
be not entirely correct as the British not only at this stage did
not extend this concern to other religious communities such as
the Parsis in India, but also introduced legislation for other
minorities. 265 The British also introduced legislation in various
aspects of civil and criminal law other than family law.

Islamic criminal law underwent modification in 1862. When the

Indian Penal Code and the Code of Criminal Procedure came
into force, it entirely disappeared. The Islamic laws relating to
evidence were also abolished with the coming into force of the
Evidence Act in 1872. The British also passed various enactments
such as the Contract Act and the Transfer of Property Act and
the sphere of MPL gradually narrowed to encompass certain
laws relating to the family. Islamic Law was, therefore, gradually
replaced by secular laws. Also, gradually the categories of religious
law and personal laws in the sphere of family law became
interchangeable and it was forgotten that prior to the British era
all other aspects of laws for Hindus and Muslims were as personal
as family laws.

It is also pertinent to mention that customary claims of the

Muslims also got recognition by certain judgments of the Privy
Council266 and regulations.267 This also showed that the colonial
administration did make exceptions whenever they wanted to in

265
Ibid. p. 65. However, gradually the Parsis and the Christians secured the
enactment of specific laws for marriage and divorce.
266
Mohammad Ismail v Lala Sheomukh AIR 1922 PC 59.
267
Punjab Laws Act of 1872 introduced custom as the primary rule of decision
in family matters, gifts, partitions and any religious usage and institution. The
Elphinstone Code of 1827, Section 26 of regulation IV stated that all suits be
governed by usage of the country in the absence of an act of Parliament.

145
the application of religious laws to personal laws of the
communities.

Personal laws were also interfered with whenever it suited the

British. With the attainment of greater political stability the
English rulers openly regulated activities which were considered
religious by the natives.268 Not only were the criminal laws and
other civil laws changed but even in the area of family law,
legislation which directly impinged upon this sphere was
introduced. Modifications to the family law included The Caste
Disabilities Removal Act, 1850, the Hindu Widows Remarriage
Act, 1856, the Native Converts Remarriage Act, 1866, the Child
Marriage Restraint Act, 1929, the Hindu Women’s Right to
Property Act, 1927. These enactments clearly showed that the
British were not overly concerned with the religious nature of
personal law.

Apart from this, the English doctrine of equity had an impact

on Islamic law. This occurred when British judges trained in
English law replaced the earlier untrained officials and started
applying the rules of Hindu and Muslim laws according to their
understanding after 1790. The English rules of procedure and
evidence also impacted on personal laws as did the principles of
justice, equity and good conscience.269 The Privy Council also
upheld the application of these principles in certain
circumstances.270

A significant impact of the English system of law on personal

law was on textual law, which became elevated above customs

268
Parashar, 1992, p.69.
269
Various charters had allowed the application of these principles from the
early days of British Rule.
270
Parashar, 1992, pp. 72-73.

146
and usages. This was because the courts initially relied on Pundits
and Maulvis to interpret scriptures rather than local customs.
Even though this system was discounted in 1864 and the courts
increasingly recognised customs, textual laws remained
prominent.271 Moreover, customs to be recognised had to fulfil
the strict requirements of proof set down in English law. Finally,
once a custom had been recognised, it became part of law and
a binding precedent. This stopped the recognition of further
developments in personal laws.

Arguably, the motive behind the stated policy of the British to

retain personal laws was not because of a commitment towards
retention of religious/personal laws, although this policy was
not adhered to in all situations. Several authors have commented
that the hidden motives behind the stated reason for retention
of MPL were political and economic rather than religious. Citing
Washbrook272 both Archana Parashar and Flavia Agnes have
detailed how the British rule in India can be divided into different
periods/phases of colonialism as the mercantilist state (from the
inception of the East India Company till late 18th century), high
colonial state (from the late 18th century till mid nineteenth
century) and the incipient nation state (approx. 1857 to 1947).
The mercantilist state, which created the category of personal
law, did so not only to leave traditional and social forms
undisturbed but also because this helped them in the collection
of debts. During the phase categorised as high colonial state the
British were guided by the over-riding concern for political survival
and followed policies of social conservatism and agrarian
protection. In the period between 1857 and 1947 the British

271
Ibid. p. 73.
272
Ibid. p. 74.

147
again gave protection to agrarian interests whose members were
a part of the provincial governments and benefited from the
partnership. This also impacted on MPL, whilst subjecting Muslim
women to a more rigorous control of the ‘high culture Islamic
law’.273

2.3 Legislations During the British Rule

Two important statutes that directly impacted on Muslim women’s

rights were passed during the British rule. These were the Muslim
Personal Law (Shariat) Application Act, 1937 and the Dissolution
of Muslim Marriage Act, 1939. The Shariat Act, 1937 was a
legislative measure to Islamicise Muslim Personal Law in India
by abrogating the role that customary law was playing among
the Muslims. The act was introduced at the initiative of
conservative Ulema, the religious clerics of Jamat –ul-Ulema–i–
Hind, whose stated purpose was to safeguard the Shariat. The
Ulema were concerned that the Muslim population in Punjab
and North West Frontier Province and the Central provinces
were following customary laws instead of the Shariat. In the area
of succession and inheritance, customary law which disinherited
women was being followed. The main purpose of the Shariat
Act was to apply MPL in cases where the parties were Muslim.
The act has been seen as a step to secure uniformity of laws for
all Muslims in British India and was also seen as an important
step to do justice to the claims of women inheriting family
properties.

The Shariat Act applied to “intestate succession special property

of female, including personal property inherited or obtained

273
Ibid. p. 75.

148
under contract or gift…marriage, dissolution of
marriage…maintenance dower, guardianship”. The purpose and
scope of the section, therefore, was to abrogate custom and
usage in so far as these had displaced the rules of Islamic law.274
The act, however, did not apply to agricultural land, which was
to be governed by existing customs or future legislation. Since
99.5 per cent of all property in India at that time was agricultural
land this exemption in effect severely curtailed Muslim women’s
right to inherit property. This was because the state gave
protection to wealthy Muslim landholders (Zamindars). Further,
in certain areas an option was given to Muslims to be governed
either by the Shariat or by their customary law in the matter of
adoption, wills and legacies.275

However, by enacting the Shariat Act, the state expressly accepted

the fact that all Muslims should be governed by MPL in India.
The principle of communal representation had already been
accepted under the Government of India Act, 1935. The Shariat
Act further resulted in heightening the distinction between
Muslims and other communities.276 “The Shariat Act affirmed, in
the political arena, the equivalence of Muslim identity and a
certain form of Shariat. It demonstrated the manner in which
identities are discursively constructed both by the State and the
members of a group who wish to assert their authority within
the group in order to gain access to political power.”277

274
M. Hidayatullah & A. Hidayatullah, 2004, p 3.
275
Section 2 and 3 of the Muslim Personal Law (Shariat) Application Act,
1937.
276
Parashar 1992, p. 150.
277
V. Narian, Gender and Community Muslims Women’s Rights in India (University
of Toronto Press, 2001) p. 19.

149
The Dissolution of Muslim Marriages Act, 1939 was another
enactment introduced during the British time by the Ulema. The
background to this act is that Muslim women were resorting to
religious conversion to get a divorce since it was difficult to
obtain one under the Hanafi law which, however, dissolved the
marriage upon apostasy. The Ulema were unhappy with this trend
of Muslim women apostacising from Islam. The Dissolution of
Muslim Marriages Act, 1939 applied the laws of the Maliki School
to all Muslim women, since this school was most favourable to
women and allowed them to dissolve the marriage on certain
grounds278. Prior to the passing of this act in the courts, following
the Hanafi interpretation had denied to Muslim women the rights
of dissolution available to them under the Shariat.279 The act
recognised for the first time the right of a Muslim woman to get
a divorce on various grounds including cruelty and desertion
and any other ground recognised by MPL.280 However, the act
specifically exempted apostasy as a ground for divorce.

The Dissolution of Muslim Marriages Act, 1939 has been

criticised as providing grounds which were limited and difficult
to prove. Moreover, women’s rights to maintenance were not
addressed or provided for by the act. Also men’s rights to
unilateral divorce or by apostatising remained unchanged.281

While this act was generally seen as one of the most progressive
enactments passed by the legislature, some authors have argued
that the Shariat Act as well as this act represents the influence of
the scripturalist understanding of Islam. The Shariat Act is said

278
M. Hidayatullah & A. Hidayatullah, 2004, p. 267.
279
Narian, 2001 p. 169.
280
The Dissolution of Muslim Marriages Act, 1939. Section 2.
281
Ibid., p 21.

150
to have been of particular significance to understanding the
manner in which women’s rights were used to construct identity
as a fundamentally political process and personal law was used
to assert an understanding of religion and community, which
were essentially political rather than spiritual. For the Ulema, the
Shariat Act was a means to assert control of the Muslim
community.282

Apart from these two acts, the other legislations, which impacted
on MPL were the Child Marriage Restraint Act of 1929283 and
the Caste Disparities Removal Act 1859284 (also known as the
Freedom of Religion Act). In the area of civil and criminal laws
and in laws relating to commerce and trade the British legislated
common laws to govern all communities regardless of religion.
This was necessary for the British to govern the country and
consolidate their rule. Equally the retention of religion based
laws was also dictated by the political needs of the British and
facilitated their policy of divide and rule since different
communities would owe allegiance to different religious
communities, caste and sect.285

282
Ibid., p.20.
283
See Section 7 of this chapter Child Marriage and Abortion Laws.
284
T. Mehmood, Civil Marriage Law, Perspectives and Prospects (New Delhi:
N.M.Tripathi Pvt. Ltd.1978) p.2. “The Act abrogated so much of all laws and
usages prevailing in India as inflicted on any person forfeiture of rights or
property or impaired or affected any right of inheritance “by reason of his or
her becoming renouncing, or having been excluded from the communion of
nay religion, or being deprived of caste”. According to Prof. Mahmood, a
main reason for the passing of this act was that in 1830s many low-caste
Hindus under the influence of Christain missionaries wished to get converted
to Christianity but were scared of loosing their property on conversion.
285
This, amongst other reasons, including that the British administration was
not interested in Social Reforms are often cited by certain authorities. See K.
Singh, ‘The Constitution and Muslim Personal Law in Forging Identities:
Gender, Communities and the State’ in Z. Hassan (ed.), (New Delhi: Kali for
Women, 1994); Narain, 2001, p. 14.

151
The British policy of privileging religious personal law above
territorial and secular laws only in the area of the family resulted
in family related personal law becoming synonymous with religion.
This policy furthered the construction of identity on the basis
of religion and community and sought to obfuscate the plurality
of identities within each community and between different
regions. The retention and protection of the regime of personal
law also laid the foundation of how MPL would develop or not
develop in future in the Indian subcontinent.

2.4 Reforms in Independent India

Since the Independence of the country into India and Pakistan,

it has been said that the first government did not want to make
any changes, which would create further insecurity amongst
Muslims. By this time the state along with the Ulema and other
conservatives had already been quite successful in making MPL
the marker of Muslim identity. They further exploited the
communal divide that existed in post-partition India. From then
on, the Ulema, the Muslim League and organisations like the
Muslim Personal Law Board have opposed the rights given to
women. Immediately after Independence, however, in the
Constituent Assembly, despite opposition from these groups, an
article286 stipulating that the state shall endeavor to secure for its
citizens a uniform civil code, was included in the chapter of the
Directive Principles of State Policy.

The first Congress government, which was committed to a certain

degree of social reform took up the issue of introducing a Civil
Law of marriage and divorce. This law, for the first time, allowed

286
Article 44 of the Constitution of India.

152
any two Indians to marry under the act, without renouncing
their religion. Muslim political parties and religious organisations
opposed this law and pleaded that no Muslim should be allowed
to marry under it. These political parties included the Muslim
League and the Congress backed Jamaat-e-Ulema-i-Hind.287 In 1972,
another enabling legislation, the Indian Adoption Bill was
introduced in the Parliament, which sought to initiate a uniform
law regarding adoption of children irrespective of the religion
of the foster parents or the child. This was again vehemently
opposed by the three Muslim members of the Joint Select
Committee of the Parliament to which the bill was referred and
witnesses before the Select Committee, mainly on the ground
that the adoption was prohibited in Islam and the bill would
interfere with the law of inheritance/succession and of marriage
amongst Muslims.288 It is pertinent to mention, however, that
during the debate in the Constituent Assembly and in subsequent
discussions surrounding the Civil Law of Marriage (The Special
Marriage Act, 1954), and the Uniform Law of Adoption, liberal
Muslim intellectuals, women’s rights activists and others289 argued
for the proposed reforms.

Simultaneously, many reforms took place also altering the

landscape of Hindu traditions and practices, introducing laws
relating to monogamy for Hindus along with giving them certain
grounds for divorce in the Hindu Marriage Act, 1955. In the
Hindu Succession Act, 1956, women were again for the first
time given full ownership rights over intestate property, which

287
Singh, 1994, p. 97.
288
Ibid., p. 98.
289
This included the All India Women’s Conference which was supported by
the Congress Party.

153
they could now inherit on equal terms with the male heirs.
However, they did not get equal rights to inherit joint family
property and agricultural land was again excluded from the
operation of this law. Under the Hindu Adoption and
Maintenance Act, 1956, daughters were allowed to be adopted
for the first time while the Hindu wife’s right to separate residence
and maintenance in certain circumstances was recognised. The
Hindu Minority and Guardianship Act, 1956, however continued
to recognise the father as the natural guardian of the minor
child with the proviso that a child would ordinarily remain with
the mother till the age of five. A clause which incorporated
certain rights of the child stipulated that in deciding cases related
to children, the main criterion would be the welfare of the
child.290 These reforms stopped far short of giving equal rights
to women or removing all discrimination against them. One of
the main reasons for this was that there was substantial opposition
to these reforms from conservative sections within the Congress
and from the Hindu right wing party, the Hindu Mahasabha. It
has also been said that the Congress Party was more committed
to the idea of having a uniform law that would apply to all
Hindus than to notions of equality and, therefore, ensuring that
women got equal rights was not its priority.291 After the 1950s,
successive central governments have also not initiated any reforms
in personal laws barring a few amendments in the Hindu Personal
Law to make divorce easier and some significant amendments in
the Parsi marriage and divorce law. Some changes were also

290
For a detailed discussion on the changes in Hindu Personal Law see Kirti
Singh, ‘The Question of Reform in Personal Law’ in Gyanendra Pandey (ed.),
The Hindus and Others, A Question of Identity in India Today (New Delhi: Penguin,
1983).
291
Parashar, 1992, p.77.

154
made in the Indian Divorce Act governing Christian liberalising
the grounds of divorce. While no justification has been given
as to why Hindu law has not been amended to give better rights
to women, as far as Muslim and Christian personal law are
concerned, successive governments have always taken the stand
that the issue of reform should be at the initiate of the concerned
community and that they will not act against the will of any of
the religious communities. However, the Indian state seems to
have defined community in an extremely narrow sense to mean
only the religious leaders and organisations like the Jamait-e-Islami
and the Muslim League who have successfully resisted any positive
reform from taking place in either general personal law applicable
to all communities like a uniform adoption law or in Muslim
Personal Law. These parties along with the Ulema have also
successfully launched a campaign against reform in personal law
amongst fairly large sections of the Muslim population. Not
only this, they have also successfully managed to lobby with the
state and get retrogressive amendments introduced in the laws
relating to maintenance and financial support of women and
children.292 The Indian State has allowed itself to be persuaded
as it has largely been concerned with issues of political expediency
and electoral advantage and have been willing to subordinate
Muslim women’s rights to these issues.

Apart from the optional civil law of marriage and divorce, certain
other personal laws were introduced by the Indian State that was
applicable to all communities. The first of these laws was the
Dowry Prohibition Act, 1961, which sought to curb and punish
the practice of dowry apart from providing for return of dowry

292
The Muslim Women (Protection of Rights on Divorce) Act, 1986 was passed to
deny divorced Muslim women their right to maintenance after the iddat period.

155
items to the wife. It later was amended in 1983 and 1986 to
strengthen it further. Sections were also introduced in the Indian
Penal Code to punish harassment for dowry and other forms of
cruelty293 and to recognise a new species of murder called dowry
death.294

Another recent civil law which is applicable to all Indian women

regardless of the community to which they belong is the Domestic
Violence Act, 2005. This act, apart from providing for protection
orders, for the first time recognised the right of an Indian wife
and a live-in partner to reside in the “matrimonial home” and
protects this right. In this legislation, women have also been
given rights to ask for maintenance, custody of children and
damages. The act will have far reaching consequences for all
Indian women and is a landmark in the history of the women’s
movement in India.

2.5 The Indian Constitution, Courts and Personal Laws

The Indian Constitution mandates equality for women and

freedom from discrimination under its various articles. Some of
the more important articles located in the chapter on Fundamental
Rights include Article 14, which, though not gender specific,
stipulates equal treatment by the State of any person before the
law and equal protection of the laws for all. Article 15 tries to
ensure substantive equality by allowing special provisions in laws,
including reservation for women and children to overcome the
inequality in status. Similarly, Article 16, apart from creating a
constitutional right to equality of opportunity and employment
states that no citizen shall be discriminated against on grounds

293
Sec. 498 A, Indian Penal Code.

156
only of religion, race, caste and sex in matters of employment.
The other fundamental rights including freedom of speech and
expression, movement, assembly, etc. in the Indian Constitution
have important implications for women in general. Additionally,
Article 21 of the Fundamental Rights, which deals with the
protection of life and personal liberty, has been interpreted by
the high courts in different states and the Supreme Court of
India to include the rights to live with dignity and in an
atmosphere free from violence.295 The Directive Principles of
State Policy in the Constitution direct the State to enforce women’s
rights in various spheres. Thus various provisions of the Indian
Constitution, although not as detailed or gender specific as clauses
in CEDAW, are in general consonance with the provisions of
CEDAW. However, the courts have been extremely reluctant to
strike down discriminatory personal laws, though no law is
supposed to exist, if it conflicts with the fundamental rights
chapter of the Indian Constitution.296

The courts have adopted a very conservative attitude towards

personal law and have been most reluctant to declare
discriminatory personal laws as violative of the Right to Equality
or as violative of Article 15, which specifically prohibits
discriminatory laws etc. on the ground of sex. Courts, specifically
the Supreme Court, have refused in many cases to decide these
issues of inequality and discrimination and have stated that it is
the duty of the legislation to remove discrimination and bring in
equal laws. It has urged the government to bring in a uniform
civil code though in some cases it is unclear whether the court

294
Sec. 304 B, Indian Penal Code.
295
AIR 1983 AP 356 and subsequent judgments of the Supreme Court of
India.

157
is recommending this to further gender-just laws because it feels
that uniformity per se between communities would be in the
‘national interest’.297

The Ahmedabad Women Action Group case298 is a good example of

the courts reluctant attitude. In this case which challenged Hindu,
Muslim and Christian personal laws as violative of the
Constitution, the court held that the challenge involved issues of
state policy and thereby evaded the challenge. A number of
cases that challenged the Constitutionality of an obviously
discriminatory provision, as seen in Madhu Kishwar vs State of
Bihar299 and the Mary Roy case300 where the court avoided the
question of constitutionality of the Travocore Christian
Succession Act which did not give equal inheritance rights to
daughters. Again in the case of Githa Hariharan and Anr vs Reserve
Bank of India and Anr301 the court did not decide whether Section
6 (a) of the Hindu Minority and Guardianship Act 1956 was
violative of Articles 14 and 15 of the Constitution of India.

As far as specific clauses of MPL are concerned, the courts have

mostly through a liberal interpretation of the Shariat given better
rights to Muslim women. Some of these judgments deal with
spousal and child support, while others deal with the rights to
dissolve marriages and to enforce certain clauses in the
Nikhahnama, including a refusal to live with the second wife. An
important feature of the struggle for rights by Muslim women

296
The Constitution of India, Article 13.
297
Sarla Mudgal v. UOI (1995) 3 SCC 635.
298
Ahmadabad Women Action Group and others vs UOI (1997) 3 SCC 573.
299
(1992) 1 SCC 102.
300
(1986) 2 SCC 209.
301
(1999) 2 SCC 228.

158
in India has been the large number of cases,302 which have been
filed and won in the courts. In all these cases, women have cited
feminist and liberal interpretations of the Shariat and persuaded
the court to adopt these rather than the patriarchal interpretations
urged by their spouses or on occasion by groups like the Muslim
Personal Law Board.

During the controversial Shah Bano case, many leading

representatives of the women’s movement formed a committee
for the protection of the rights of Muslim women to stop the
government from passing a law to deprive divorced Muslim
women of their right to maintenance after divorce. Though, at
that time this committee along with other Muslim organisations
could not stop the passage of the act,303 this was also the first
time that Muslim women came out in demonstrations and
campaigns against the Muslim Personal Law Board and others
who were against their right to maintenance.304 Issues affecting
Muslim women in India including polygamy, unilateral right of
divorce and payment of mahr and maintenance have been taken
up in different forms in India. While recent debates have
essentially focused towards a pro-women re-interpretation of
the Quran, writers like Fayzee have suggested that since the Shariat
has developed according to the changing time and has been
influenced by the different geographical regions and cultures

302
These cases have been discussed in Section 4—The Rights of Muslim
Women within the Family; Section 5—Economic and Financial Rights of
Muslim Women within the Family and at the time of separation; Section 6—
Muslim Personal Law regarding Custody, Guardianship and Adoption of
Children, of this chapter.
303
The Protection of Muslim Women (Rights on Divorce) Act, 1986.
304
Singh, 1994, p.101.

159
that it has been practiced in, there is nothing in Islam to stop
further reforms from taking place.

The lack of extensive reform in the area of personal laws has

directly impacted women’s lives in India, discriminating against
women in both the private and public spheres. Ranging from
rights of inheritance to basic rights in the family, women face
exclusion and brutal inequality. For example, though women
primarily take care of the children, they are not equal guardians
of their children in any of the personal laws. Deserted and
abandoned women and children, at best, have a right to
maintenance. This is often an unrealistic small amount doled
out by the court after long periods of litigation. Women and
children are, in the meanwhile, forced to live on the mercy of
their natal families since the state takes no responsibility to ensure
that they live even at a subsistence level. Muslim men also have
a unilateral right of divorce and can legally practice polygamy.

The developments in Muslim Personal Law or rather the lack of

them along with other factors, like the socio-economic status,
has retained the subordinate status of Muslim women in the
family. While women belonging to other minority and majority
communities in India as well share this subordinate status, Muslim
women are in a more vulnerable situation because of the deeper
and different layers of discrimination faced by them in several
areas.

Notwithstanding the colonial legacy of creating and preserving

separate personal laws based on religion for different communities
affected, the Indian state has consistently recognised the anti-
reform fundamentalist and conservative groups as the
spokesperson of the Muslim community. The ‘spokepersons’ have
relied upon the most patriarchal interpretations of the Shariat
and equated these interpretations with Islam. Therefore, Muslim

160
women have been unable to final democratic spaces in which
they can fight for justice. Despite such hurdles in the justice
delivery system, they have managed to access the courts for
justice in mattes relating to matrimony and the family. They have
done so by arguing on the basis of the non-discriminatory
provisions of the Constitution of India as well as on the basis
of feminist interpretations other than Shariat. They have also,
along with the broader women’s movement been able to bring
about reform through the introduction of uniform laws in certain
areas like dowry and domestic violence.

3. Political, Social, Economic and Cultural status of

Muslim women in India

3.1 Introduction

This section highlights the range of factors influencing the status

of Muslim women in India today, in addition to the effect of
personal law in their lives. It is evident that Muslim women
cannot be viewed as a homogeneous group as various regional,
class, sect and caste variations determine their status. However,
given these limitations, this section is important as it attempts to
encapsulate the ways through which Muslims are discriminated
in the context of increasing Hindu fundamentalism and
communalism, apart from the gender bias within the community,
wherein lowering the status of Muslim women and reducing the
spaces in which they can ask for their rights.

The section also draws upon available studies such as the National
Family Health Survey -2 and other national studies. It is also
based on four regional workshops that were conducted by the
Indian School of Women’s Studies and Development in Bhopal,
Bangalore, Kolkata and Kanpur in which a total number of 174
Muslim women participated (See Appendix – IV). The aim of

161
the workshops was to ascertain the ground realities about Muslim
women’s lives in different regions and hear their views. There
were different sessions in each workshop dealing with violence
within the home, the impact of communalism and their economic
status. The workshops were conducted for qualitative information
on relevant issues. The nature of the proceedings in the workshop
was of free discussion with comments and interventions by all
the participants.

As mentioned earlier, after Indonesia, India has the largest Muslim

population in the world.305 Geographically, more than half of
the entire Muslim population lives in Bihar, Uttar Pradesh and
West Bengal. Muslims form a majority in Jammu & Kashmir and
the union territory of Lakshadeep and form 23 per cent of the
population in Kerala and West Bengal, 17 per cent in Uttar
Pradesh, 14 per cent in Bihar, 11 per cent in Karnataka and 9
per cent in Maharashtra.306

Notwithstanding the provisions laid down in the Constitution

of India, which provides that no citizen shall be discriminated
against on grounds of religion and sex 307 in any spheres of life
including in the area employment/office under the state,308 these
rights remain mostly on paper. The Constitution allows special

305
In the country, 82 per cent of the households are Hindus, 12 per cent are
Muslims, 3 per cent are Christian and 2 per cent are Sikhs. However, in urban
areas, 15 per cent of the households are Muslims: National Family Health
Survey (NFHS-2) 1998-99, p. xix.
306
S. Kazi, Muslim Women in India Minority Rights Group International Report,
1999, p. 24.
307
Article 14 and 15, 16, The Constitution of India.

162
provision, laws and reservation of seats for women in local
bodies or any educational institution and special laws for backward
classes of citizen (this category includes backward classes amongst
Muslims too) and the Scheduled Castes and Scheduled Tribes.
Article 16(4) also provides for reservation of appointments of
posts in favour of any backward class of citizens, which in the
opinion of the state is not adequately represented in the services
under the state.

However, these legal provisions are not reflective of the actual

status of Muslims in India who are not only under represented
in political institutions like the Parliament and State Assemblies
but also in government and other institutions allied to it. The
poor socio-economic situation of Muslims in general, and in
particular of Muslim women, reflects the discrimination and
inequality that is confronted at a day-to-day level.

3.2 Poverty and Employment

A study carried out by Zoya Hassan and Ritu Menon,309 which

assessed the socio-economic status through a standard of living
index comprising various items shows that Muslims had a lower
standard of living than that of Hindu lower castes, and
significantly less than that of the Hindu upper castes. However,
the study also showed variation between the north, south and
east and west zones. Muslims in the rural North were the poorest,
while those in the South had a relatively higher standard of

Z.Hasan. R. Menon, Unequal Citizens: A Study of Muslim Women in India

309

(New Delhi: OUP, 2004) pp. 18-46.

163
living. Further, except for the rural East, upper caste Hindus
across all zones had the highest average standard of living.310

For example, the per capita income of Muslims and their low
socio-economic status has been highlighted by certain studies.
The table below shows that the level of income of Muslims was
below the average income in India.

Income/ Per capita

Household (Rs.) Income (Rs)

Muslims 22,807 3,678

Hindus 25,713 4,514
Christians 28,860 5,920
Other Minorities 30,330 5,427
India 25,653 4,485

Source: Abusaleh Shariff : Human Development Report, 1999

During the workshops, many women reported the discrimination

faced by them due to policies of recruitments and the lack of
access to government schemes. Most Muslim women in India

310
The standard of living index for assessing the socio-economic status
considered variables like the type of house, toilet facilities, source of lighting,
points for electricity, main fuel for cooking, source of drinking water, ownership
of agricultural land, ownership of livestock, ownership of durable goods and
ownership of house. “For the Muslim communities the best outcomes on
most indicators are in the urban west and urban south zones” (Hasan and
Menon, 2004, p. 25). It is clear that location of women in terms of rural and
urban residence is extremely important in determining the level of opportunities
available to them.

164
work in the un-organised sector (60 per cent),311 in home based
industry – doing embroidery work like zardozi, chikan work, beedi
making and traditional occupation and enterprises, where the
middlemen pay them abysmally low wages. It has also been
reported that compared to Christian (51.5 per cent) and Hindu
women (27.7 per cent) only 15.7 per cent Muslim women were
employed in regular salaried jobs. This shows the marginal
presence of Muslim women as workers in the formal economy.312
However, very little current data is available and much more
work needs to be done in the area.

3.3 Education

The National Family Health Survey pointed out that nearly 59

per cent of Hindu women and 61 per cent of Muslim women
are not literate. On the whole it appears that 90 per cent of
women with non-literate husbands are also themselves not literate.
However, the survey done by Hasan and Menon indicates that
Muslim women have achieved only a modest level of educational
competence and in the survey only “43 per cent Muslim
respondents were literate, 59 per cent of them had never attended
school” and their presence in higher education was negligible.
“Among the literate, Hindu respondents were better educated
than Muslims; and among Hindus, the upper class were better
educated.” It is pointed out in this study that in terms of
educational access, the South and West performs better than the
North and the East and the burden of deprivation falls most on
rural women and members of low socio-economic groups.313

311
Kazi, 1999 p.24.
312
Ibid., p.25.
313
Hasan & Menon, 2004, pp. 71-72.

165
3.4 Women’s Autonomy and Political Participation

The NFHS-2 survey points out that Muslim women, closely

followed by Hindu women are less likely than women belonging
to other religions in India to be involved in decisions about
purchasing jewellery or other house hold items and about
spending time with their parents or siblings. About half of both
Hindu and Muslim women do not participate in decisions about
their own health care. Greater decision-making autonomy is
associated with employment for women only if they are working
for money. Muslim and Hindu women are less likely to have
access to money than women from other religions.314

The study done by Hasan and Menon points out that women
in their sample turned out to be keen voters, with Muslim women
being keener than Hindu women. They further point out that
“three quarters of respondents supported reservations for women
in legislatures, expressed interest in contesting elections especially
at the local level.” However, they point out that the urban
educated women are more aware of rights and policies and are
more likely to decide on their own as to which party they should
vote for.315

3.5 Impact of Communalism316

Increasingly the widespread growth of Hindu fundamentalism

in recent years has resulted in vicious propaganda against Muslims
in India in several areas and strengthening of stereotypical notions
about cultural patterns and social behavior amongst Muslims.
This propaganda not only wrongly constitutes Muslims as a

314
NFHS-2 Survey p. 68.
315
Hasan & Menon, 2004, pp. 218-219.
316
The use or rather misuse of religion for political power..

166
homogeneous group but also ignores the manner in which
communal tension impacts on the daily lives of Muslim women
and results in Muslim Women being denied access to various
benefits available to women from other communities from the
state. One such propaganda by the votaries of Hindutva is
regarding the growth rate of Muslim population in India, which
they claim will overtake the growth rate amongst Hindus. This
claim contradicts recent studies which have clearly shown that
not only is there a decline in the total fertility rates amongst
Muslims but that regional differences were more important in
influencing fertility rates in India than religion. The study has
also shown that the Hindu / Muslim differential treatment cannot
be divorced from the repeated communal riots that have taken
place, affecting the access to family planning and health care
services provided by the government.317

During the workshops held for the present study, the impact of
the growth of communalism over the last few years was discussed
at great length. Women reported how communalism had affected
their daily lives and how difficult it was for Muslim women to
raise issues of equality within the community when the lives and
livelihood of a large number of members of their community
was in danger.

Throughout the communal riots, women were subjected to

extreme forms of violence including rape. It was also reported
that during riots since male members are either killed or hurt or
arrested, the burden of feeding the family falls heavily on women.

317
R.P. Bhagat, P. Prabharaj, ‘Hindu-Muslim Fertility Differentials’ Economic
and Political Weekly, January 29, 2005, Vol. 104 No.5, p.412.

167
Participants from Kerala and Karnataka stated how
fundamentalists from the Muslim community are forcing women
to wear burqah or the veil. Girls were not allowed to attend
English or co-education schools and participate in cultural and
extra-curricular activities.

The discussion in the foregoing section identifies the range of

socio-economic factors impacting adversely on the position of
women. It also indicates the specific difficulties confronting
Muslim women as minority women that has further weakened
their position in the Indian society.

4. The Rights of Muslim Women within the Family

4.1 Polygamy and Bigamy

Polygamy, as is evidenced in the Quranic verse 4:3 is permitted

in Islam (although it has been argued it is the exception rather
than the rule).318 The incidence of polygamy in India is extremely
low, but in a highly communalised polity, Hindu fundamentalists
have often played up this fact to show Muslims as backward.
The truth is that as far back as 1975, the Committee on the
Status of Women reported that more Hindus than Muslims were
in bigamous marriages in India.319 Recent data320 surprisingly shows
that the incidence of divorce, desertion and separation amongst
Muslim women is very low, contrary to the general assumption

318
“And if you fear that you cannot do justice to orphans, marry such women as seems good
to you, two, or three, or four, but if you fear that you will not do justice then (marry) only
one or that your which your right hand possess. This is more proper that you may not do
injustice.” (4:3).
319
Report of the Committee on the Status of Women, Govt. of India, 1975.
320
Hasan & Menon, 2004, pp. 72-84.

168
that Muslim women are commonly divorced or deserted on
account of polygamy and unilateral divorce.321

It is worthy to mention that according to Article 16 of CEDAW,

both men and women enter into marriage, with free and full
consent, one marriage at a time. Thus it neither allows a man
nor a woman to contract more than one marriage at a time.
Moreover, men and women share the same responsibilities during
the marriage and have equal rights at the time of dissolution.

However, in the workshops and surveys322 it has been gathered

that most women have little control over whom and when they
marry. It is the parents who decide the match and thus most
Muslim marriages in India are arranged and often girls are not
even consulted about the terms of the marriage contract, the
mahr amount and other such issues.

Though not as widespread as it is commonly believed to be, the

fact remains that among Muslims in India, polygamy remains
legally permitted. Also persons from other religions, mostly
Hindus have sometimes converted to Islam merely to get married
again. In the famous Sarla Mudgal case,323 the Supreme Court of
India held that conversion to another religion for the sake of
getting remarried is not permitted and any person so converting
and contracting another marriage will be guilty of bigamy. Hence,
it is the legality and not the extent of polygamy’s recurrence,
which is the main problem.

321
Hasan & Menon, 2004, p. 83. In a survey of 15,000 Muslim women in 46
districts of India in 1993-95 it was reported that only 5 per cent of the total
sample had been either divorced, separated or remarried.
322
Hasan & Menon, 2004, pp. 131.
323
(1995) 3 SCC 635.

169
Reformists and feminists argue that taking more than one wife
or up to four wives is not generally allowed in the Quran. The
permission for polygamy was granted only in a specific context
when more than one tenth of the Muslim population was wiped
out in war with non-believers, leaving behind many widows and
orphans. Even then what was emphasised was that a man had
to treat all his wives justly, and if this could not be done he
should stick to one wife only.324

In Sainuddin vs Latifannessa Bibi325 the husband agreed in the

marriage contract, interalia, not to marry a second wife without
the consent of the first wife, not to beat or ill-treat the wife, and
to allow her to visit her parents. When the husband married a
second time, the first wife left him, and the husband filed a suit
for the restitution of conjugal rights326 against her. The wife
thereupon “gave herself three divorces in accordance with the
Mohammedan law and under the authority given to her by her
husband”, and pleaded in defense to her husband’s suit that she

324
Asghar Ali Engineer, The Rights of Women in Islam (New Delhi: Steerling
Publishers Pvt. Ltd., 1992) p. 155.
325
1919 I.L.R 46 Calcutta 141.
326
The restitution of conjugal rights was a medieval European (Christian)
remedy which had been incorporated in the English Matrimonial Statues in
1875. This was applied by the English judges to both the Muslims and Hindus
in India by reinterpreting their ancient legal texts. The ‘relief ’ of the restitution
of conjugal rights is still available to both Muslims and Hindus in India. It was
incorporated in the Hindu Marriage Act, 1955. Husbands generally use this
section to defeat a claim for maintenance or separate living by the wife. Though
in one petition this relief was held as violative of the Fundamental Rights in
the Constitution of India by the Andhra Pradesh High Court, the Supreme
Court of India held that the ‘relief ’ aids in reconciliation. However, even if
a decree of restitution is passed against a spouse that spouse cannot be
compelled to live with the petitioning spouse.

170
was no longer his wife. The court accepted the validity of her
dissolution of the marriage and dismissed the husband’s suit.
Reported decisions of cases concerning a delegation of the right
of talaq to the wife in the event that her husband should marry
a second wife go back at least to the early 1870s.
The Calcutta High Court in the case mentioned above cited the
Hedaya and Baillie’s Digest of Mohammedan Law to establish the
fact that a Muslim husband may validly delegate the right of
talaq to his wife, thereby entitling her to dissolve the marriage
extra-judicially. In the marriage contract, the husband had made
such a delegation to the wife and she was entitled, under the
agreement, to exercise this right if he should marry a second
wife without her consent. That contingency having been proved,
the wife’s exercise of talaq-i-tafweed was valid and the high court
decreed her suit.
In addition to the delegation of the right of talaq to the wife in
the event of certain contingencies, the husband under MPL may
himself pronounce a suspended talaq, which will automatically
come into effect should the stated contingency occur. Thus, in
Muhammad Amin vs Mst. Aimna Bibi 327 the husband executed an
agreement that he shall not marry another woman in the presence
of Mst. Aimna Bibi, and if he does so, she will be held to have
been divorced by him, on account of the second marriage. The
high court upheld the validity of the document and concluded
that it operated automatically as a deed of divorce upon the
husband’s marriage to a second wife. The husband’s suit for
restitution of conjugal rights was accordingly dismissed.

327
Lucy Caroll and Harsh Kapoor, (eds.), Talaq-i-Tafwid, Women Living Under
Muslim Law, (France: 1996) quotes this case cited as AIR 1931 Lahore 134, on
p. 61.

171
In both pre and post-nuptial agreements, the suspended talaq
would appear to be much less common than the delegated right
of talaq (talaq-I-tafweed). In general, the provision for the exercise
of talaq-i-tafweed is probably more beneficial to the wife, as it
allows her, in the event of the contingency arising, to consider
the entire situation and to decide whether to effect a divorce or
not. If the stipulation is enforced by a suspended talaq, she is
automatically divorced whether or not she may wish to be.

The domestic complications of polygamous arrangement are

manifold, and it may be noted that stipulations in the marriage
contract may also be utilised to protect the interest of the wife
who marries a man with one or more wives already.

4.2 Remarriage

It has been reported that Hindu and Muslim women face similar
hardships after divorce contrary to the popular belief that it is
easier for a Muslim woman to marry again. Thus, while there is
no bar against remarriage for a divorced Muslim woman, the
ground realities are quite complicated. While there are significant
variations in attitudes to “re-marriage across classes, it is easier
amongst the lower classes as in the higher and middle classes
remarriage is often looked down upon”.328 Ahmed also observes
that unless the divorced woman is very young and a suitable
match is available, remarriage hardly takes place. He goes on to
observe, “Since remarriage is not universal, the question of
sustenance of the divorced wife remains. Her only option is to
revert back to her parents or brothers. This is less of a problem

I. Ahmad (ed.) Divorce & Remarriage among Muslims in India (New Delhi:
328

Manohar Publishers and Distributors, 2003) pp. 35-36.

172
in economically well-off families as they have the means to
shoulder the burden of maintaining their divorced daughter and
her children, if they have accompanied her after divorce, though
even in such cases she has to make compromises and adjust to
the taunts and curses of her family members, especially her
sister-in-laws who look upon her as an intruder and a burden on
the family resources. However, in the case of women from
lower class families, this poses serious problems. Lower class
families are already leading a hand to mouth existence and
reversion of a divorced daughter and her children puts severe
strain on their meager resources. In such families, the divorced
women has to face considerable humiliation and is often blamed
for adding to the already difficult situation of the family.”329

Even mahr, which is supposed to provide divorced women with

some relief, is hardly ever paid to the women. Thus, even after
the Muslim Women (Protection of Rights on Divorce) Act, 1986
was passed, Muslim women continued to approach the courts
for maintenance and for a ban on the unilateral form of divorce.
Women criticised the practice of triple talaq and its acceptance
by religious leaders. It is also reported that talaq was sent by
post, on telephone and even advertised in the newspapers.
Pregnant women were also divorced. Some women also reported
that their husbands had announced talaq in a fit of anger or
while intoxicated and even though the couple wanted to live
together again, the wife had to go through a form of Halala.330

329
Ibid., p. 36.
330
The Muslim Personal Law stipulates that there can be no remarriage between
divorced spouses. In case the husband is repentant, then the wife has to get
married to another man and get divorced by him, before remarrying her
former husband.

173
Both the Sunni and Shia Muslim women in India are affected by
this unilateral form of divorce. The most common form of
divorce in India is talaq-i-biddat in which a man by pronouncing
talaq thrice at one sitting can divorce his wife, even though it is
not the acceptable form of divorce as far as Shariat is concerned.
The prevalence of this mode of divorce highlights the grip of
patriarchal values over the interpretations of the Shariat, as even
the local Kazis had taken the husband’s side and refused to help
them.

4.3 Wife’s Right to Divorce

Khula

Apart from unilateral divorce that can be pronounced by men,

the Muslim Personal Law in India also gives a right to women
to take divorce from their husbands.

Islam recognises the right of a woman to repudiate her marriage.

This form of divorce is called Khula, which literally means to
disown or to repudiate. Khula has been referred to in the Quran
in the following words:

Then if you fear that they cannot keep within the limits of
Allah, there is no blame on them for what she gives up to
become free thereby.

It has been stated that wife’s right to Khula is absolute and no

one can prevent her from exercising it.331

Negotiation between the spouses over the granting of Khula

may take place directly. But it is probably more usual for the

331
Engineer, 1992, pp. 136-137.

174
wife who wishes to initiate the process to do so through an
intermediary, a Kazi or other religious leaders, the local mosque
committee or an advocate. If the negotiations fail i.e., if the
husband neither pronounces the talaq nor agrees to sign the
Khula agreement, the only option for a woman who is determined
to end the marriage is to file for divorce under the Dissolution
of Muslim Marriages Act, 1939.332

Mubaraat is considered a species of divorce by mutual consent.

The word Mubaraa denotes the act of “freeing each other by
mutual consent” with no exchange or payment on either side.333

Talaq-i-Tafweed (Delegated Right of Divorce)

Tafweed (tafwid), explain the translators of the Fatawa-I-Kazee Khan,

“means the making another person owner of the act which
appertains to the person making the tafweed.” The translators
of the Hedaya adds:

After being thus empowered, she (i.e. the wife, recipient of the
delegation in the example being discussed) stands as a principle
in the execution of the divorce, and not as an agent; …a
commission of agency may be annulled at the pleasure, whereas
the power devolved to another to act, as a principle cannot be
so.334

332
S.Vatuk, ‘Muslim Women and Personal Law’ in Z. Hasan & R. Menon
(eds.), In a Minority: Essays on Muslim Women in India (New Delhi: Oxford
University Press, 2005), p. 38.
333
H. Kapoor (ed.), Dossier 16. Grabels, Women Living Under Muslim Laws,
1996.
334
Ibid.

175
Like the husbands pronouncement of talaq, the wife’s
pronouncement under authority delegated to her by the husband
(talaq-i-tafweed) dissolves the marriage without the intervention
of the court.

Apart from Khula, Mubaraa or Mubaraat and Talaq–i–tafweed are

the other forms of divorce that a Muslim wife has recourse to.
Mubaraa is very little used in India, as is Talaq–i–tafweed. However,
Talaq–i–taweed has to be a stipulation in the marriage contract.
The contract may provide that the stipulation is enforceable
should the husband be guilty of a breach of the marriage contract.
The contract may also stipulate that the wife would be entitled
to live apart from the husband and still be maintained by him
(thus giving her a right based upon the contractual agreement as
opposed to the relief available at the discretion of the court).335
This form of divorce is perhaps the most potent weapon in the
hands of a Muslim wife to obtain her freedom without the
intervention of any court.336

Dissolution of Marriage under the Dissolution of Muslim

Marriages Act, 1939

Apart from the various forms of divorce that can be obtained,

the court procedure is lengthy and cumbersome and women
have to wait for at least two to three years or more before
getting a divorce decree. The act also does not provide for any
spousal or child support or for return of dower and separated
women have to engage in multiple proceedings to get divorce
and financial support for themselves and their children.

335
Ibid.
336
Fayzee, 2003.

176
In may be stated that, while Muslim men in India can practice
polygamy, it is not as widespread as is commonly believed. By
approaching the courts, women have been able to stop this
practice in certain circumstances. The courts have also recognised
conditions in the Nikahnama, which allow divorce in certain
contingencies. The problem, however, is that Nikahnamas which
contain these conditions or the delegated rights of divorce are
not the norm. Moreover, to defeat the claims of their wives and
to force women to submit, men have resorted to filing petitions
for restitution of conjugal rights, a barbaric remedy which was
adopted in colonial times and women have to fight these cases
often without any resources. If women want a divorce, they are
often forced to agree to a Khula and give up their right to Mahr
and maintenance and perhaps custody of their children.

5 Economic and Financial Rights of Muslim Women

within the Family and at the time of Separation

5.1 Introduction

Women’s economic status on divorce and separation has long

been an area of concern for feminists throughout the world. In
India, women, regardless of the communities that they belong
to, have extremely limited rights on separation or divorce. With
limited or no rights over matrimonial property as well as little
control over their earnings, women are not directly recognised as
entities of their own making. Capital assets are normally acquired
in the husband’s name except amongst propertied families for
tax purposes or when women are in a position to enforce this
right. The only right that deserted/divorced or separated women
have under all Indian personal laws is a right to maintenance.
However, since Indian courts generally award extremely
inadequate amounts as maintenance and take so long to do so,
women and children in most cases become dependant on their

177
natal families for financial support and suffer a huge decline in
the standard of living.
Since this is the only support, however inadequate, that they can
get, Muslim women have waged a long struggle in India to
retain this right to maintenance. This is obvious from the number
of cases that Muslim women have filed and are filing throughout
the country to ask for maintenance after separation and divorce
in spite of a law passed by the government which was meant to
curb this right. 337

5.2 Maintenance Under Traditional Law

It is well known that Quranic stipulations commands a Muslim

husband to maintain his wife even if she has means to maintain
herself and even if the husband is without any means. In the
words of Schacht, “The maintenance of the wife comprises,
food, clothing and lodging, i.e., a separate house or at least a
separate room that can be locked, she is not obliged to bear any
part of the expenses of the matrimonial establishment.” Under
the Muslim law, a wife’s right to maintenance is a debt against
the husband and has a priority over the right of all other persons
to receive maintenance.
The Quran says that not only should a woman be released from
marital ties in kindness but that provision be made for her in
kindness. The Quranic verse says:
And the divorced women too shall have a right to maintenance
in goodly manner. This is a duty for all who are fearful of God.
Maulana Muhammad Ali, commenting on this verse, says, “Note
that this provision (mata’a) is in addition to the dowry (or mahr)

337
Muslim Women (Protection of Rights on Divorce ) Act, 1986.

178
which must be paid to them. Hence, a provision in addition to
her dowry is recommended to the divorced women.338 Another
commentator, Muhammad Asad, according to Engineer says:
“This obviously relates to women who are divorced without any
legal fault on their part. The amount of alimony—payable unless
and until they remarry—has been left unspecified since it must
depend on the husband’s financial circumstances and on the
social conditions of the times.” 339

The Supreme Court of India, in its landmark judgment on Shah

Bano’s appeal for maintenance against her husband, upheld her
right to maintenance under Section 125 of the Cr.P.C.340 The
Supreme Court relied on Allama Yusuf Ali’s translation of this
verse in order to reinforce its judgment on maintenance. Allama
Yusuf Ali translates the verse thus: “For divorced women
maintenance should be provided on a reasonable scale. This is
the duty of the righteous.” Thus, it was held that the verse
makes it clear that a Muslim husband is duty bound to maintain
his wife and that the payment of maintenance is incumbent
upon the divorcing husband. This judgment was fiercely opposed
by orthodox sections of the Indian Muslims especially by the
Ulemas, religious leaders and organisations such as the Muslim
Personal Law Board who relied on a patriarchal interpretation
of the Quran that maintenance to a divorced wife cannot be
paid beyond the period of Iddah, (or the waiting period) which
is three months or three mensurational cycles after the divorce.
According to the Muslim Personal Law Board, which was an

338
Engineer, 1992, p. 129.
339
Ibid.
340
Section 125 of the Criminal Procedure Code in India, provides for maintenance
to all Indian women regardless of religion. This section was amended in 1973
to include within the definition of women, divorced women also.

179
intervener in the Shah Bano case, and the members of the
Jamaat-e-Islami, maintenance beyond this period was contrary
to the Sharia.

Even earlier, in 1973, Section 125 Cr.P.C.was amended by the

government to include divorced women in the definition of
women. Before this amendment there was some controversy
whether divorced women could be provided maintenance under
this section. The section allowed maintenance upto a limit of
Rs. 500 per person and was essentially meant for destitute women.
However, the amendment to include divorced women within the
definition of wives was vehemently opposed by the Muslim
League which claimed that the Muslim women are entitled to
maintenance only for the iddat period. Succumbing to the pressure
of the Muslim League and others, the then Congress government
allowed a retrogressive amendment to the provision which
stipulated that women who had received customary payments
due to them under their personal law would not be entitled to
maintenance. This was to stop divorced Muslim women from
getting any maintenance after the iddat period and to restrict
their right only to a claim of mahr. However, Muslim women
continued to claim maintenance through the courts even after
divorce.

After the passing of the Shah Bano judgment, the Muslim

Personal Law Board and parties like the Jammat-e-islami, the
Muslim League, went on a huge agitation and mobilised
substantial support against the judgment, whilst on the other
side various progressive sections of the Muslim community and
women’s organisation supported the judgment. The erstwhile
congress government of Rajiv Gandhi which had earlier
supported the judgment finally succumbed to the orthodox
pressure and passed the Muslim Women’s (Protection of Rights
on Divorce) Act 1986.

180
It is ironic that though the act was passed to stop divorced
Muslim women from getting maintenance, women again
continued to ask for maintenance beyond the period of iddat
from the courts. This is evident by the large numbers of petitions
that were filed under the act and the large number of judgments
available under the act. The act sought to restrict the right of
maintenance to the iddat period.341 While certain high courts
interpreted the issue to mean that divorced Muslim women are
entitled to both a reasonable and fair provision for life and to
maintenance which should be paid to her before the iddat period
expires,342 others343 held that a divorced Muslim woman is only
entitled to maintenance for the iddat period and is not entitled

341
Sec. 3 (1) Mahr or other properties of Muslim women to be given to her
at the time of divorce – (1) Notwithstanding anything contained in any other
law for the time being in force, a divorced woman shall be entitled to – i) a
reasonable and fair provision and maintenance to be made and paid to her
within the iddat period by her former husband;
ii) an amount equal to the sum of mahr or dower agreed to be paid to her at
the time of her marriage or at any time thereafter according to the Muslim
law;
iii) and all the properties given to her before or at the time of marriage or
father her marriage by her relatives or friends or the husband or any relatives
of the husband or his friends.
342
Mohammad Ahmad Khan vs Shah Bano Begum (1985)2 SCC 556; Bai Tahira vs
Ali Hussain (1979) 2SCC 316; Fazlu Bai vs K.Khader Vali (1980) 4SCC125 ;
Arab Ahmadia Abdullah Arab Bail Mohmuna Saiyadbhai AIR 1988 Guj 141 ;
Ali vs Sufaira, (1988) 3 Crimes 147 ; K. Kuhammad Hazi vs K.Amina 1995 Cri
LJ 3371(Ker) ; K. Junaiddin vs Amena Begum (1998) 2 DMC 468 (Mad) ; Karim
Abdul Rehman Sheikh vs Shehnaz Karim Sheikh 2000 Cri LJ 3560 ; Jaitun Bai
Mubarak Sheikh vs Mubara Fakruddin Sheikh (1999) 3 Mh LJ 694; Kaka vs Hasan
Bano (1998 ) 2 DMC 85 ( P&H).
343
Usman Khan Bahmani vs Fathimunnisa Begum, (1999)Cri LJ 1364 ; Abdul Rashid
vs Sultana Begum (1992) Cri LJ 76 Cal; Abdul Haq vs Yasmin Talat, (1998)Cri LJ
3433 (MP) ; Md.Marahim vs Raiza Begum (1993) 1 DMC 60; Shahida Begum vs
Abdul Majid I (1998) DMC 584; Bibi Sahnaz vs State of Bihar and another AIR
1999(1) HLR 137.

181
to any separate amount by way of “a reasonable and fair
provision”. Under the first set of judgments, the Muslim women
started getting lumpsum amounts as spousal support.
Finally, while upholding the validity of the Muslim Women’s
(Protection of Rights on Divorce) Act 1986, the Supreme Court
in its landmark judgment in Danial Latifi & Anr. vs UOI344 settled
the law regarding the right of maintenance of a divorced Muslim
woman. The Supreme Court held that the wording of Section
3 indicated that the husband had two separate and distinct
obligations: (1) to make “a reasonable and fair provision” for his
divorced wife; and (2) to provide “maintenance” for her. It
further held that both these payments had to be made within
the iddat period. Stating that whether the word mata was
interpreted as maintenance or provision had little relevance, except
that mata was a right of the divorced Muslim woman distinct
from and in addition to mahr and maintenance during the iddat
period. The court held that the words ‘reasonable and fair’ had
reference to the needs of the divorced woman, the means of
the husband and the standard of the living the woman enjoyed
during the marriage. The court accepted the analysis of the
Supreme Court Constitutional judgment in the Shah Bano case
of ‘Suras 241-42 of Chapter II of The Holy Quran and the other
textual material’.
Finally, the Supreme Court held that any other interpretation of
Section-3 of the Muslim Women’s Act would lead the court to
declare the section unconstitutional since such an interpretation
‘would not be reasonable, just and fair’345 and would be violative

(2001) 7 Supreme Court Cases 740.

344

In the Daniel Latifi case, the court referred to the Indian society as male
345

dominated and went on to talk of the sacrifices that all classes of women
make for the welfare of the family.

182
of Article 14 and 15 of the Constitution of India. The central
government, the Muslim Personal Law Board and the Islamic
Shariat Board all appeared in the case and argued that a divorced
Muslim woman was not entitled to maintenance.

5.3 Rights of Inheritance

There are two main schools of law governing the Muslims

regarding matters of property in India, namely the Hanafi
followed by the Sunni Muslims and the Ithna Ashari governing
the Shia Muslims. Since most of the Muslims are Sunnis in
India, the Hanafi Law is applied, notwithstanding the broad
differences between the Shia and the Sunni laws governing
property law.

Under Hanafi law, the legal heirs are divided into three categories:
the agnates mostly males, Quranic heirs mostly females and
‘distant kindred’ who are either women or are connected through
a female link. The Shia law, however, besides being slightly
different from the Sunni law seeks to give equal rights to both
the male and female heirs. Cognates and agnates are put on
equal footings. ‘Males and females who are linked to the deceased
in equal blood and degree inherit together.’

As far as customs and practice regarding inheritance laws is

concerned there is a considerable divergence from the Shariat.
The Muslims of Southwest India follow the matrilineal
inheritance, especially amongst the Mapilas of Kerela, while in
the rest of India the rule of patrilineal inheritance is followed
where even the customary rights of women are highly restricted.

The Muslim Personal Law (Shariat) Application Act, 1937

abrogated the customs or usages in favour of the Muslim Personal
Law, but clearly excluded agricultural land from its purview.
Though Muslim women by and large suffered because of this

183
clause excluding agricultural land but in certain parts of the
country such as Tamil Nadu, parts of Karnataka and Andhra
Pradesh women were given a share in the agricultural land in the
year 1949. However, in most of the northern states such as
Delhi, Haryana, Punjab and Uttar Pradesh, customs regarding
devolution of the property still prevail. Thus, inequality is
perpetuated among men and women as agricultural land is the
most important form of property.346

It is generally argued that daughters have been given half the

share in inheritance compared to their brothers and hence they
are considered as inferior to men in worth. However, the fact
that they are given half the share of male heirs is to be seen in
its sociological and economic context. Some scholars have also
argued that since under the Quran the wife has absolute rights of
maintenance and is further entitled to mahr, this, in a way
compensates for the unequal rights in inherited property.

Others point out that the law on property rights is as subject to

change as other provisions of the Shariat and the Shari’ah as
formulated by the early jurist should not be treated as final, and,
wherever necessary, should be interpreted or even reinterpreted
in the true Quranic spirit in view of the changed conditions and
new consciousness of women.

The ground reality is that women in India do not even get the
property that they inherit. They are often deprived of their rights
in parental property through various stratagems such as being
forced to relinquish their shares for her family members, thus
left with any security or assets in their name.

B. Agarwal, Gender and Legal Rights in Landed Property in India (New Delhi:
346

Kali for Women, 1999), pp. 36-42.

184
6. Muslim Personal Law regarding Custody, Guardianship
and Adoption of Children

6.1 Introduction

The laws of adoption, guardianship and custody of children in

India are yet to be fully developed. Whilst there is no law of
adoption covering minority communities in India, the Hindu
Law of Adoption & Maintenance stipulates that only a Hindu
can adopt a Hindu child347 and a person can only adopt a male
or female child if she/he does not have a child of the same sex.
Efforts by women’s organisations and groups to introduce a
uniform law of adoption have failed due to the opposition by
anti-reform fundamentalist groups as detailed later on in this
section. In the meanwhile, small children who have been
abandoned or left by their parents continue to suffer. Adults
who want to adopt these children have to approach the
guardianship court. Apart from this being a cumbersome
procedure, the child does not have the same rights as a natural
child including a right to inherit a guardian’s property.

Although CEDAW stipulates that on the basis of equality of

men and women, parents will have the same rights and
responsibilities with regard to guardianship, wardship, trusteeship
and adoption of children, or similar institutions where these
concepts exist in national legislation, the law relating to
guardianship and adoption is inadequate and discriminatory.

For example, the Guardians and Wards Act, 1890, is a piece of

archaic colonial law based on notions of guardianship that are
completely opposed to the rights of the child. It governs the

347
Section 7, 8 and 10 of the Hindu Adoption and Maintenance Act, 1956.

185
custody proceedings for all communities though judges have the
power to decide individual cases, based on the personal law of
the parties approaching them. All the personal laws including
the Muslim Personal Law do not recognise the mother as an
equal guardian. The Guardian and Wards Act privileges the rights
of the male guardian above those of the child and the mother
and in Section 19 states no one can be appointed a guardian of
a child if the father is living and is not unfit.

Before the Shariat Act, 1937, customary law recognised adoption

among the Muslims. Further, under the Oudh Act, 1869, Section
29, a Muslim talukadar was permitted to adopt. But it seems to
a very great extent, the custom of adoption stands abrogated.
If no declaration under the act has been made, it is open to a
person to plead and prove the custom of adoption and if he
succeeds, it will be given effect to.348

Since there was no law of adoption for any of the minority

communities, several efforts were made to introduce an adoption
law in India for all the communities in 1972. When the India
Adoption Bill was introduced in 1972, it was opposed by the
Muslim members of the Joint Select Committee of the Parliament
to which the Bill had been referred. They contended that adoption
was prohibited under Islam and Muslims could not be allowed
to adopt. The Indira Gandhi government allowed this bill to
lapse without even a discussion. Though the bill was subsequently
introduced by the Janta government in 1980, it was withdrawn
because of pressure from the fundamentalist lobby. The
succeeding Congress government again reintroduced it but
exempted adult Muslim and Muslim children from its purview.

P. Diwan, Muslim Law in Modern India (Allahabad Law Agency, 1999) p. 106;
348

Mohd. Ismail vs. Noor-ud-Din AIR 1986 J& K 14.

186
During the controversy surrounding the bill leading Muslim
intellectuals opposed the fundamentalist position and wanted
adoption laws for the Muslims as well.349

The Muslim law givers and jurist do not use the expression
‘natural guardian’, but it seems to be clear that in all schools, the
father is recognised as a guardian—which term in the context is
equivalent to natural guardian, and the mother in all schools of
Muslim law is not recognised as the guardian, natural or otherwise,
even after the death of the father. Since the mother is not the
legal guardian of her minor children, she has no right to enter
into a contract to alienate the minor’s property. The father’s
right of guardianship exists even when the mother, or any other
female, is entitled to the custody of the minor. The father’s right
to control the education and religion of the minor children is
recognised. He also has the right to control the upbringing and
the movement of his minor children. So long as the father is
alive, he is the sole and supreme guardian of his minor children.

The father’s right of guardianship extends only over his minor

legitimate children. He is neither entitled to guardianship nor to
custody of his minor illegitimate children at any time, even after
the death of the mother, though it is a different matter that he
may be appointed as guardian by the court.350

In Muslim law, the mother is not a natural guardian even of her

minor illegitimate children, but she is entitled to their custody.

349
See V. Dhagamwar, Towards the Uniform Civil Code (New Delhi: N.M.Tripathi
Pvt. Ltd., 1989) for a detailed discussion on the issue.
350
Diwan, 1999, p.108.

187
Among the Sunnis, the father is the only natural guardian of the
minor children. After the death of the father, the guardianship
passes on to his executor. Among the Shias, after the death of
the father the guardianship passes on to the grandfather, even if
the father of the minor has appointed an executor, the executor
of the father becomes the guardian only in the absence of the
guardian, and in the absence of the grandfather. It appears that
the Shias consider the father as a natural guardian, and in his
absence, the grandfather is considered to be the natural guardian.
No other person can be the natural guardian, not even the
brother. In the absence of the grandfather, the guardianship
belongs to the grandfather’s executor, if any. Thus, under all
laws, the natural guardian of the child is the father.

However, these rules of guardianship have been modified by

certain decisions of the Supreme Court and the high courts in
India. The Supreme Court has held that in matters pertaining to
the custody of a minor, the sole basis for the decision should
not be the legal right of the parties but only and solely the
interest and welfare of the minor.351 It has also been held that
though the father may be the natural guardian of the minor, the
question of the child’s custody has to be decided “on the sole
criterion of the interest and the welfare of the minor”.352

On the other hand, custody of children can be burdensome

for women. For instance, often women are forced to take care
of the child merely because the father does not want to maintain
them. If the woman is poor and illiterate, then she often can’t
look after the material needs of the child properly. Thus, in a

351
Elizebeth Dinshaw vs. Arvand M. Dinshaw (1987) 1 SCC 42.
352
Chandrakala Menon vs. Vipin Menon (1993) 2 SCC 6.

188
workshop it was argued that a woman should get custody only
if she wants.353

7. Child Marriage and Abortion Laws

7.1 Introduction

The Child Marriage Restraint Act, 1929 was a significant law

passed by the colonial rulers as it was a deviation from their
stated policy of not reforming personal laws. However, this piece
of social legislation was passed after women’s organisations like
the All India Women’s Conference354 and other social reformers
like Raja Ram Mohan Roy took up the issue. In fact, as early as
1924, a bill was introduced in the Legislative Assembly to raise
the age of consent of girls to 14 years in both marital and extra
marital cases but was not passed. In 1925, a government-
sponsored bill was passed raising the age of consent in extra-
marital cases to 14 and 13 in marital cases. In 1927, Har Bilas
Sarda introduced a bill to raise the age of girls and boys to 14
and 18 respectively. This bill was referred to a Select Committee
and several women testified that the minimum age of marriage
should be fixed at 16 years to protect maternal health. Muslim
members of the Legislative Assembly like M.A. Jinnah also
supported the bill and the bill was passed with surprisingly little
opposition. In fact, members of the Legislative Assembly like
T.A.K. Sherwani apart from Jinnah argued that child marriage
had no scriptural sanction amongst Muslims. However, it has
been said that the act’s greatest lesson was to show women how

353
Muslim Personal Law and Women, A Report of the National Conference,
1999, p. 49.
354
AIWC was set up in 1927 from within the congress party.

189
powerless they were when it came to implementing
legislation.355Through the years, the act has been most ineffective
in curbing child marriage. Also surprisingly child marriage has
not been declared invalid even for children below a certain age.
Currently, the Indian government has introduced a bill to amend
this act, but has still not outlawed child marriage even in this bill.

As far as abortion rights for women are concerned, India has

one law for medical termination of pregnancy, which is applicable
to all communities. Various family planning policies of the
government of India have also encouraged family planning in all
communities. Both Hindus and Muslims use female sterilisation
as the dominant method of family planning and this has obvious
adverse health implications for women. Muslim women are also
not able to access the family planning services provided by the
government for a variety of reasons including discrimination,
lack of literacy and poverty.356 Communal tension has also made
Muslim women more vulnerable to religious leaders who oppose
abortion and family planning as un-Islamic. At the same time,
the Right-wing Hindu parties and groups have been incessantly
harping on a myth that the Muslim population is growing at an
alarming rate and is going to overtake the majority community.
This has lead to increased communal tension, though studies
have clearly indicated that this is not true.357

355
J. Nair, Women and Law in Colonial India (New Delhi: Kali for Women, 1996).
The entire discussion on child marriage has been based on pages 80-83 of the
book.
356
See Bhagat 2005, pp. 411-418 for a discussion on the entire issue.
357
Ibid., p. 417.

190
The Sharia does not lay down any age for marriage. It only
envisages that the parties to the marriage contract should be in
a position to enter into contract. Muslim Personal Law does not
expressly bar or allow child marriage but has allowed the guardians
of the child to contract their marriage on their behalves. The
child is given a right to repudiate such a marriage on attaining
puberty.

The National Family Health Survey showed that despite the

steady rise in the age of first marriage, almost universally marriage
is early in India and that 30 per cent of women 15-19 years of
age are married. Another 4 per cent are married but guana358 had
not taken place. Among women aged 20-24 years, almost 25 per
cent were married before age 15 and half were married before
they are 18 years. The mean age of marriage in rural areas is
about two and a half times lower than urban areas.359 The recent
census data of 2001 shows that 35.5 per cent of the female
population between 15 to 19 years is married while 4.5 per cent
of the girls are married between the ages of 10-14 years.

As stated earlier, Hassan and Menon show that 60 per cent

Muslims and 55 per cent Hindu women are married by the age
of 17 years and that women with low education level across
region and religion are more likely to be married below the legal
age than women with medium or high level of education. They
point out that age at first marriage fluctuates between 14-18

358
Gauna is the ceremony when the girl is sent to her husband’s house for co-
habitation. It was and still is customary in many parts of the country to marry
a girl and then not allow her to leave her parental home till menarche and
often later.
359
Kirti Singh and Divya Kapur, ‘Law, Violence and the Girl Child’, Health and
Human Rights Vol. 5 No. 2, 2001, p.17.

191
years360. The mean age at marriage for upper cast rural women
across India is lower than that for Muslim women.

The Child Marriage Restraint Act, 1929 is applicable to all religious

communities and denomination in India. However, due to a
number of factors including customs in some regions and in a
number of communities in India and also because of the personal
laws of various communities, the provisions of this act remain
largely ineffective. The state authorities also hesitate in strictly
applying the law and punishing the offenders. The Child Marriage
Restrain Act itself does not declare such a marriage void. The
act prescribes only mild punishments such as punishment for 15
days and a fine up to Rs 1,000 for the parties to the marriage
and 3 months imprisonment to the parents of the parties and
this hardly acts as a deterrent. The courts in India have held that
though the act aims to restrain child marriage, once such a
marriage is performed, it becomes valid.361 The act, therefore,
also needs amendments.

Article 16(e) of CEDAW gives the same rights to decide freely

and responsibly on the number and spacing of children and to
have access to the information, education, and means to enable
them to exercise these rights.

However, in Islamic law, the couple has the freedom and right
to choose to practice child spacing or family planning. This
decision should, however, be reached with the couple’s mutual
consent and in the present social set up this seems to be an
impossibility as apart from various factors like poverty, illiteracy,

360
Hasan & Menon, 2004, p 76.
361
Munshi Ram vs. Emperor AIR 1936 All 11.

192
lack of economic development and social attitudes it is mainly
the women who bear the major brunt of child rearing.

A woman has a unilateral right to have an abortion, only when

the pregnancy endangers her health or that of her foetus.

The Prophet believed that every conceived child has a right to

life, and there are strong Quranic injunctions against the killing
of the child. Majority of Muslim jurists are of the opinion that
the soul enters the body of the unborn baby until the time it is
ensouled (nafh-al-ruh), which they think is in the sixth week of
pregnancy; and if an abortion is absolutely necessary, it has to
be performed before that time. The Hanafis permit abortion
until the end of the fourth month. Others, particularly the Maliki
scholars, feel that the matter of when the soul enters the foetus
is unproven, and therefore, prohibit abortion absolutely. After
ensoulment, abortion is allowed if the pregnancy will endanger
the mother’s life, the principle being that the real life of the
mother takes precedence over the potential life of the unborn.362

The Medical Termination of Pregnancy Act is a uniform law

and is applicable to all religious communities and citizens in
India. Under the act, pregnancy may be terminated within 12
weeks and may also be terminated after this if the pregnancy
involves a risk to the life of the women or can result in grave
injury to her ( both mental and physical ). An explanation states
that anguish caused by an unwanted pregnancy resulting from
the failure of any contraceptive device or method would amount
to grave mental injury. The grounds for termination are thus
quite broad.

R. W. Maqsood, The Muslim Marriage Guide (New Delhi: Goodword Books,

362

2002), pp. 141-142.

193
8. Conclusion

One of the major legacies of colonial rule in the Indian

subcontinent was the categorisation of personal law as purely
religious law. Further, though the avowed policy of the British
colonial administration was non-interference in the personal laws
of various communities, this policy was conveniently bypassed
when it suited their administrative, economic or political interests.
Thus, criminal laws and civil laws (other than family laws and
succession) were changed and English secular law was brought
in to regulate areas like trade, commerce and law and order as
this suited their administrative and economic interest. The
retention of personal law also suited the British political interest
as this helped in their policy of divide and rule. As a consequence,
further development of personal law did not take place though
Muslim women got rights to inheritance and some grounds for
divorce. However, even the Shariat Act and the Dissolution of
Muslim Marriages Act were passed at the behest of fundamentalist
and patriarchal interests. After Independence, the Indian state
also followed the policy of retaining personal law of the separate
communities in the area of family law and succession. To begin
with, the Indian state was more interested in creating a unified
nation and did not want to upset any Muslim sentiments and
thus subordinated Muslim women’s rights to this. Later on
however, the Indian state openly colluded with the
fundamentalists and conservatives who vehemently opposed
reform or reinterpretation of the MPL. Every time the question
of reform was posed, fundamentalist and patriarchal interests
raised the bogie of religion being in danger in order to further
their political interests and establish their hold over the Muslim
community. By this time, personal law had become the major
marker of Muslim identity in the minds of many.

194
Though large constituents of the Indian women’s movement has
been trying to argue for reform of personal law to make it just
and equal, their struggle has been long and difficult. Muslim
Personal Law as it is practiced in India contravenes CEDAW in
several respects. Muslim women do not have equal rights regarding
marriage as Muslim men in India can marry upto four times.
They do not have equal rights to divorce as Muslim men continue
to exercise an unilateral right to divorce. The right to freely
choose a spouse is also not available to them. Their contribution
to the building up of the matrimonial home is not recognised
and they are discriminated against at the time of dissolution of
marriage since they do not have an equal right to matrimonial
property. Though their right to maintenance has been established
through court cases, the maintenance amount is invariably
insufficient for their survival. They are not equal guardians of
their children inspite of being the primary care takers in the
matrimonial home. Child marriage has not been invalidated under
Indian law and this has major consequences for women’s health.
Their access to family planning and reproductive rights is limited
by virtue of them being both members of a minority community
and women.

Women’s organisations and others interested in personal law

reforms have explored various possibilities to bring about
progressive changes in personal laws and bring it in consonance
with the provisions of the Indian Constitution and CEDAW. Till
the early 1980s most women’s organisations and groups were
campaigning for a uniform civil code. Their conception of this
code was that of a gender-just code which would achieve equality
between men and women. The concept of a uniform civil code

195
was, however, appropriated by the Hindu Right363 which was
mainly concerned with the introduction of a uniform code to
homogenise different communities and was not interested in the
equal rights of women. For the Hindu Right, Hindu women
already enjoyed equal rights through the amendments in the
1950s. They wanted to impose these amendments on all
communities.364 Some sections of the Muslim community were
also against the imposition of a uniform civil code in India. The
stand of the Hindu Right made them even more apprehensive
of the code as they feared that a Hindu Code might be thrust
upon them. This stand also suited the fundamentalists within the
Muslim community who raised the cry of Islam being in danger
as they were in any case against reform.

During the agitation surrounding the Shah Bano case, women’s

organisations like the AIDWA managed to mobilise Muslim
women against the anti-reform groups on the issue of
maintenance as they were dealing with only this issue. During
the campaign, besides using arguments based on women’s equality
rights other arguments that a denial of the right to maintenance
could not be defended on the basis of the Shariat.

Since then, most progressive women’s groups have been working

on reforms within different personal laws. At a meeting of the

363
The Bharatiya Janata Party, the Vishwa Hindu Parishad, the Rashtriya Swayam
Sewak Sangh, Shiv Sena and Bajrang Dal ( see the 1998 election manifesto of
the BJP).
364
K.Singh, 1994.

196
Muslim Personal Law Board, women’s groups365 demanded a
standard Nikahnama which would include a clause denying the
man the “right” to a triple talaq and the right to polygamy and
would contain a provision for talaq-i- tawafiz. These groups have
also demanded that the mahr be set slab-wise according to the
difference in income. When the Muslim Personal Law Board
circulated a model Nikahnama which did not contain these and
other demands, women’s groups again demanded that the
standard Nikahnama be changed to remove all discriminatory
provisions and include the rights demanded by them. Thus having
a standard Nikahnama is one way of bringing about reforms in
India.
Reform through legislation particularly in areas in which no law
exists is another way. Women’s organisations have suggested a
law for compulsory registration of marriage and a civil law on
domestic violence which would also contain a provision of
residence for separated/divorced women366. In this way, secular
laws which advance women’s equality rights will be strengthened.
In India there are already certain common laws like the Dowry
Prohibition Act 1961 and others can be introduced provided the
state cooperates.
In the meantime, Muslim women have won certain victories
from the court and will continue their struggle for justice and
equal rights through the legal system.

365
The AIDWA, the Action India—Delhi, Awaaz-Enisawan—Mumbai, the
CWDS, the COVA—Hyderabad , Stri Mukti Sangathan—Mumbai, Majlis—
Mumbai, the Masum—Poona, Sahr Waru Sanchetana–Ahmedabad, Suruchi
Sampati—Kolkata, the Vikas Adhyayan Kendra—Ahmedabad, Women’s
Research and Action Group—Mumbai, the National Federation of Indian
Women, the PUCL, the Joint Women’s Programme, the National Alliance of
Women—Delhi, Bazm-e-niswan—Bangalore, the Tamzeen-ul-Mohsinat,
Bangalore, the Federation of Legal Aid Committee—Jamshedpur.
366
Equal Rights Equal Laws, AIDWA, New Delhi, 2000.

197
198
 Chapter 4

The Interplay of CEDAW, National

Laws and Customary Practices in
Pakistan: A Literature Review

Fatimah Ihsan and Yasmin Zaidi

1. Introduction

This study attempts to enhance the understanding of the linkages

between national laws, ‘religious’ law and customary practices
and the marginalisation of women. It aims to provide a platform
for dialogue between religious scholars, human rights activists
and government functionaries on the points of convergence
and divergence between CEDAW and these laws and practices.

The focus of this study is a literature review of the subject with

a particular emphasis on materials available from government
sources and civil society. It does not take into account ongoing
projects by a plethora of development partners in the areas of
legal reform or access to justice, etc. The work of NGOs is also
not a focus of this study; however, almost all the literature that
has been appraised comes from the contributions of various
partners in the civil society to highlight women’s issues. The
second source of information was through discussions from
Focus Group Discussions (FGD).

2. Methodology

The methodology utilised in this study was as follows:

! Collection of information on studies done on the subject

of national laws pertaining to women and CEDAW and
customary practices;

! Contacting relevant individuals and organisations for

information and cross checking of various laws and their
updates, if any;

! Three FGDs were carried out in Gujar Khan, Jand Gujar

and Peshawar to understand community perceptions of
women’s rights reflected in national laws, customary practices

200
 and Sharia and what they see as factors that uphold or
minimise these rights.

The study period was spread over several months, with an

extensive review and meeting key persons in organisations.
Everywhere we found people more than willing to share their
time, expertise and resources to facilitate us. The process of
collecting material, perspectives and views became one of mutual
sharing with the authors also sharing information on CEDAW,
and national laws, particularly with the smaller NGOs and the
communities represented in the FGDs. One of the important
aspects of this study and its approach is the analytical framework
of various laws and customary practices – regarding women –
compared to the 16 substantive articles of CEDAW. The matrix
provided in Appendix V has been formulated in a way so that
each article of CEDAW is examined in light of the constitution,
national laws, Islamic laws and customary practices. The common
strand running through the study is to assess women’s human
rights — social, political and economic — and compare them
with the prevailing laws in order to point out the gaps that
persist.

3. Human Rights of Women in Pakistan

The situation of women in Pakistan varies greatly depending on

the geographical location and class. Generally, women in the
urban areas and from the middle and upper classes receive more
benefits than women in the rural areas (75 per cent of women
live in the rural areas) or poor urban women, who continue to
suffer from lack of basic social services as well as abuse of their
rights at all levels. Although, some women may enjoy certain
privileges, the majority remain disadvantaged and are designated
as second-class citizens due to systematic discrimination purported

201
by social and cultural norms and attitudes.367 This is the case
even though women constitute a significant 48 per cent of the
population.

Women’s social and legal status has undergone many changes —

in over five decades since the creation of Pakistan – some of
the changes have been beneficial for women, but, a few have
been highly regressive and discriminatory such as the Hudood
Ordinances – promoted by General Zia-ul Haq as part of his
politically motivated Islamisation (discussed later) which continues
to haunt women and minorities even today.

The present government has taken some positive steps such as

the creation of a Permanent Commission on the Status of
Women, declaring honor killings as murder, increasing the political
participation of women and formulation of a National Policy
for Women (to name a few), yet, violence against women remains
high in Pakistan matched by the same level of inertia by the
government. In addition to domestic legislation, which has largely
failed to provide justice to women, Pakistan has also signed
many international conventions, including CEDAW, which binds
the state to implement the articles based on equity and non-
discrimination of women and to report on their progress on a
regular basis.368 In the post-Beijing period, the government of
Pakistan has adopted the National Plan of Action to a great
extent – this covers 12 Critical Areas of Concern and women
with disabilities.

The sections that follow will analyse the social, economic and
political rights with reference to the informal law or customary

367
Human Rights Watch Report, 1999.
368
An initial report and subsequent reports every four years.

202
practices, Islamic law and formal laws and in order to situate
women’s human rights in the complexities that surround it,
throughout her life. The following table presents gender indicators
of Pakistan in a comparative global perspective and highlights
the inequities experienced by women in various spheres of life.

Gender Indicators of Pakistan in a Global Perspective369

Gender High Medium Low
Indicators Human Human Human
Development Development Development
and ranking and ranking and ranking

Gender- Norway– Malaysia– Pakistan–

related .0941/rank 1 .784/ rank 53 .469/ rank 120
Development
Index (GDI)
Gender Iceland– Malaysia– Pakistan–
Empowerment .847/rank 1 .503/ rank 45 .414/ rank 58
Measurement
(GEM)
Female Iceland– 66.7 Malaysia–.48.7 Pakistan– 35.8
Economic
Activity Rate
Year women Norway– 1907, Malaysia– Pakistan–
received the 1913/1907, 1957/1957 1947/1947
Right to Vote/ 1913/36.4 10.4 lower 21.6 lower
Right to lower house house, 26.1 house 17.0
Election/Seats upper house upper house
in Parliament
held by
Women

369
Figures taken from Human Development Report 2003.

203
3.1 Economic Rights

Poverty is one of the biggest challenges in Pakistan, which has

an adverse effect on women. Most households are headed by
the husband/father who is the sole breadwinner of the family,
although women headed households are not uncommon in
Pakistan at present. Women’s right to work, own property as
well as the right to inheritance are violated on a large scale
primarily due to certain social and customary practices.

Women generally do not have the right to choose the kind of

work they would like to be engaged in. Typically, women take up
employment only at the behest of the male members of their
family. For men, the most acceptable types of work for women
include piecemeal work that women can typically perform at
home.

Of growing importance to female labour is the informal sector,

which engages approximately 2 million women.370 Home-based
workers do not come under the domain of law, are often invisible
and go unrecognised. According to a UNIFEM report,371 women
opt to work in the informal sector due to lack of qualifications
and training, social and cultural constraints and lack of viable
alternative modes for making a living. Women from bonded-
labour families work for money, which is given to the family
(males) and not to the women themselves.

The agriculture sector involves over 72 per cent of female labour.

Rural women have to work inside the homes as well as help out
the male members in the fields. However, men control the income
earned through women’s participation in agricultural labour.

370
Ibid.
371
Progress of South Asian Women, 2003.

204
Access to credit for women might vary between the four provinces
and in urban and rural areas, but on the whole it is low in
Pakistan. However, some positive steps taken by the government
include establishment of industrial homes to impart training of
traditional skills and provision of loan facilities for women.372
The First Women’s Bank and the Khushali Bank provide loan
facilities to women.

Despite some positive measures supported by the government,

there are continuing gaps and challenges. Women’s work continues
to be dominated by gender bias; women’s participation in the
economy is also constrained by lack of public child care facilities;
lack of access to resources and skills to meet the changing
markets; and as an adverse effect of globalisation and liberalisation
women are being forced into the unregulated informal sector.373

Women’s right to inherit is a highly controversial issue and is also

an area where there is substantial difference between what the
Quranic injunctions say and what is actually practiced.374 The
need to keep immovable property within the family has led to
women being denied their right to inherit. According to Balchin,
“this has led to many outrageous customary practices. One
example is that of haq bakhshwana found among feudal, especially
Syed families in Sindh; either the girl is never married or she is
‘married to the Quran’.”375 Women rarely inherit their share, but
even if they do, the ownership lies with the male members such
as husband or brother. In contrast to the customary practices,
“…the courts have consistently upheld women’s rights to inherit.

372
Ibid.
373
Ibid.
374
Women, Law and Society, An Action Manual for NGOs, 2003.
375
Ibid.

205
There is now a noticeable trend of women increasingly
demanding their inheritance.376

3.2 Social Rights

In Pakistan, as in many other countries, the inferior attitude

towards women is present from the time of her birth, which is
acknowledged with despair rather than joy. The girl child is taken
as a form of liability – someone who will not be able to contribute
anything to the family. Her only asset is her power of reproduction
and that of being a sexual object377.

Early marriage is still common in many rural parts of Pakistan

despite the Muslim Family Laws Ordinance of Pakistan, 1961,
that established a minimum age for marriage for women at 16
years. The age for marriage for boys and girls differs in each of
the four provinces. In Balochistan the suitable age for marriage
of a girl is as soon as she reaches puberty, whereas some matches
are even decided before her birth. In Sindh, the age for marriage
for a girl is 14 years and above, whereas in NWFP, the age is 12-
18 years and in Punjab the age is 16-20 (Balchin, 96: 28). The
concept of Watta Satta (exchange marriages) is still common and
is a direct consequence for preference for cousins so that control
over estate can be maintained. As a result, many women are
married off to paternal cousins who can be much younger than
them. 378 In 1995, the Council of Islamic Ideology (CII)
recommended that in order to stop violence against women,
girls should be married according to their own choice. The CII

376
Ibid.
377
Mumtaz, Khawar, and Shaheed, Farida, (eds.), Women of Pakistan: Two Steps
Forward, One Step Back? (Lahore: Vanguard, 1987).
378
Ibid.

206
also emphasised that those who violate women’s right to choose
her own partner, should be punished. (Balchin: 1996).

Women’s right of divorcing husbands and obtaining Khula is

something that is shrouded in many misconceptions. According
to a study conducted by Raasta Development Consultants in
Punjab and Sindh, from the chosen sample only 13 per cent
men and 12 per cent women stated that women had the delegated
right of divorce under clause 18 of the marriage contract
(Nikahnama).379

In NWFP, Balochistan and Sindh, the custom of bride price is

very common, where the bridegroom pays the father of the
bride a sum of money and in return takes possession of the
woman. At times, the bride price can be taken in the form of
another woman.

Typically, in many areas of Pakistan, a man’s honor is defined by

the chastity and piety of women. Should a woman enter into
any relationship with a man that is outside the norms of society,
it means that she is subverting the order of things, and
“undermines the ownership rights of others to her body – and
indirectly challenges the social order as a whole. She becomes
black, kari (Sindhi) or siahkari (Baloch).”380

Over time, the notion of tarnishing male honor has taken to

include other so-called acts of defiance by women. If a woman
expresses her desire to marry a man of her choice and takes the
liberty of getting married to him, she can be killed or her father

379
A study of the Interplay of Formal and Customary Laws on Women,
Punjab and Sindh Study, 2003, Raasta Development Consultants.
380
Ibid.

207
can bring charges of Zina (see more under customary and Sharia)
against her alleging that she did not contract a valid marriage.381
Several women who have sought divorce through the courts
have either been injured or in some cases killed.382 In the same
vein, women can also be killed for being raped since they become
a social stigma for their family and tribe and therefore have to
be gotten rid of.

According to Jillani and Ahmed, the right to life as laid down in

Article 9 of the Constitution is violated when it comes to women.
Law enforcement agencies have at times colluded with honor
killings due to their own gender biases and the judicial response
to such killings is equally disconcerting since courts that are the
ultimate forums for justice are lenient when it comes to sentencing
men who have committed the crime. This is despite the
constitutional guarantee that “Any law or any custom or usage
have the force of law, in so far as it is inconsistent with the
rights conferred in this chapter, shall, to the extent of such
inconsistency be void.”383 The courts allow the plea of ‘grave
and sudden provocation in cases of karo kari and often extend
it to situations beyond the traditional concept, even though this
no longer exists in the law.

Violence committed against women at home is generally swept

under the carpet, which includes physical, verbal, sexual (marital
rape) and psychological abuse. One severe form of domestic
violence is burning women either by dousing kerosene over her
or through ‘stove burning’. In most stove-burning deaths, the

381
Ibid., p. 15.
382
In 1999, 29-year-old Saima Sarwar was killed in the lawyer’s office in Lahore.
383
Hina Jillani, ‘Violence Against Women: The Legal System and Institutional
Responses in Pakistan’ (draft document, AGHS, Lahore, 2000).

208
burnt area of the victim’s body exceeds 30 per cent and can be
as much as 60–70 per cent. According to medical experts, in a
stove-burn case, arms, abdomen and legs get burnt, however, in
most such cases, women’s genitalia are also found to be burnt.
Therefore, the nature of injuries, status of victim in the family
and the frequency with which these so-called ‘accidents’ occur,
point to a serious pattern that these women are not burnt by
accident, but are victims of pre-meditated murder. 384

The incidence of rape is not only prevalent in Pakistan, but is

on the increase with one women being raped every two hours.385
Despite the heinous nature of such crimes, the onus of providing
evidence is on women under the Hudood Ordinance. (Mehdi:98)

The literacy rates for women are abysmally low with about 70
per cent being deprived of the right to education. However, the
present government is in the process of taking some positive
steps (refer to the National Policy for the Development and
Empowerment of Women and the NPA) such as announcing
the Education Sector Reforms (ESR) and the emphasis on primary
school enrolment for girls as well as provision of quality
Education For All (EFA).386

Pakistan has a high rate of maternal mortality with about 50

mothers dying each day due to complications in pregnancy,
childbirth and abortions. In spite of the shift in policy towards
reproductive health, for the most part, the focus remains on
family planning.

384
Trial by Fire, Report by Progressive Women’s Association, 1998.
385
Yasmin Zaidi, National Scan on Violence Against Women, UNIFEM, 2002.
386
Government of Pakistan, Ministry of Women’s Development, National Policy
on Development and Empowerment for Women, 2002.

209
3.3 Political Rights

The Constitution of Pakistan does not discriminate against the

participation of women in the political or public sphere of the
country. According to the Constitution, women have the right to
vote for members of the national and provincial Assemblies,
have the right to be candidate to the Assemblies and Senate,
right to be prime minister, right to be president, right to be
elected speaker of assemblies and chairman of senate and right
to be governor, chief minister and minister.

The actual practice is different from theory as there are several

instances where women have been restricted from voting,
however, no action has been taken by the government. In some
other areas, older women vote instead of younger women. The
Independence movement of Pakistan — in which women
participated actively – did produce some seasoned women
politicians, but the post-independence period failed to give them
the required momentum. Among these women politicians,
Fatimah Jinnah was the only one who contested the elections as
a presidential candidate against Field Marshal Ayub Khan.
However, in the succeeding years, some women did participate
as candidates in the general elections. 387 The system of reserved
seats for women in the legislature came to an end after the 1988
elections. As a result of this, women’s representation in the
legislative assemblies began to dwindle and thinned out
considerably. For example, the proportion of women’s
representation in the last assembly was a meager 3.2 per cent.

387
S. S. Ali, A Comparative Study of the United Nations Convention on the Elimination
of All Forms of Discrimination Against Women, Islamic Law & the Laws of Pakistan,
(unpublished paper, 1995), p. 62.

210
However, under the present government, initially, seven women
were inducted into the government as ministers. In addition to
this, the government also reserved about 33 per cent seats for
women in the different levels of local government. As a result
of this, more than 40,000 women are at present members of
local government institutions; of these, over a large number of
women came through constituency-based direct elections at the
union council level and a sizeable number of women are at the
higher tiers of the local government. Many women contested
elections for the seats of Nazim (mayor), Naib Nazim (deputy-
mayor) at different levels and 16 of them were successful. In
addition to this, 126 women, mostly Christians were elected on
reserved seats for minorities.388 Most of the women had no
experience of contesting elections before (79 per cent) and more
than half of them are illiterate. Currently, the government and
the civil society organisations are involved in the training of the
new councilors and legislators.

On January 19, 2002, the government of Pakistan announced a

constitutional package to reform the electoral process. As a result
of this the general seats were increased to 265.389 In the aftermath
of the general elections, which were held on October 10, 2002,
there about 60 women in the National Assembly, 17 women in
the Senate, and 128 in the Provincial Assemblies.390

The government of Pakistan has also set aside a 5 per cent

quota for women in the public and private sectors. A 5 per cent

388
Women’s Participation in Local Government 2000-2001 (Lahore: Aurat Foundation,
2001).
389
Interplay of Customary and Formal Laws: Punjab-Sindh (Raasta, 2003)
390
Government of Pakistan, Ministry of Women’s Development, Pakistan
Country Paper, Commemorating Beijing Meeting, 2003.

211
quota has also been fixed for women in the judicial services.391
At present, some women also hold ambassadorial positions.
It is obvious from the current political participation and
representation of women that some positive changes have indeed
come about. Whereas, some women have been elected into
positions of decision-making and power, most of the rural
women continue to be subsumed by their lack of independent
decision-making (see under Social Rights, marriage, etc).
A review of the social, political and economic rights of women
indicates that there is a persistent gap in what the national laws
have accorded women in theory and what is actually practiced.
Laws pertaining to women’s economic rights need to be updated
and amended to reflect current realities of more women entering
the workforce. Under the current political set up women are
represented at all levels, however, this initiative requires a
constitutional safeguard. The Election Commission of Pakistan
should be an independent body, which needs to be empowered
to take action against those who undermine women’s right to
vote and ostracise their political participation.
Law pertaining to violence against women, particularly on
domestic violence (which should include martial rape) needs to
be adopted. Women’s access to justice and the right to mobility
also need to be safeguarded through enforcing existing laws and
abolishing any discriminatory customary practices.

4. Human Rights of Women and Formal Laws

The legal status of women in any country entails their position

under the laws of the land and it includes their legal rights as

391
Ali, 1995.

212
well as responsibilities as contributing members of the society.
When considering women’s legal position in Pakistan, it is
imperative to consider the whole range of laws as well as
customary practices, tribal codes and the social measures
undertaken to form legislation favorable to women (Kamal:
2002:18). At the legal level, women’s status in Pakistan is totally
unequal to that of men, despite several constitutional guarantees
of “equality before law and equal protection of law”, non-
discrimination and affirmative action. There are some formal
laws that have placed women in a highly disadvantaged position
such as the Hudood Ordinances392 (discussed later in the chapter).

This section, focusing on formal laws, will examine: the Muslim

Family Laws Ordinance 1961, the parallel judicial systems,
Hudood Ordinances, 1979, Qisas and Diyat Ordinances (Sec
306 C) 1991, the Law of Evidence, 1984, and the personal laws
for minorities. Women’s personal laws have been especially
highlighted since family laws and other personal laws percolate
into many different parts of women’s lives and it is here that
women face discrimination through some formal laws and
customary practices.

Muslim Family Law Ordinance, 1961

Although, the process of Islamisation is connected to the period

of General Zia, what is often overlooked is the fact that family
laws in Pakistan are also based on religious beliefs. 393 At the time
of Independence, Muslim family laws were not codified, rather,

392
Shehla Zia, Shehnaz Ahmed, and Naeem Mirza, Legal Literacy in Pakistan
(Islamabad: Aurat Publication and Information Service Foundation, 2002).
393
Fareeda Shaheed, Cassandra Balchin, Soohail Warraich, and Ayesha Gazdar,
(eds.), Shaping Women’s Lives: Laws, Practices & Strategies in Pakistan (Lahore:
Shirkat Gah, 1998).

213
they were based on religious practices and traditions and were
commonly known as personal laws. In 1937, the British enacted
the Muslim Personal Law (Shariat) Application Act to override
existing customary practices, which controlled the ‘private’ lives
of Muslims. The demand to change this situation came from
both Muslim men and women since they believed that most
customary practices were incongruent with Islamic laws. Thus
personal law was applied to marriage, dissolution, divorce,
maintenance, dower, gifts, trust, etc, but, inheritance to agricultural
property was excluded.394
In addition, the Dissolution of Muslim Marriages Act, 1939, was
enacted to provide relief to Muslim women from stringent
customary laws. Since child marriages were common in the
subcontinent, the Child Marriage Restraint Act, 1929, further
assuaged the sufferings of Muslim women.395
Jillani, Jehangir and Zia, points out that in the period after
independence, personal laws regarding guardianship, marriage,
divorce, inheritance and other marital rights were based on
religious traditions. The 1955 Rashid Commission produced a
report on the rights of marriage, divorce, etc remaining very
much within the ambit of Islam, but attempting to give it a
somewhat liberal flavor. This report found no popular support
among the orthodox Muslims who dubbed the report as being
un-Islamic. Due to this, the report was not implemented until
the military government of Field Marshal Ayub Khan who
promulgated an ordinance – Muslim Family Laws Ordinance
(MFLO) – which included some of the recommendations of
the Rashid Commission.396

394
Ibid., p. 98.
395
Jehangir, Jillani and Zia “Muslim Family Laws and their Implementation in
Pakistan,” (Lahore: 1988).
396
Ibid., p. 101.

214
The MFLO was meant to curb erratic divorce practices and
second marriages. However, where it does provide for some
safeguard for the woman against her husband who wants to
contract a second marriage, it does not ban polygamy.
Furthermore, as pointed out by Jillani and others, “…the penalty
provisions are too inadequate to act as an effective deterrent.
Similarly, though the procedure for divorce is to be rigidly
followed, yet no effective method was formulated to get the
aggrieved woman compensation like dower and maintenance
speedily and effectively.”

However, many of the provisions in the MFLO are considered

to be favorable towards women and welcomed by women’s groups
in Pakistan, as Jehangir, points out, “There was no movement to
reform the law and to bring it in accordance with the concepts
of equality, justice and fairness. To the contrary, the ordinance
was jealously guarded as a milestone for women’s rights in
Pakistan.”

The enforcement of the Ordinance of 1961 evoked opposition

from the more conservative quarters in Pakistan. According to
a special bulletin by Shirkat Gah,397 hearings on some 37 petitions
challenging sections of the MFLO as being unislamic have been
continuing since 1993. The most recent petition of the FSC
was in January 2000 which challenged registration of marriage,
polygamy, and procedure for divorce. The attack on the MFLO
from the FSC goes on to show that though MFLO is not the
most liberal family law, yet, the orthodox sections of society

397
Women’s Rights in Muslim Family Law in Pakistan: 45 Years of
Recommendations vs. the FSC judgment (January 2000) Shirkat Gah Women’s
Resource Center.

215
have continued to challenge it during its life of over 45 years.
Presently, there are some amendments being suggested to the
MFLO; however, most of these are procedural to bring it in line
with the Local Government Ordinance, 2000.

Parallel Judicial Systems and the Hudood Ordinances

One of the tragedies that prevails the judiciary in Pakistan is its

subordinate position; there have been many instances of
interference with the judiciary by the executive. According to
Ahmad, the Constitution itself permits such interference, the
stipulation to Article 200 provides that the president can,
“dispense with the consultation requirement stipulated with regard
to transfer of judges….”398 In Pakistan, almost all governments
that have come to power, have tampered with the Constitution
(and the judiciary) for their own political gains. During Zia-ul
Haq’s regime, for example, his penchant for Islamisation was in
fact, to pacify certain sections within the religious/political milieu
and as a consequence, he instituted an analogous judicial system.

The Constitution of 1973 proposed a system of courts with the

Supreme Court of Pakistan at the apex. The Constitution of
Pakistan (1973) enshrines certain religious principles in its essence
and all laws are to be enforced through a system of civil courts
alone.399 However, this structure was altered to create alongside
it another system of religious courts during the regime of General
Zia-ul Haq in his efforts of Islamisation. Some of these parallel
judicial systems are applicable to the tribal areas,400 but, there are

398
Balchin, Shaheed, Warraich, Gazdar, 1998.
399
Ibid.
400
For details see, S. S. Ali and K. Arif, Blind Justice for All: Parallel Judicial Systems
in Pakistan: Implications and Consequences for Human Rights (Lahore: Shirkat Gah,
1998).

216
a number of them applicable to the entire country. According to
Ali and Arif, these include.401

! The Federal Shariat Court402 which was constituted under

Article 303 C of the Constitution, the Shariat Appellate
bench, constituted under Article 203F of the Constitution.
These judicial forums have the brief to determine whether
or not existing legislation is in line with Islam.

! A parallel criminal court system – these are in addition to

military courts – through the promulgation of the Special
Trials Ordinance.

Ali and Arif make the point that the Federal Shariat Court and
the Shariat Appellate Bench were forced as part of a package
into the Constitution in order to provide legal cover to Zia-ul
Haq’s martial law since it was only partially recognised by the
Supreme Court of Pakistan. When there was no moral justification
left to extend his rule, Zia-ul Haq used Islamisation as a crutch
(since this was the major opposition to Zulfiqar Ali Bhutto’s
People’s Party in the 1977 elections). The Council of Islamic
Ideology (CII), was reactivated and given the task to codify the
Hudood Laws, which were promulgated in 1979. In order to
enforce these laws a system of courts was required, which were
subsequently constituted through the addition of Chapter 3-A
to the Constitution. Thus, the legal provision was set in place for
creation of Shariat Benches in the High Courts as well as a
Shariat Appellate Bench in the Supreme Court.403

401
Ibid., pp. 5-6.
402
The Council of Islamic Ideology already performs the function entrusted
to the Federal Shariat Court.
403
Balchin, Gazdar, Shaheed, Warraich, 1998.

217
The task of these newly created forums was to assess petitions
on their Islamic merit and if they were deemed not to be so,
were struck down. In 1980, Chapter 3-A of the Constitution
was replaced which legitimised the formation of the Federal
Shariat Court (FSC). Through this, the General had an upper
hand whereby he could appoint judges to the FSC, which
essentially became the appellate forum of trial under Hudood
Laws. The FSC and the Shariat Appellate Bench consist of some
religious scholars as well who may or may not be well versed in
law and, “moreover, Pakistani Ulema are notorious for their
misogynistic views and are unlikely to interpret Islamic law in a
manner favorable to women’s rights.”(Ali and Arif: 37)

The Hudood Laws are constituted of five criminal laws: covering

property ordinance (dealing with theft and armed robbery), Zina
ordinance (dealing with rape, abduction, adultery and fornication),
Prohibition Order (dealing with alcohol and narcotics), Qazf
Ordinance (dealing with false accusation of Zina), and the
Execution of the Punishment of Whipping Ordinance (dealing
with the mode of whipping for those convicted under the
Hudood Ordinances).404 Though the Zina ordinance deals with
rape, it does not include marital rape. According to Jehangir and
Jillani, the pre-Hudood ordinance criminal laws provided some
protection to women and children. Rape was a crime punishable
for men alone and women could not be charged for the offence
of rape.405 The Hudood Ordinances have changed this situation
whereby women and children can both be accused in the crime

404
Asma Jehangir, Hina Jillani, The Hudood Ordinances: A Divine Sanction (Lahore:
Rohtas Books, 1990), p.23.
405
Ibid., p. 85.

218
of Zina.406 The hadd407(limit; carrying a mandatory punishment)
punishment for a married person committing Zina is rajm (stoning
to death) and for an unmarried person is a hundred lashes in a
public place. The other category of punishment is tazir
(discretionary punishment), which basically means that if the
crime cannot be proved under hadd, then the person is liable for
punishment under tazir.

Laws of Qisas and Diyat (Retribution and Blood Money)

This law is discriminatory towards women as well since it puts

a monetary value (blood money) on human life and creates a
potential for unequal treatment under the law. A woman can
only give her testimony on the testimony of two male witnesses.
This law has given legal cover to the custom of swara (giving
women in exchange to settle a dispute). Diyat payable for woman
is half that of a man and according to one judgment of the
superior court, if a man kills his wife and the couple has children,
the husband cannot be sentenced to death.408

Qanoon-e-Shahadat (The Law of Evidence) 1984

This law reduces the testimony of women to half in financial

matters and matters of future obligations. Article 128 (1) of this
law states: “Birth during marriage is conclusive proof of
legitimacy”. This article gives reason to husbands to doubt the
moral character of their wives without proof and puts the
responsibility for the child’s maintenance upon the mother of an
illegitimate child.409

406
Ibid.
407
Means the limit – for details on hadd and tazir.
408
Women and Law , National Report for Pakistan (Lahore: Shirkat Gah, 1994).
409
Ibid.

219
Most of the cases that have appeared before the FSC relate to
the offence of Zina. Empirical evidence has shown that the
addition of Zina Ordinance has changed the mode of handling
sexual crimes.410 There are many cases of women complaining
of rape (Zina-bil-jabar) who have become pregnant as a result
and are accused of the offence of Zina by the police. In some
cases, the court has given the benefit of doubt to the co-accused
male and set him free whereas the woman is unable to prove
rape to the satisfaction of the court (as it requires the testimony
of four adult Muslim male witnesses for rape).411

Non-Muslim Women and Personal Law

Non-Muslim women face the same disadvantages in society as

Muslim women, but may be said to face a further disadvantage
of belonging to a minority community in a pre-dominantly
Muslim country. According to a study done by Raasta, “…any
attempt on the part of the women’s organisations in Pakistan to
help them is countered by minority men as being an attack on
their religion and customs.” 412 The government of Pakistan has,
over the years, set up three commissions and one committee to
report on the status of women. However, only one touched
upon issues of minority women (Christians only). It was observed
by the commission that the Divorce Act, 1869, was enacted over
a hundred years ago and needs some attention. Also, the MFLO
Ordinance of 1961 which provides some supportive laws for

410
Interplay of Customary, Formal and Informal Laws on Women: Punjab, Raasta
Developmetn Consultants, 2002.
411
R. Patel, Islamisation of the Laws in Pakistan (Karachi: Faiza Publishers, 1990)
p. 25.
412
Interplay of Customary, Formal and Informal Laws on Women: Punjab, Raasta
Development Consultants, 2002.

220
women are not applicable for minorities since these laws pertain
only to Muslim women. The present commission on the Status
of Women (2000) has indicated that it will look into the laws
affecting minorities.413

Ahmadis (or Qadianis as they are often called), follow the Hanafi
law with some minor modifications. Marriage, divorce, custody
of children and succession are dealt with according to this school
of jurisprudence. However, after Bhutto’s government declared
Ahmadis as non-Muslims, the administration of these matters is
handled by a local Kazi, or an appellant board or Khalifa located
at Rabwah.414 In terms of personal laws, the fiqah Ahmadiya (the
published Ahmadi Law) is applied and not the MFLO.415

In the case of Christians, there is no law dealing specifically with

succession and inheritance. The Christian Marriage Act, 1872,
which applies to all Christians living in Pakistan is a supportive
one; in the event a Christian woman’s non-Christian partner
contracts another marriage, the former can protect herself as
there is no provision for polygamy.416 However, the Divorce Act
of 1869 is relatively austere as it does not allow for an effortless
divorce. 417

There is no codified law applicable to Hindus with respect to

marriage, divorce or maintenance, although, Section 488 of the
Code of Criminal Procedure is applied in a limited way.418 The

413
Ibid.
414
Ibid.
415
Debrah deFina, (ed.), Papers of Seminar on Family Laws in Pakistan, AGHS
Legal Aid Cell, 1990. Case law, however, does indicate that not all cases are
dealt with by the Rabwah board and the MFLO is still invoked.
416
Ibid.
417
Ibid.
418
Ibid.

221
Child Marriage Restraint Act of 1929, which is still enforced in
Pakistan, defines child as a male under the age of 18 years and
female under 14 years. However, the validity of marriages
between children is not affected by this act. The MFLO amended
the age for females to 16 years, but other minorities do not
benefit from this change since they do not come under the
MFLO. Therefore, there is a need to look at the personal laws
of minorities as well. In Hinduism, marriage is a sacrament and
there is no divorce law for Hindus living in Pakistan. This is also
the case in inheritance, where Hindu women are left to their
own devices. There is a great need for laws relating to divorce
and inheritance for Hindus to be promulgated in Pakistan.419

For the Parsi community, the Parsi Marriage & Divorce Act of
1939 is applicable. The most important aspect of a Parsi marriage
is that the man and woman have to belong to the Parsi faith.
Polygamy is strictly forbidden under Parsi personal laws and a
divorce virtually impossible for both the spouses.420

It is clear from a review of some of the formal laws applicable

to women that while the Constitution guarantees basic rights to
women, discriminatory laws contradict the fundamental rights
of women such as the Hudood Laws, Laws of Qisas and Diyat,
Law of Evidence and at times even the MFLO. There is a need
to revise the personal laws for minorities and amend laws that
discriminate against them. The Blasphemy Laws included in the
Pakistan Penal Code – as amended during the first tenure of the
Nawaz Sharif government, have long been a subject of
controversy. These have been abused blatantly against minorities

419
See Chapter 3 of this study regarding changes to Hindu family law.
Interplay of Customary, Formal and Informal Laws on Women: Sindh, Raasta
420

Development Consultants, 2002.

222
as well as some Muslims in order to victimise opponents or
rivals. The present government took a brave step forward by
announcing some procedural changes in this law, but had to
back down immediately due to pressure from the religious sections
of society.

The Hudood Ordinances also discriminate against minorities since

they stipulate that a non-Muslim’s evidence is not admissible in
cases liable for Quranic punishment and “carries less weight
than that of a Muslim.”421 The religious intolerance in certain
areas of Pakistan is extremely high. Thousands of Hindus serve
as bonded labor; Ahmadis are denied freedom of expression
and cannot use Muslim burial grounds, and there is on-going
violence against the Shia sect.422

5. Women’s Rights and Customary Practices

Although customary practices in Pakistan vary from region to

region, yet one uniform trend that prevails is the subordinate
position accorded to women. This deeply entrenched notion
overrides the rights of women provided under formal and
religious laws.423

As pointed out by Balchin, within custom there is a range of

variations from conservative to progressive, and these changing

421
Voice of the Asia Pacific Human Rights Network, http://www.hrdc.net/
sahrdc/
422
Ibid.
423
This section is based primarily on the findings from the focus group
discussions conducted specifically to ascertain women’s perceptions of their
rights, and the following documents: Ali, 1995; Interplay of Formal &
Customary Laws on Women (Raasta study covering the 4 provinces of Pakistan
1997-2003).

223
patterns need to be identified and made more visible, so that
‘culture’ or ‘custom’ is not seen as immutable. In order to
understand customary practices, and to uproot ones laden with
gender discrimination, it is important to separate them from the
web of religion.

An important objective of the Islamic religion was to bring

about a social revolution among the people of Arabia and the
world at large. To this end, the Quran and the Ahadith contain
a number of injunctions, rules and regulations identifying practices
averse to women, children and the disadvantaged groups in
society. This is borne out by the fact that a major part of the
Quran focuses on protective and corrective injunctions for the
advancement of women.424

In Pakistan, two divergent points of view have evolved, with a

whole range of perspectives in between. On the one hand is the
conservative, religion-based view, which emphasises the rights
and obligations of men and women as laid down in Islam. This
view often overlooks the fact that Islam as it is practiced is quite
varied between different schools of Islamic belief. Furthermore,
the Sharia is not a uniform set of laws that are agreed upon by
the different schools of thought in Islam. These schools have
differences in their interpretation and application of Quranic
injunctions, in the relevance or authenticity of various narratives
and traditions.

The secular view takes a cautious stand in that it shies away from
placing rights solely within a religious framework. This is due to
the misuse and discrimination that has been carried out under

424
Ali, 1995. p. 45.

224
the guise of ‘religion’. Despite this caveat, it is difficult not to
advocate for rights within a certain context and since the overall
framework of Pakistan is religious, the proponents of secularism
also use religion as a point of departure. Therefore, there is an
inherent similarity in the two points of view; both ignore the
fact that the present status of women is not necessarily due to
‘religion’, but rather stringent patriarchal customs and traditions.
In many tribal parts of Pakistan, the importance of tribal and
ethnic identity precedes that of religious (Islamic) identity thereby
giving way to customary laws and practices.

According to Shaheed,425 the intersection of culture with customs,

laws and politics has direct implications for women; it is the
power elite who define what shape culture will take and its
impact on women; in particular through informal laws and
practices, many of which are deeply internalised and relate to
the private realm. These informal laws are not neutral in nature
but are sanctions for transgression and as in formal law, and
these sanctions reflect the ideology and worldview of those with
the power to enforce. For example, the practice of ‘honor killing’
is reinforced by law enforcing agencies (the police and the
judiciary), which take a lenient view of the crime426. There is a
clear dissonance between the state laws and the practices and
beliefs of the citizens. Shaheed believes that this is due in part

425
Farida Shaheed, ‘Engagements of Culture, Customs and Law: Women’s
Lives and Activism,’ in Fareeda Shaheed, Cassandra Balchin, Soohail Warraich,
and Ayesha Gazdar (eds.), Shaping Women’s Lives ( Lahore: Shirkat Gah, 1998).
426
CEDAW Articles 2(c)To establish legal protection of the rights of women
on an equal basis with men and to ensure through competent national tribunals
and other public institutions the effective protection of women against any act
of discrimination; (d) To refrain from engaging in any act or practice of
discrimination against women and to ensure that public authorities and
institutions shall act in conformity with this obligation.

225
to the failure of the state to create a cohesive, nationally integrated
society.

4.1 Social Rights

Age of Majority

The Constitution of Pakistan recognises the free agency of adult

citizens, men or women. Different national laws, however, quote
a different age of maturity for women. Section 3 of Majority
Act, 1875, states: “every person domiciled in Pakistan is deemed
to have attained majority when he shall complete the age of 18
years and not before”. Applicability of this law is not uniform
and is subject to exceptions e.g. in matters of dower, divorce,
custody a person is considered an adult even if s/he has not
attained the age of 18. Under the Hudood Ordinance (1979)
the age of criminal responsibility for girls is puberty while for
boys it is 18 years; hence a girl as young as 9 years can be
exposed to the rigors of the law.

In customary practice, there exists a paradox: a girl is seen as an

adult when she reaches puberty, even if it is at age 10; on the
other hand, she is never an ‘adult’ as a ‘wali’ or guardian is
needed for her to exercise any economic, social or legal agency.
The rights of women are compromised when the state fails to
recognise, and enforce a fixed age as adulthood. In general, a
woman is not sui juris or a free agent under customary law and
practice, and is seen as the property of her father, brother,
husband, or other male family members.

Right to Marriage

This commodification of women is most visible at the time of

marriage. Under Sharia, marriage is seen as a social contract

226
between two consenting adults and women have the right to
make their own decisions and set the terms of their contract. In
practice, however, a girl’s biological ability to bear children, even
if it is fragile at such a young age is seen as enough, especially
in tribal society. Here the consideration is the concept of honor,
and the premium placed on virginity. Families will send a young
daughter who has begun menstruation, off to her prospective
bridegrooms home (regardless of whether he is underage, or
perhaps much older) since then they will not have to vouch for
her virginity and purity since the groom’s family is now
responsible. Incidents are known where these young girls are
raped by older members of the family or by the groom himself
if he is in his teens or beyond.

Women are often not allowed to participate in the drawing up

of her marriage contract; in many areas she can be bartered
away at a suitable bride price, known as sar paisey in Pakhtun
society (most of the money is taken by the male relatives and a
small amount spent on clothes, household effects etc for the
bride). The amount of bride price is a matter of prestige and
esteem for the family and reflects their social status. The male
relatives act as the agents for the bride and after her token
consent represent her in the nikah ceremony. Often a slight a
nod of the head suffices for the ‘consent’ that Islamic tradition
requires. The contract is mostly verbal in rural areas of Pakistan,
ignoring the written contract as required by law. (In urban areas,
the Raasta study found that approximately half of all marriages
are registered as required by the law). The ownership of the
woman is thus transferred through the nikah to the husband,
who then assumes total control over her life. Even if he dies, the
widow remains the property of the male kin of her husband,
who usually prefer to marry her off to either the dead man’s
brother or to some other male family member.

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The bride price or vulvar as it is known in the NWFP is also a
means of trafficking women. One woman, can be re-sold by
successive ‘husbands’, much like property. However, as the Raasta
study points out, the practice of vulvar, while it is more prevalent
in the rural areas, is on the decline and is found in only 12 per
cent of urban households. The practice is also confined to a few
areas. In order to address this issue, an anti-trafficking legislation
has been promulgated but strict enforcement of the law needs
to be taken in this regard.

In Punjab and Sindh, the practice of dowry is common. The

terms of marriage are not necessarily completed once it has
taken place; fresh demands can be made on the girl’s family;
failure to comply can result in an increase in domestic violence,
divorce or in extreme cases burning.

The practice of exchange marriages known as watta satta (Punjab),

addo baddo (Sindh) and badla (NWFP) is still prevalent in Pakistan.
This practice refers to the marriage of siblings with another pair
of siblings. More often than not, it is an uneven match, with one
girl being used to offset some imbalance in the social status/
looks/age/etc of the brother. Frequently quarrels among one
couple will lead to a tit-for-tat quarrel amongst the other. A
divorce in one couple, will lead to a forced divorce in the second
one, for the purpose of revenge or violence.

Consistent with this view of women as property of the men,

they are offered as peace offerings to settle blood feuds. This
custom is known as swara, or vani. Sometimes the offering may
require that more than one girl be handed over to the aggrieved
family, especially if she is a minor. Fathers have been known to
break the teeth of a minor to make her appear older (thus

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avoiding having to give up two girls).427 This practice is increasingly
being seen as unacceptable, and Section 310 of the Pakistan
Penal Code (PPC) actually rejects this practice. However it has
been construed to be acceptable since it is a part of the 1991
amendment that incorporates the Qisas and Diyat Ordinances428.

The objective of the above is of course, to make the man pay

through this assault on his honor. The concept of honor takes
the brutal form of karo kari and siah-kari, where a couple
suspected of having extra-marital relation is punished by death.
Usually it is the woman who is killed, while the man has the
option to bargain for his release or simply disappear. It has been
noted that karo kari is often used as an excuse to settle property
disputes or other family/community disputes. This custom is
accepted as legitimate by community institutions (jirga/panchayat
etc); the judiciary and the police usually ignore the formal
requirements of their position and give the perpetrator a lenient
sentence.

Divorce

Divorce, though not frequent, is most often a verbal pronunciation

(repeated thrice in immediate succession) by the man. This
popular version of ‘Islamic law’ is the most common. The more
stringent divorce procedures noted in the MFLO and in the
main Madhahib are ignored. Divorce is on the rise in the urban
areas; amongst low income groups in parts of the Punjab, it
carries no stigma. Usually, however, a life-long separation is

427
Discussion with NGO activist working on Wanni.
428
A Bill on honor killing was passed by Parliament in 2004; while it was
diluted and compromises women’s rights on a number of key points, it has
recognised the practice of swara as unislamic and also a crime.

229
preferred to divorce, especially where the marriage is within the
family (also for economic reasons: even if they are poor, women
believe in the male as the provider; similarly the male provides
personal security to a woman).

Divorce is perceived as the worst kind of abuse a man in Pakhtun

society can have, being called zantalaq if he divorces his wife,
since she represents his honor, which can now be taken up by
any other man. The right of Khula i.e. divorce initiated by a
woman, is rarely practiced and has been made cumbersome by
various legal requirements, even though there is no clear
agreement among judges on whether Khula is a woman’s right,
or as often happens in lower courts, can be refused. However,
increasingly women, particularly in urban areas, are using their
right of Khula, with the support of their natal family.

Custody

In addition to economic and personal insecurity, women fear

losing custody of their children in case of divorce. The madhahib
differ on custodial rights of the mother and the father, depending
on the age of the girl child and the boy. (Custodial rights of
mother: Hanafi law: boys below 7 years, girls until puberty. Shafei
law: until the girl is married. Shia law: boys until 2 years, girls
until 7 years). Regardless of custody, the father remains the
guardian of the children. However, customary practice extends
this to mean physical custody of the child, regardless of age;
custody becomes symbolic with male pride. In areas where vulvar
is practiced, custody remains with the father, no matter what the
age of the child; in others, very young children stay with the
mother. In Sindh, peasant women face no problems in keeping
the children. Custodial rights are also being influenced by the
changing shape of the family: in extended families the father
could rely upon women (sister, sister-in-laws etc) to take care of

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the children; with the increase in nuclear families, this right is
being ceded to mothers more often.

Reproductive Rights

A strong son preference implies that women are expected to

have children as soon as possible after marriage, and continue to
do so until she has more than one son. In the past couple of
years, the contraceptive prevalence rate has increased, and women
now practice spacing, though a minimum of 4-6 children is still
the norm. Women prefer to have the husband or the mother-in-
law’s support in making the decision for contraception, as
consequence ranging from allegations of promiscuity to divorce
can be severe. There is no state law against contraception, and
within Islamic tradition many opinions in favor of family planning
exist. Abortion, on the other hand is illegal by law, and is only
justified on medical grounds. Customary practice also strongly
disapproves of abortion (though it is practiced). While no statistics
exist, it is believed that unsafe abortions are responsible for
significant number of maternal deaths and disabilities.

Mobility

In general, economic necessity dictates that women from lower

income groups, in rural and urban areas have fewer restrictions
imposed on their mobility. Rural women may work in fields, but
social segregation and purdah are observed in public spaces. The
norms are stricter among the Pushtuns. Among Baloch women,
purdah is not observed strictly, and mobility is not very controlled.

In terms of mobility, there are different views about what the

Sharia enjoins; a protective rule states that women must be
accompanied by a mehram (that is any person the women cannot
marry such as a brother or father, etc); the exaggerated concern

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of physical protection (fear of rape i.e. dishonor) restricts women’s
mobility. Mobility varies with class, age and marital status. Article
15 of the Constitution guarantees freedom of movement to
‘every citizen’ and Article 26 provides for non-discrimination in
respect of access to public places (other than religious places).

Education

Education for girls is now widely accepted, perhaps more as a

privilege than as a right. There are a few areas that do not
concede primary education to women. Higher secondary
education, or university education, though on the increase is not
as commonly accepted. In urban areas, and indeed, in most
professional colleges (especially medicine), the female enrolment
is at par with if not more than male enrolment. The government
has stepped up its efforts to realise the goals of “Education for
All” (EFA) and to increase girls enrolment through various
national and provincial level programs.

4.2 Economic Rights

Women can take up work only with permission from their male
family members. In rural Pakistan, a large majority of women
work in the fields; there are some professions/occupations seen
as compatible with a women’s perceived primary role of home-
maker. Compensation for work, whether informal, formal or
agricultural, is not equivalent to a male worker’s. In general,
women in paid work are acceptable only because of economic
necessity, and can also be seen as a sign of shame for the man
who is supposed to be the provider. This attitude is slowly
changing, especially in the urban areas, and also because the
rising incidence of poverty has forced families to send their
young daughters out to work. Women will often conceal the

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fact that they are working, by saying that they are attending
‘classes’ in various socially accepted skills (cooking, stitching etc).
Notwithstanding the critique, the increase in micro-credit
programs (First Women’s Bank, Khushali Bank, and through
NGOs), have assisted women to make small investments in their
productive capabilities.

Customs and lack of mobility of women often means that they

will settle for poorly paid jobs, or informal work. NGOs working
with rural and poor urban women have been able to offer local
women work, and their own women staff has also acted as
alternative role models of working women professionals. It is no
wonder then that the ultra-conservative males feel threatened by
the presence of these ‘NGO agents’ and often pass various
‘rulings’ against them. This stands in contrast to the national
policy of inducting women into all cadres, even as fighter pilots
in the Pakistan Air Force.

Property Rights

Property rights in Pakistan are generally denied to women as it

is seen as going into the hands of the another family (her
husband’s); if a man dies childless his property is immediately
taken over by the husband’s family: this practice is called tarboor
in Pakhtun society, but also exists in Punjab. This practice is in
clear contradiction of Islamic injunctions but is prevalent across
Pakistan.

In Sindh, women may be married off to the Quran in a practice

known as haq bakhshwana; such a woman lives in social seclusion
all her life, unmarried either because no match of suitable social
status is available, or because the brothers do not want to share
the property with her; in return for her giving up her rights her

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basic needs (food, shelter) are taken care of. Fortunately, this
practice is now rare.

While the Sharia provision of women’s share in property is

acknowledged, social tradition has found a way to circumvent it
by equating it to dowry, or protection and care extended to the
sister if she needs it (e.g. in case of divorce, or problems with
her in-laws/husband etc). Even where property is given to women
as part of the marriage contract, she does not exercise any
control over it. The Constitution Article 23 asserts that every
citizen has the right to acquire, hold and dispose of property in
any part of Pakistan.

4.3 Political Rights

The traditional and informal system of decision making present

in rural communities across Pakistan is one from which women
are completely excluded. Decision-making forums such as jirga
and panchayat are essentially a council of tribal elders or ‘chiefs’.
The council will deliberate and pass decisions on all matters
affecting the community. Its decisions are usually binding with
severe sanctions for ignoring its rulings. In Pakhtun society for
example, women do not have access to the hujra, (where men
discuss matters and socialise). This is in contrast to the
Constitution of Pakistan, Article 32 that ‘ensures local
government institutions composed of elected representatives with
special representation of peasants, workers and women’; and
states in Article 34: ‘steps shall be taken to ensure full participation
of women in all spheres of national life’.

The Local Government Ordinance, 2000, has specifically reserved

33 per cent seats for women, due to which almost 40,000 women
are now ‘elected’. The jirgas and panchayats in certain districts
issued statements forbidding women to either vote, or run for

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election in the elections of 2000-2001. Although this has been
brought to the notice of the Election Commission, no measures
appear to have been taken.

The Constitution also does not discriminate against women from

elections to the Parliament or holding political office. Many
commentators have noted that within the Quran there is nothing
to suggest that women are barred from political participation or
holding political office.

4.4 Social, Economic and Political rights: Perceptions of

Women (Focus group discussions)

To understand women’s perceptions of their social/economic

and political rights, and what enables or inhibits them from
asserting their rights, three focus groups were conducted in three
different locations. The discussions focused on the factors that
cause or reinforce discrimination against women: customs or
traditions, lack of legal support, lack of awareness, or enforcement
of laws that do not allow discrimination. Another purpose of
the focus groups was to see what women themselves identify as
the most important issues that need to be taken up.

Each focus group comprised 8-12 women from the community

who had experienced discrimination in the social, economic or
political sphere. Such discrimination could have been in the form
of violence, or discrimination in economic activity (low wages
for same work as men) or in political activity. The women were
in the age group 18-50 years so as to get the views of young and
old alike. The women were lawyers, councilors (local government),
survivors of violence, and women representing the labor/
agricultural class. The discussion lasted beyond the planned two
hours as women were keen to share their experiences.

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The discussion focussed around the following themes and issues:
1. Recognising discrimination in social, economic and political
sphere.
i) What kinds of discrimination exist against women?
ii) Are these discriminations a threat to women?
iii) Are there any mechanisms that support women’s rights?
What are they? Note examples (legal, social etc).
iv) Do women have any rights according to:
a) customs,
b) the Sharia
c) national (Pakistan’s) laws.
v) Which are they familiar with?
vi) What needs to be done to promote women’s rights? Who
should do it? With whom?

2. Obtaining support:
i) What are the problems involved in finding support to ensure
rights?
ii) Where do women go if they want to get their rights
addressed?
iii) Who/What supports them in seeking redressal
iv) What are the costs associated with seeking redressal? How
are these met?
v) Are these seen as affordable?

3. Community influencing factors

i) What are the ways in which barriers to accessing support
for women’s rights can be addressed?

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Focus group 1 and 2 were held in District Gujjar Khan, in a
peri-urban and rural community respectively. The first group
venue was a centre for vocational training and special education,
along the main highway between Islamabad and Lahore. Focus
group 2 was a village, deep in rural Gujjar Khan, and the venue
was the home of a local woman. An NGO that has been working
with these communities facilitated the logistics etc. Focus group
3 was held in Peshawar; here again a local NGO had invited
women from rural and urban areas from around Peshawar. The
women were from communities that had access to means of
communication (radio, some had television, though not necessarily
in their homes).

FGD 1: Peri urban FGD 2: Village FGD 3: Peshawar

community in District
Gujjar Khan Gujjar Khan

1. District Councilor 1. Student 1. District

Councilor
2. Tehsil Councilor 2. Teacher 2. Union Councilor,
(middle tier of Karak
local government)
3. Homemaker 3. Teacher 3. Primary School
Teacher
4. Homemaker 4. Labor 4. Agricultural
(mother of special Councilor Worker;
child) Union Homemaker
Councilor
5. Homemaker 5. General 5. Agricultural
Councilor Worker;
Homemaker
6. Teacher working 6. Home-maker 6. Agricultural
with special children Worker;
Homemaker

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 7. NGO worker 7. Union 7. Union
Councilor Councilor/
Activist/Media
Person
8. Teacher 8. Primary School
Teacher
9. Homemaker 9. Project Worker
10. High School 10. NGO Worker
Teacher
11. Homemaker 11. NGO Worker
12. Homemaker 12. Parliamentarian
(MNA) and
Legal Aid
Activist
13. Homemaker
14. Union
Councilor

Women were fully cognisant of their rights, the discrimination

they faced and of violation of these rights. At the same time,
the awareness that they have rights, particularly as granted under
religion, does not translate into an assertion of rights, nor does
it (particularly the religious rights) give them the confidence or
courage to stand up for it. All were very aware that it is the
community and cultural norms that prevail over all else.

“I think when a daughter is born, the mother feels sad, because

she knows that as a woman no matter what she does it will not
be recognised; if the son does something everyone acknowledges
it. The mother should treat the son and daughter equally. The
mother tells the daughter once you are married you should not
return to your parental home; we should not discriminate between
our children” (#1-6, teacher working with special children)

238
“Sometimes it is the extended family the biradari that creates
hurdles and we do not get any rights.” [#2-4 Union (Labour)
Councilor, rural Gujjar Khan].

In response to rights under religion, women noted that religion

gave them the right to education, women can work outside of
her home, “a woman has the right to all kinds of work, whether
inside the house or outside it”, women have the right to marry
of their own choice, the right to property and inheritance. At
the same time, “Religion may have given us rights, even the law
has, but who follows it or implements it?” (3-12)

‘It is not that women are unaware or ignorant; women know

their rights; but they cannot do anything because there is too
much pressure on her (to conform), she is ‘majboor’, helpless.’
(1-2, Tehsil Councilor).

“We cannot raise our voices or fight for other women’s rights
even within the family, because husbands do not permit us to.
We don’t have the right to speak, how can we speak for others?”
(# 3-6, agricultural worker/homemaker, Peshawar).

When asked why, if these rights were there they were unable to
exercise them, the overwhelming response was “I think there is
too much ignorance; a woman is not given any respect; she is
not allowed to go anywhere, they just want her to do the
housework”. (# 1-1 District Councilor).

It was interesting to note that women councilors, who have been

directly elected to their seats in the Union Council, struck similar
chords of helplessness in the face of social norms as did the rest
of the women. That they have obviously overcome some of
these hurdles was clear, but their words conveyed the sense of
regret that rights recognised under religion and law have to
struggled for.

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At the same time, there is a clear recognition that the customs
and norms have changed with time:

One woman shared how as young girls, she and her sister were
the first ones in the village to be educated; how their grandfather,
a religious scholar, encouraged them; they faced so much criticism
that they moved to a hostel for some time; but had to curtail
their studies without completing college. With a slight touch of
bitterness she added, “Now the daughters of same people who
criticised us, have become doctors…I feel bad, but then I also
take pride in it that we were the first, and it is because of us that
others could follow”. (# 3-11, NGO worker, Peshawar).

There was also a clear sense of the patriarchal dimension of

discrimination and the arbitrary nature of male decision-making.

“Men control women’s rights…and it depends on their individual

attitude and education (whether they ‘give’ women the
rights)…some rights are given, others we cannot assert.” (3-7)

“No women is involved in decision-making; no woman is involved

in the ‘raazi nama’ (reconciliation document) the men say ‘you
don’t speak, this is our work.” (2-11, homemaker, rural Gujjar
Khan)

“When we talk of rights we should think of the overall

development, and the roots of the issue. Men are basically
unaware of women’s rights; women have been given these rights
since 1,400 years, but these men are unaware. They have no
education and should be educated.” (3-11, NGO worker,
Peshawar).

Women are told, don’t talk…this is men’s work. “Saaf mana’a kar
daitey hain…keh auratoun ka faisaloun mein koi dakhl nahin.” They
forbid us clearly, women have no role in decision-making. (3-4,
agricultural worker/ homemaker, Peshawar).

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Nowhere else does this come across so clearly as in the right to
education, to marriage and inheritance rights. In each of these
cases women quoted personal examples of how the restrictions
were changed or lifted if the men of the family (the husband/
father/ brother) so wished. With male support they were able to
‘ignore’ resistance from the community as well.
“When my first daughter went to school I was ordered by my
husband to accompany her; I had to sit all day at school waiting
for her; sometimes she had extra classes; we would come back
late in the afternoon; I had three other younger daughters to
look after; it was so difficult to manage the household
responsibilities, making arrangements for the other children to
be cared for etc. When my second daughter went to school, my
husband had softened by that time and did not insist that I go;
it was a relief.” (Pause; then angrily…) “It is the men’s wish and
ideas that we have to obey: it has nothing to do with religion!
They can make and change the rules as they like!” (3-1, District
Councilor, Peshawar).
“Yes, women have a right to marry of their own choice, the last
wasn’t accepted before, now that is changing.” (#1-3, homemaker,
Gujjar Khan).
Where rights are recognised and allowed to be exercises, they are
constrained by male/societal discrimination and limits:
“Religion gives us the right to property and ownership of assets;
but those who have it are not allowed to sell it.” (# 2-15, rural
Gujjar Khan).
“My brother is afraid that the property will be divided so he is
not marrying his daughters.” (#3-1 District Councilor Peshawar).

“Yes, we have the right to mobility, but we have to be

accompanied by a child!” (#3-7, Union Councilor, Peshawar).

241
An older woman said, “I still have to take whoever is in the
house, often my small nephew with me; sometimes it is not even
a male, it is a small girl.” Another piped up, “That is because
they will ask the child where you went, who you met etc. It is
not protecting you; it is controlling you and keeping an eye on
all your movements!”(Peshawar) All the women laughed and
agreed.

“Women and men can marry of their own accord, but they
should include their elders and parents because they can guide
them. There are customs and traditions but if we go against
them, we need the support of men. Education is essential.
Rebellion is not the answer.” (#3-1, District Councilor, Peshawar).

“Yes we have property rights, but custom does not allow us to

have them. We cannot ask for our inheritance rights from our
brothers; brothers can ask for it; we can ask for mediation to
resolve this, the last recourse is the thana, or the court. Dandey
ka zor hou tou mil jaye (i.e. inheritance/property). ( #3-3, Primary
school teacher, Peshawar).

And then, of course, there are consequences for not staying

within the norms defined by the family and the community, in
contravention of the laws and rights:

“Women criticise those who marry of their own choice; criticise

that the husband does not belong to our clan etc. If we do this,
then when we need help, (if there is trouble in the marriage)
who will help us? Sometimes even if the parents give their
permission, the relatives and the community does not accept it/
agree to it. How can we rid ourselves of this fear that if we
leave our home to study or to work we will not be beaten? Who
will help us? The police? The neighbours?” (#1-3 District
Councilor, Gujjar Khan).

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In NWFP, during the focus group discussions, women of a
village related the extreme lengths that denial of their property
rights can go to. Property and inheritance rights of women are
recognised and protected by the Sharia, and people are aware of
it. However, brothers will often only ‘loan’ the property to the
married sister (often if it is agricultural land it provided some
subsistence farming for the family and their food needs are
fulfilled). She has to return it, or purchase it at market rates from
her brother. Often, the women narrated, conflict arises because
their husbands refuse to pay the brothers back, as they insist that
it is their wives’ right to inherit a share of the family property.
The brothers will stop at nothing to regain the value of their
property, and in case of resistance, often shoot their brother-in-
laws, widowing their sisters, and making her children orphans.

“It is not a custom among us” (i.e giving property rights).

“A man was killed because he supported his wife when she

asked for her share of the inheritance.” (# 3-6, agricultural
worker/ homemaker, Peshawar).

We are scared that if we ask for help, the situation will get
worse.

“They keep our children” (referring to leaving an abusive

marriage). (# 1-5, homemaker, Gujjar Khan) “We are afraid that
the issue will escalate” (referring to asking for help to avoid
physical abuse). (#1-1, District Councilor, Gujjar Khan) (3-11,
NGO worker, Peshawar).

The consequences for choosing to marry are even more severe.

“This can lead to honor killing even if it is our right under the
law, but society and family do not recognise it.” (3-12, legal aid
activist and parliamentarian, Peshawar).

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There is a (female) doctor who contracted a nikah (marriage)
without her parents knowledge with a colleague; she is unable to
tell her parents that she is already married…so they arranged her
marriage with someone else. She has committed a religious
transgression rather than face the consequences of a social one!”

There was a sense of despondency on what can really be done

to protect women’s rights and to support them in the assertion
of rights.

“No one can help us. This is the fate of women.”

Sometimes parents support us…but then they also ask us to

compromise. (1-1, Gujjar Khan).

“Women councilors could help, but they are women and helpless
as well.”

“[If a woman’s husband does not help her, how can the law help
her (Uski qanoon kya madad karey ga)?” (# 2-15, Union Councilor,
rural Gujjar Khan).

“The police cannot do anything.” (#1- 3, homemaker, Gujjar

Khan).

“Women are victimised everywhere, but in the other (developed)

countries the law protects women, but not here. There is injustice
everywhere, but would the police protect women here?” (#1-2
Tehsil Councilor, Gujjar Khan).

“Aurat ki haisiat hi kiya hai keh who huqooq manwai.” (Women do

not have any status, how can they assert their rights?) (#2-8,
teacher, rural Gujjar Khan).

The role of local government, parliament, police, judiciary, family

and community were discussed. Women admitted that the
community can help by getting together and discussing their

244
issues, but usually there is a focus on compromise that does not
provide them any relief; the councilors can help, if they were
empowered enough themselves; but mainly it was the government
that was seen as being able to expedite delivery of justice, if it
would enforce its own laws, would penalise rights violations, and
if it could be more accessible.

“Women have to make themselves strong internally.” (#1-4 Union

councilor, Gujjar Khan).

“This courage (housla) can only be given by the parents, not by

anyone else.” (# 1-1 District Councilor, FGD Gujjar Khan).

“Issues should be resolved through mediation, not by baghawat

(rebellion).” ( 3-12, legal aid activist and parliamentarian,
Peshawar).

“We ask for a jirga, get the elders to mediate and discuss it.
Otherwise it will have to be the thana and the courts.” (#3-2
Union Councilor).

There were quite a few expectations from the women councilors

though their current limited scope of being able to help was
recognised as well.

“This is why there are women councilors so they can solve

women’s problems.” (#1-5 homemaker, Gujjar Khan).

“We voted for the women councilors because we want them to

solve our problems.” (# 2-2 Teacher, rural Gujjar Khan).

“We have expectations from the women councilors; we will

support her to meet our expectations. If the councilor raises her
voice for women’s rights and for women in distress then I will
support her.” (# 2-10, High school teacher, rural Gujjar Khan).

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“Women councilors can help. However, they are limited because
they have limited space in the council itself…no secretarial
support; the Nazim and other government functionaries are not
helpful, they are not available at their offices. Women should be
able to go to the Nazim and get help.” (# 3-1, District Councilor,
Peshawar).

There was demand as well that justice be made accessible by

ensuring mechanisms at the Union Council level, the tier of
local government that is closest to the community and relatively
more accessible to women.

“She cannot go to police stations or the court alone…in fact,

they become her enemies. Justice should be accessible at the
Union Council, near her somewhere.” (#3-12 Parliamentarian,
Peshawar).

“Councilors can play a role in facilitating access to justice.” (#3-

11 NGO Worker).

Enforcement of the Law

“Legislation is weak, where there are difficulties, policies should

be changed. Women in the national and provincial parliaments
should legislate for these rights.”

(with particular reference to inheritance # 3-1, District Councilor,

Peshawar).

The discussions from the FGDs clearly show that there is an

awareness of rights of women under the law and religion. The
sense of injustice being perpetrated by society and community
in denying them these rights was also strong; there was a resigned
acceptance of the situation, underlying which was the fear of
‘losing it all’ i.e. the little family support they have since the

246
social sanctions against those women who tried to assert their
rights were very harsh. The example of the woman, a doctor
(and not some uneducated woman), who married twice against
her religious beliefs, to avoid the social sanctions she would face
if she disclosed that she had married of her own choice, is a
vivid example of the fear instilled in the women.

There is also anger at the government and its representatives

and institutions for not upholding the law, and for allowing
parallel systems of justice (community-based, male-dominated)
to decide their fates. Women were specific in saying that the one
thing that would give them confidence and would reassure them
is the upholding and enforcement of law by the law givers
themselves! Only then would they come forward to assert their
rights.

Widespread education, especially of men, legal awareness and

provision of legal aid, progressive legislation protecting women’s
rights, mass awareness etc were given quoted as ways of remedying
the situation.

The right to education, mobility, choice of partner, economic

and political rights are limited in customary practices. This is
contrary to Sharia, which enjoins education, inheritance rights,
right to work and other economic rights and is strict about
forced marriages. However, it is the customary practice that
prevails in reality. Customary law and practices are mostly
discriminatory to women and enforced by a strict set of rules
and punishments, administered by a parallel system of justice
through the community. Due to women’s restricted mobility,
illiteracy, and lack of exposure to other cultures and practices
outside their immediate social or geographical boundaries, these
informal laws and practices are accepted as immutable, and kismet
(fate) by the women.

247
The control of customary practices over women’s lives is slowly
decreasing, as literacy and access to mass media increases.
Exposure through mass media to different systems and practices
within the country will allow them to question discriminatory
practices seen as unchallengeable. The state fails when it does
not provide them with legal literacy, and also the means to meet
their legal needs without fear or threat from their social structures.
At the same time, statutory law that has caused confusion, and
also replaced parts of the PPC, which were protective (as the
Hudood laws have done) need to be repealed.
Women are also constrained to accept discriminatory practices
because their access to justice is limited. Firstly, they are not
aware of their legal rights; secondly, their restricted mobility
prevents them from reaching formal institutions of justice. Lastly,
these institutions are not perceived as being objective or protecting
their rights; rather, women feel that they become vulnerable to
exploitation because they have left the (imagined) protection of
the home and family, and are now at the mercy of insensitive
institutions and functionaries; legal proceedings take months and
years; women can be remanded to government shelters, that
function almost as subjails.

Human Rights of Women and Islamic Laws – The

Shariah429 Debate
Since Pakistan is an Islamic Republic and the Constitution of
1973 also mirrors the same principles and beliefs, the quandary
that proponents of human rights are constantly faced with is
how to proceed with the struggle for equality. Should it be a

429
The terms Sharia, Shari’a and Shariat are used interchangeably in this chapter
according to the sources from which they were taken, and all stand for the
originally Arabic term ‘Shari’ah’, the historic legal tradition in Islam.

248
struggle that can be waged within the parameters of Islam or
should the call for equality be based on secular principles? As Ali
and Mullally point out, at a strategic level, it may be wise to wage
the battle within the confines of Islamic reform since
secularisation can alienate and exclude women. At the same
time, if one opts for secularisation, it may mean relegating the
field to fundamentalist who would continue to promote their
own version of Sharia.430 Jillani and others, explicate that the re-
formulation of the legal system in Pakistan under the Islamisation
process has an inherent weakness in that the status of women
has suffered immense corrosion and their powerlessness to
injustice has only increased.431

In Pakistan, the zeal for Islamisation has been a constant with

the only variables being the different governments. As
aforementioned, the worst case of Islamisation began during the
dictatorship of Zia-ul Haq in 1979, with the introduction of the
Hudood Ordinances. However, even during pre-Partition times,
when the Muslim Family Ordinances were promulgated, they
were framed within the confines of Islam. At that time, however,
the move came from women and men who had suffered under
customary laws and believed that they would gain more rights
under the Sharia. However, what happened in reality was a failure
of the law-makers in overcoming rigidity and obscurantism.432

Since Islam has continued to regiment the lives of Pakistanis in

one form or another–mostly for political expediency–it may be

430
Shaheen Sardar Ali, Siobhan Mullally, ‘Women’s Rights and Human Rights
in Muslim Countries: A Case Study,’ in H. Phoenix, A., Stacey J. (eds.) Working
Out new Directions for Women’s Studies Falmer, 1992) pp. 113-123.
431
Jillani, Jehangir and Zia, 1988.
432
Ibid.

249
worthwhile to recount some of the processes of Islamisation
that have hit and continue to affect Pakistan. It would also be
within the ambit of this chapter to delve into different perceptions
regarding Islam and human rights and the debate on Islamic
reform.

5.1 Islamisation Process in Pakistan

The proclivity for Islamisation in Pakistan has typically come

from the orthodox conformists (religious lobbies) and has then
been given legal cover by the government in power at the time.

Field Marshal Ayub Khan, (first Martial Law in Pakistan)

promulgated the Constitution of the Republic of Pakistan 1962.
The word ‘Islam’ had been dropped and some of the religious
features of the 1956 Constitution were not integrated.433 There
was a growing demand from members of the National Assembly
and politicians for Islamisation of the Constitution, which he
agreed to. Again, during General Yahya Khan’s Martial Law, the
Constitution of 1973 was framed; the Constitutions of 1956
and 1962 were incorporated into this one and Islam was declared
to be the state religion.434

Zulfiqar Ali Bhutto (PPP) abstained from bending under the

whims of the religious sections in society; but in his final days
in power, he too could not escape their wrath. Giving into
pressure, his government banned liquor and gambling and
declared Fridays as the official holiday instead of Sundays435
When Zia-ul Haq usurped power, he used Islamisation to validate
his stay in power by acceding to the cry for Islamisation. He

433
Patel, 1990.
434
Ibid.
435
Ibid.

250
thus, passed the Hudood Laws in 1979, the Qisas and Diyat
Law and the Law of Evidence (discussed in detail above). These
laws were and are extremely regressive and discriminatory for
women as well as minorities. As has been mentioned in the
previous chapters, Zia’s campaign of Islamisation was
accompanied by the creation of a parallel judicial system, the
Sharia’a Courts, in order to implement the ordinances.

The democratically elected governments fared no better. Benazir

Bhutto could not reverse discriminatory legislation for women.
In 1991, Nawaz Sharif initiated the Shariat Bill. The present
government of President Musharraf made some positive moves436
in the beginning, such as the announcement of honor killings as
murder and the procedural changes in the Blasphemy Law. Where
nothing for the enforcement of the former was done, the latter
amendment was withdrawn hastily due to pressure, again, from
the religious groups. It has to be pointed out that throughout
the process of Islamisation, women and minorities have suffered
the most and their human rights have been constantly abrogated.

5.2 Another Parallel Judicial System? Sharia’a in NWFP

The most recent wave of public discussion and debate on the

issue of Sharia in Pakistan has been initiated by the 2003
Provincial Sharia’a Act in the North West Frontier Province
(NWFP). This act proposes for all Muslim citizens to follow
Islamic law, which will be ‘the supreme law’ in the province,
though it does not specify what form this law will take, or which
of the four main madhahib/maslak), or legal schools would be

436
Since the writing of this report, certain steps have been taken: Parliament
passed a bill on honor killings, the discriminatory Hudood laws have been sent
to the CII for review etc.

251
followed. An accompanying bill, the Hasba (Accountability) Bill,
which is being debated in the same provincial assembly, chalks
out a plan to enforce the “Islamisation in the NWFP” project,
envisaging the creation of a “parallel system for judicial, police
and accountability functions”.437 This, if enacted, would create
yet another layer of parallel legal systems present in the country.

As described by I.A. Rehman, the Hasba Bill proposes to appoint

a mohtasib (Ombudsman– proposed to be a religious scholar and
qualified to be a judge of the Federal Shariat Court), who would
oversee the work of the provincial administration (save the high
court and sub-ordinate courts) and secondly, the Mohtasib will
be empowered to stop whatever is ‘bad’ an ‘un-Islamic’, and
promote virtue and Islamic morality in all spheres of life,
reminiscent of the Taliban in Afghanistan. Another point of
concern that arises here is whether the NWFP government has
the right to adopt measures like the Shariat Bill. Whereas some
think that any elected government can do so, many believe that,
“…not even the federal Parliament can claim legislature in
absolute terms.”438

This is not the first time that Sharia has been imposed in the
NWFP. In Dir district and Malakand Agency, Sharia has been
implemented forcefully. According to the State of Human Rights
in 2000, in the village of Dhog Darra Valley of Dir District, 73
cases were decided by the Shariat court set up in the area. Most
villagers were filing cases before this court rather than making
complaints to the police. There are accounts of how the Sharia

437
I. A. Rehman, “Look at the Hasba Bill Now,” Dawn, July 25, 2003.
438
Ibid.

252
court was established that clearly challenge the constitutional
laws.439

The commentary on the process of Islamisation in Pakistan

goes on to prove that there are many interpretations of the
religion and most interpretations are laden with political motives,
which have affected the status of women and minorities
consistently and negatively. However, the question remains, is
there room for reformation in Islam that can accord women
their rights or are human rights to be fought for within the
framework of secularisation?

5.3 The Shariah Debate

Riffat Hassan has challenged the notion that “human rights can
exist only within a secular context and not within the framework
of religion.”440 While Hassan has pointed out that there are
many sources that form the ‘Islamic Tradition’, she underscores
that the Qu’ran is the ‘Magna Carta’ of human rights and that a
large part of its concern is to free human beings from various
forms of oppression. Hassan talks about ‘General Rights’ that
Islam accords to all humanity; one of these is the Right to
Work— she quotes from the Quran, to illustrate the principle of
equality of the sexes thus established:

“...to men is allotted what they earn,

And to women what they earn.”[4:32]

439
Human Rights Commission of Pakistan, The State of Human Rights in 2000,
February, 2001.
440
Riffat Hassan, ‘Are Human Rights Compatible with Islam? The Issue of the
Rights of Women in Muslim Communities,’ http://www.religious
consultation.org/hassan 2.htm

253
She goes on to say that while the Qu’ran includes women’s rights
that are favorable, many of its women-related teachings have
been used against women rather than for them.441 Hassan asserts
that “rights created or given by God cannot be abolished by any
temporal ruler or human agency. Eternal and immutable, they
ought to be exercised since everything that God does is for ‘a
just purpose.’”

This reasoning is antithetical to what a Radical Islamic Reformist,

An-Na’im proposes. He considers that as more and more Muslim
countries witness movements to apply historic Sharia in their
domestic contexts, the question of the modern applicability of
Sharia arises.

“…if historical Sharia is applied today, the population of Muslim

countries would lose the most benefits of secularisation.
Moreover, current international law, including human rights
standards established there under, cannot coexist with
corresponding principles of Shari’a.”442

An-Na’im attempts to challenge the entire given structure of

historic Sharia and does not consider it sufficient to reform
some of its internal mechanisms alone.443 He proposes a
reinterpretation of the basic sources of Islam [the Quran (the
sacred book), Sunna (tradition of the Prophet), ijma (consensus),
and qiyas (reasoning by analogy)] according to a contemporary
understanding of society and human rights. This would mark an
immense change from the practice of most Muslims who follow
the medieval legal tradition of Sharia, or at least pay lip service

441
Ibid.
442
A.A. An-Na’im, Toward an Islamic Reformation: Civil Liberties, Human Rights,
and International Law, (Syracuse: Syracuse University Press, 1990).
443
Ibid., p.51.

254
to it and consider it inviolable and sacred, while following modern
secular law in their everyday lives.

Sharia is divided not only in the mainstream by four Sunni

mainstream madhahib, legal schools (Hanafi, Hanbali, Maliki,
Shafi’) but also further juristic divergences within these schools.
Nor have the primary sources and their use in formulating Sharia
always been agreed upon. Their authentication is difficult or
next to impossible today. Also, consensus is difficult to establish—
who should it involve in a modern context? These points are
considered by An-Na’im to be problematic and a grave
disadvantage in modern application.444

Ijtihad is a principle of traditional Islamic law and means

“independent juristic reasoning” on matters where the Quran
and Sunna are silent—it was a practice that was ‘closed off ’ after
the maturing of Sharia in the tenth century A.D. Many modernist
and reformist scholars of Islam argue for the re-opening of the
‘gates of ijtihad’ as a singular solution to modernise and reform
Sharia, but An-Na’im argues that: a wider, larger reformation of
Sharia take place and, that the two traditional conditions on the
practice of ijtihad be modified (traditionally exercised only when
the Quran and Sunna are silent on a matter, and not in a matter
where ijma, consensus, is applied).445

An-Na’im believes that under the rule of historic Sharia Muslim

women would definitely stand to lose the privileges and status
that they have enjoyed under secular public law, affecting their
participation in public life and benefits in private life would be
greatly diminished if historic Sharia were to be the ruling law.

444
Ibid., p.33.
445
Ibid., p.27.

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The status of women is highly debated amongst those Pakistanis
advocating the application of Sharia. While the “Absolutists and
Mawdudi see the whole of Sharia and jurisprudence as directly
applicable, Asad, Perwez, Hakim, and Javid Iqbal speak of the
Quran and Sunna as the basis of the law with room for
contemporary human discretion in its interpretation and
application.”446 Thus the Absolutists and Mawdudi agree on a
‘divine sanction’ to segregate women— even though the former
consider women completely outside the framework of public
life, and Mawdudi would allow them a limited participation
considering that segregation would be respected. Both these
positions are consistent with historic Sharia. In contrast, the
positions of the others allow women full participation in public
life on an equal footing with men—An-Nai’m argues that while
this represents the aspirations of many Muslims today, the stance
cannot be considered as representing the ‘correct’ view of historic
Sharia.447

The discrimination against women covers other spheres as well;

examples of discriminatory Sharia rules of personal and private
law that affect women, as noted by An-Nai’m include the
following:

A Muslim man may divorce his wife, or any of his wives, by

unilateral repudiation, talaq, without having to give any reasons
or justify his action to any person or authority. In contrast, a
Muslim woman can obtain divorce only by consent of the
husband or by judicial decree for limited specific grounds such
as the husband’s inability or unwillingness to provide for his
wife.

446
Ibid., p.38.
447
Ibid.

256
In inheritance, a Muslim woman receives less than the share of
a Muslim man when both have equal degree of relationship to
the deceased person.

A Muslim man may marry a Christian or Jewish woman, but a

Christian or Jewish man may not marry a Muslim woman. Both
Muslim men and women are precluded from marrying an
unbeliever, that is, one who does not believe in one of the
heavenly-revealed scriptures.448

At the same time, writers like Riffat Hassan, and Shaheen Sardar
Ali have noted that Islam grants a whole range of social,
economic and political rights to women that are not practiced,
and are also viewed in narrow terms as being definitive. In fact,
some of these rights can be seen as laying down normative
standards.

In the context of a country like Pakistan, the kind of Islamic

reforms that An-Naim envisages are far from being realised today
since there is no consensus on reforms within Islam. On the
other hand, it would equally be difficult to advocate for women’s
human rights in a secular context as religious groups are becoming
more politically assertive (see for example the NWFP Sharia’a
Bill). It may, however, be said that whatever the source of
lawmaking might be, the ideals and principles of social justice
and equality must not be overlooked. There are certain basic
principles that are universally accepted as desired standards of
justice. There should be no room to deviate from these basic
principles of respecting human dignity and giving it its due worth,
nor should any deviations from it be justified on the basis of
religion or by stating that Islam has laid down different norms
for justice and equality.

448
Ibid., p. 176.

257
In appendix V, a comparative analysis has been undertaken
between CEDAW, formal laws, customary practices and Sharia’a
to show that there are many points of convergence between the
women’s convention and Islam and some formal laws.

Comparative Analysis of Formal Laws, Customary Practices,

Sharia’a and CEDAW

As pointed out in the introduction, one of the objectives of this

study is to enhance the understanding of the linkages between
national laws, ‘religious’ and customary practices and the
marginalisation of women. For this purpose, the present study
analysed the points of convergence or divergence between
CEDAW, domestic law, Islamic law and the conflicting
discriminatory practices within one framework. This framework
consists of three common categories of laws: 1) Protective, 2)
Corrective and 3) Non-discriminatory Laws.449 The analysis is
presented in tabular form as appendix to this collection.

The previous sections entailed a detailed commentary of different

laws that affect women in Pakistan as well as the discriminatory
customary practices. Information and analysis from these sections
is reflected within the framework to assess points of commonality
as well as differences and asking ourselves the questions: where
are the gaps–why does implementation of laws favorable to
women, fail? What can be the role of CEDAW in implementing
women’s rights in Pakistan? One caveat to bear in mind while
examining the analytical framework is that only those formal
laws, Sharia or customary practices have been mentioned that

449
See S.S. Ali, ‘Conceptualising Islamic Law, CEDAW and Women’s Human
Rights in Plural Legal Settings: A Comparative Analysis of Application of
CEDAW in Bangladesh, India and Pakistan.’

258
are relevant to the 16 substantive articles of CEDAW. Therefore,
this analysis is by no means exhaustive.

Analysis and Observations

With the backdrop of the aforementioned comparative analysis,

one can argue that although there is a substantial degree of
agreement between CEDAW, Sharia and the formal laws of
Pakistan, there still remains an abysmal gap between theory and
practice. For instance, while many provisions of CEDAW are
replicated in the Constitution of Pakistan such as the definition
of discrimination, ‘equality before the law’, ‘equal protection of
the law’ and principles of affirmative action, there still exists a
severe lack of ‘proper implementation and enforcement
mechanisms’ that can safeguard the rights of citizens, particularly
those of women. Similarly, it has been observed that customary
practices have lead to disempowerment, and violence and honor
killings have constantly threatened the right to security. Yet, it
appears that there is no concrete action taken by the government
to eradicate this.

All three sets of laws reviewed i.e., formal laws, Islamic laws and
CEDAW, have a common aspect in that all laws are categorised
as ‘protective’, ‘corrective’ and ‘non-discriminatory’ (see definitions
of each above). However, where they do vary from each other
is the degree to which laws are deemed protective and in their
duration. While most CEDAW articles come under the ‘non-
discriminatory’ heading, most of the constitutional and Islamic
come under the ‘protective’ or corrective category. CEDAW also
limits the duration of protective laws whereas, there is no such
time limit in terms of National and so-called Islamic laws.

However, since Pakistan is a signatory to the convention, it has

become a State Party and has willingly accepted the implicit

259
responsibilities that are a part of it. It also means that Pakistan
has agreed to be scrutinised by the CEDAW Committee and to
submit a report every four years on the implementation status
of CEDAW. The procedure of reporting to the committee every
four years also means that the responsible authorities could use
this as a useful internal monitoring tool for gauging the status of
women’s rights on a regular basis.

Religion and the Sharia have undoubtedly dominated the political

processes of Pakistan. It is not clear what kind of Sharia was
being promoted by General Zia; equally vague are the policies
of NWFP. With no ijtehad, and little recognition of the school
of thought (madhahib) the Shariat Act belongs to, it is quite
reprehensible that a religion (Islam), which is considered sacred
and important, is misused arbitrarily for political expediency.
With regard to women’s political rights, there is no conflict
between the rights accorded to women by law or religion.
However, in terms of customary practices, women’s right to
vote is curtailed in some parts of Pakistan, although
constitutionally women have the right to vote and participate in
the political proceedings of the nation. Article 3 of CEDAW
supports women’s political rights and there is no bar on women’s
political participation within Islam.

On the other hand, customary practices have lead to

disempowerment, and violence and honor killings have constantly
threatened the right to security. Notwithstanding the lack of
concrete action taken by the government to eradicate this,
CEDAW demands that governments transform not only law, but
also the very societies within which these violations occur,
enforcing attitudinal changes. Informal settlement systems such
as jirgas and faislo are being increasingly used to settle disputes
that they were never meant to adjudicate. The sole purpose of
this system was to settle petty disputes and not criminal offenses.

260
According to the Constitution of Pakistan and Islam, there are
no prohibitions on women’s right to earn or to have control
over their income. The government of Pakistan has taken some
positive steps in this direction, such as the signing of the ILO
convention 100 for equal remuneration and the provision of
credit to women in rural areas through the Kushali Bank and the
First Women’s Bank. Article 11 of CEDAW pertains to economic
rights of women and emphasises the necessity of maternity
benefits, safe working conditions and the right to employment
of women, etc. Although both CEDAW and the National Laws
of Pakistan provide some safeguards to the rights of women
working in the formal sector, there are no existing laws (or
CEDAW articles) that can be applied to the informal sector. It
is primarily this sector, which affects poor women (and men).
Due to the fact that the majority of women do not have the
necessary qualifications or ‘approval’ from their families to enter
certain professions, they resort to menial jobs and domestic labour,
which do not come under any law.

Additionally, the Muslim Family Laws Ordinances 1961 and other

laws covering the political and economic rights of women are
not publicised and many women are unaware of their existence.
Similarly, while CEDAW recognises women’s reproductive and
productive labour to the extent that it advocates support for it,
there are no laws (national) or CEDAW articles that call for the
remuneration of women’s productive (informal) labour.

Another important area that sought recognition was a woman’s

right to inheritance. As spelt out in Islam (although there are
many interpretations of it), CEDAW Article 16 (g) supports it
on an equitable basis with men. The national laws in terms of
inheritance have been upheld in courts. These are based on the
personal laws of Shias and Sunnis. However, customary practice
is different from all of the above in that most women are either

261
not given their share of the property or are married (against
their wishes) within the family to retain control over the estate.

Recommendations
While Pakistan has shown its good will by signing CEDAW, it
must follow through on its commitment and institute proper
mechanisms to implement the substantive provisions of CEDAW,
enforce existing laws favorable to women, and repeal all
discriminatory legislation.
Any ‘protective’ legislation should be constituted for a limited
time and not entail any bans for the sake of protecting women
from certain kinds of jobs. The state should invest in devising
an enabling environment for women in this regard. There is a
need for more ‘corrective legislation’ with regard to women,
however, it should be kept in mind that the inherent challenge
in this is to be able to take note of differences between men and
women and to decide which measures to take that will in fact
facilitate equal access, control and equal results.
Since the constitution defines women as full and equal citizens
of Pakistan, no legal protection or safeguard under the guise of
‘Islam’ should be accorded to any customary practice that is
discriminatory towards women or any other disadvantaged group.
Furthermore, all barriers to women’s mobility and accessibility to
resources (economic, social, legal and political) need to be
removed, in order to allow them to participate as equal citizens
in the all spheres of life. Similarly, family laws need to be revised
to ensure women their rights. For example, the Nikahnama, a
legal contract can be incorporated to ensure an equitable
distribution of property at the time of divorce.450

Simi Kamal, The Interplay of Customary, Formal and Informal Laws on Women,
450

Raasta Development Consultants, 2002).

262
Also, there is a great and immediate need of providing legal
literacy to women about their rights. The government should
also take concrete measures against the tribal jirgas, panchayats
and faislos that dispense injustice to women, with special focus
on issues that pertain to the private domain such as domestic
violence, marriage, divorce and inheritance.

Finally, to conduct a roundtable discussion on the study with

the aim of seeking agreement between different stakeholders,
i.e., Ulemas, human rights activists, policymakers, politicians, etc,
on advocacy focusing on the elimination of discriminatory
practices that are outside the ambit of religion, law or universally
accepted standards of social justice. There should also be efforts
to involve the lower tiers, particularly in the judiciary and law
enforcement agencies, through advocacy campaigns and
awareness-raising initiatives so that personal biases are tackled
the grass-root levels.

263
264
 Part III

Implementation of CEDAW in
Bangladesh, India and Pakistan:
Conclusion

Shaheen Sardar Ali

Bangladesh, India and Pakistan as part of the South Asian region,
present a rich diversity of constitutive structures and social regimes
including religion, class, caste, ethnicity and political institutions
and constitutional structures. People of the region also share the
history of a common civilisation and colonial rule.451 Marked
similarities in the position of women in each of these countries
is reflective of the unity of approach within this diversity of
norms and legal systems, as well as the position adopted by
these countries in ratifying women’s human rights instruments
such as CEDAW.

Although all three studies shared common aims and objectives

as described above, each country study evolved a specific focus
and area of research and analysis vis-à-vis CEDAW. The backdrop
of the investigation is the reluctance of the three countries to
accede to CEDAW in its entirety, a position which they have
expressed by entering reservations. The main recommendation
from the three country studies is to reiterate that while
Bangladesh, India and Pakistan have shown their good will by
signing CEDAW, the respective governments must now follow
this commitment by instituting proper mechanisms to implement
the substantive provisions of CEDAW, enforce existing laws
favorable to women, repeal all discriminatory legislation and
withdraw reservations to CEDAW forthwith.

The findings of the studies were both interesting and challenging.

They highlight the ambivalence of governments and vast sections

451
The post-colonial era has been marked by a war between India and Pakistan
on Bangladesh – the histories of violence within the region has affected women
in the three countries; and whilst there are similarities there are discontinuities,
ruptures and silences as well where women’s histories lie buried and are equally
important to examine. These issues are important as they do not form the
subject of the present research.

266
of civil society towards human rights treaties emanating from
the UN and the fluid and fluctuating nature of women’s rights
and entitlements in South Asia. It also reinforces the assumption
that in plural legal systems, women-friendly spaces are few and
far between, and women’s human rights to equality and non-
discrimination remains a contested terrain despite ratification of
CEDAW by governments.

All three studies reveal how these plural systems collude to

undermine women’s human rights in their respective societies.
The most fragile ‘layer’ of equal rights to women is afforded
under the Constitutions of Bangladesh, India and Pakistan. The
constitutional framework also extends affirmative action measures
to bring women and other vulnerable groups into the mainstream
of national life. Yet this formal equality (in all three constitutions),
stands undermined by other ‘layers’ of law including some
statutory laws and customary practices.

The second ‘layer’ of regulatory norms, i.e., formal enactments

also conceptualise women as equal citizens of the state. The
exception to this is, first and foremost, the colonial formulation
of ‘religious laws’ known as personal status laws. By codifying
Islamic law, the rich variation and flexibility in interpreting the
religious text in Islam was lost and is a burden carried over to
the post-colonial era. The politics of identity in all three countries
led to a fossilisation of these laws and it has been difficult if not
impossible to challenge.

But, as reflected in the three case studies, it is the inner and most
tenacious ‘layer’ of custom, culture and tradition that discriminates
against women as a group. Customary practices are the key factor
in women’s disempowerment and violence against women and
killing in the name of honour are often justified or condoned
under the umbrella of customary law. It is pertinent to highlight

267
here the double-edged sword of devolution of political power
to local institutions. Whilst there is evidence that increasing
number of women are members of local councils, yet in a number
of instances, informal dispute resolution forums such as panchayats,
jirgas and faislo are being increasingly used to settle disputes that
they were never meant to adjudicate. The sole purpose of this
system was to settle petty disputes and not criminal offenses.
From the point of view of women’s access to justice, it is alarming
for these bodies to exercise the power bestowed on them because
the ‘justice’ and ‘law’ informing decisions of these bodies is
patriarchal and misogynist customary practices.

One of the ways forward would be to propose that equal access

to health facilities, education, employment, political participation
and safe mobility within the public space is arguably the most
effective strategy to translate formal equality into substantive
equality for women. Most women in the three countries under
review are not literate and unaware of what rights are available
to them under the legal system of their country. Legal literacy
and awareness-raising of women regarding their rights to equality
before law and equal protection of the law is critical for effective
implementation of domestic and international human rights
instruments. Equality in these areas will also help to ‘chip away’
slowly but surely, into customary norms that seek to keep women
invisible and disempowered.

Another common finding in the country studies is the (common)

policy of states to distance themselves from the familial sphere
of life irrespective of their nature and ideology. Thus the
governments in Bangladesh and Pakistan refrain from active
intervention in what is considered personal status laws on the
basis that Islamic law governs this aspect of its citizens’ lives
and the remit of governance is not to encroach upon this closely
guarded (predominantly male) territory. On the other hand, the

268
Indian government is loathe to intervene in family law matters
impacting on the lives of its Muslim citizens on the basis that
the Indian notion of secularism is an inclusive one and implies
non-interference in the personal status laws of religious minorities.
In all three jurisdictions, personal status laws governing marriage,
divorce, custody and guardianship, inheritance and succession
remains the last bastion of ‘Muslim’ identity whereas matters of
public life have been overtaken by ‘secular’ formulations of law.
Having said that, personal law has not remained static and while
legislation in Bangladesh, India and Pakistan has remained
minimal, all three case studies provide important insights into
the role of the judiciary in interpreting personal status laws.

Judicial activism has pushed the boundaries of what constitutes

Islamic law and rights of Muslim women. In all three case studies,
there is evidence that the superior judiciary (High Courts and
Supreme Court) has played an active role in addressing issues of
gender justice. This, however, is not the case with the subordinate
judiciary and law enforcement agencies, particularly at the lower
tiers, which require intense and extensive gender sensitisation.
Judgements in the Hudood cases in Pakistan is an example of
this trend.

Popular perception of the extent to which women possess equal

rights within the Islamic tradition ranges from a positive view to
a highly misogynous one. This opinion is held by both men and
women and reflected in the Bangladesh study. The possibility of
using the juristic technique of ijtihad to arrive at a progressive
and contemporary interpretation of Sharia also met with
lukewarm and different responses in Bangladesh and Pakistan.
Whilst respondents from Bangladesh did not generally favour
the route of ijtihad, Pakistani society appears more amenable to
such a course of action. In India, progressive interpretation of
the Quran or Hadith does not appear a possibility due to the

269
inflexible and inward looking approach of the so-called religious
leaders within the Muslim community who raised the cry of
Islam being in danger as they were in any case against reform.
Though large constituents of the Indian women’s movement has
been trying to argue for reform of personal law to make it just
and equal, their struggle has been long and difficult. For instance,
the infamous triple talaq is one of the most unjust formulations
of so-called Islamic law causing distress to numerous Muslim
women in India. In Pakistan, however, the Muslim Family Laws
Ordinance, 1961, outlaws the triple talaq. It is suggested that a
more proactive sharing of progressive interpretations of Islamic
law be introduced among the Muslim communities in India.

Violence against women (VAW) is an issue impacting adversely

on women’s lives. Specific laws to cover VAW have only recently
been highlighted and adopted in some of the countries under
review. Whilst CEDAW does not specifically mention violence
against women in its substantive articles, the definition of
discrimination is considered broad enough to be applied to VAW
as well. Furthermore, CEDAW Committee general comments
and concluding observations have supplemented this silence of
CEDAW as well as the Declaration on Violence Against Women
1993. Progressive and alternative interpretation of Islamic law
relating to violence against women are imperative especially in
view of the literal translation of verse 4:34 of the Quran
supposedly allowing violence against a wife by her husband.

Roundtable discussion on the study with the aim of seeking

agreement between different stakeholders, i.e., Ulemas, human
rights activists, policymakers, politicians, etc, on advocacy focusing
on the elimination of discriminatory practices that are outside
the ambit of religion, law or universally accepted standards of
social justice.

270
In summing up this analysis of the implementation of CEDAW
in plural legal systems of the South Asian region, it has to be
admitted that the journey on the road to equal rights for men
and women within the UN system and the countries round the
world has indeed come a long way. As the Indian chapter states,
this is a process where women are inching their way towards the
goal of equality and non-discrimination. At the international
level, from modest beginnings in the UN Charter and the UDHR,
the ICCPR and the ICESCR expanded on the concept. The
decades of the seventies, eighties and nineties lent tremendous
impetus to these initiatives and women’s human rights are
incapable of being ignored any more. The UN efforts were
greatly facilitated by the NGO community world wide though
timely interventions, particularly at the four world conferences
on women. Each conference expanded the boundaries of what
was the substantive content of women’s human rights to reach
in the final years of the 20th century, a point where virtually
every aspect of women’s lives are touched by the rights discourse.
CEDAW today is hailed as the International bill on women’s
rights and synthesises the numerous documents advancing
women’s rights. Although many problems persist, the major ones
relating to state sovereignty and weak and ineffective enforcement
mechanisms, yet a beginning has been made.

At the level of domestic law, the struggle to strengthen

implementation of women’s rights under the constitutional and
other provisions continues and has to reckon with poor or no
political will. These discriminatory laws can be challenged and
indeed are susceptible to modification. Religious laws and
customary practices, however, are the most difficult to address
as these have been internalised over the centuries and do not
lend themselves to easy change or even discussion. In recent
years, however, a robust challenge has been mounted against
these rigid formulations of women’s rights (or lack of them) by

271
Muslim women themselves. Whilst the path is uphill and the
task of challenging deeply held conviction delicate, a dent has
been made in an all male version of religion. From now on it
is a matter of consistent and persistent exploration of the
egalitarian and equitable spirit of the Islamic tradition of women’s
human rights and translating it into action.

272
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 About the Authors

Editor

Shaheen Sardar Ali, Professor of Law, University of Warwick,

UK and Professor II University of Oslo, Norway. She was
formerly Professor of Law, University of Peshawar, Pakistan.
Her teaching and research experience includes International Law
of Human Rights, Women’s Human Rights, Children’s Rights,
Islamic Law and Jurisprudence, Alternate Dispute Resolution
and Gender and the Law. She has been consultant to a range of
national and international organisations and UN agencies.
Professor Ali has served as Minister for Health, Population
Welfare and Women Development, Government of the North
West Frontier Province of Pakistan and Chair of Pakistan’s first
National Commission on the Status of Women. She served on
the Prime Minister’s Consultative Committee for Women
(Pakistan), and the Senate National Commission of Enquiry on
the Status of Women (Pakistan). Professor Ali has published
extensively in a number of areas including Human Rights, Islamic
Law, International Law, and Gender Studies. Some of her more
recent publications are: Gender and Human Rights in Islam and
International Law. Equal Before Allah, Unequal Before Man The
Hague:Kluwer Law International, 2000; Co-authored with Javaid
Rehman, Indigenous Peoples and Ethnic Minorities of Pakistan
Constitutional and Legal Perspectives Copenhagen: NIAS/Curzon
Press, 2001; The United Nations Convention on the Elimination of All
Forms of Discrimination Against Women, Islamic Law and Laws of
Pakistan: A Comparative Study, Peshawar: Shaheen Press, 1990.
Some Articles and chapters in books include ‘Legacies of
Common Law: Crimes of Honour in India and Pakistan’, Third
World Quarterly vol. 27, 2006; Co-authored with Pratiksha Baxi
and Shirin M. Rai; ‘The Concept of Jihad in Islamic International
Law’ Journal of Peace and Security Law Vol. 10 No. 3 2005.

286
Co-authored with Javaid Rehman; ‘Sigh of the Oppressed?
Islamisation of Laws in Pakistan: A case Study of the NWFP’
Yearbook of Islamic and Middle Eastern Law, Vol. 10, 2005; ‘Freedom
of Religion versus Equality in International Human Rights Law:
Conflicting Norms or Hierarchical Human Rights? (A case study
of Pakistan)’ Nordic Journal for Human Rights, Vol 21, 2003. Co-
authored with Javaid Rehman.

Authors

Mahmuda Islam, Professor of Sociology Dhaka University,

Bangladesh, also teaches at the department of Women and
Gender Studies of the same university as part-time faculty.
Professor Islam is the President of Women for Women: A
Research and Study Group. She is a feminist researcher and
women’s rights activist. She has conducted policy research as
well as field research since the early 1970s. Professor Islam was
extensively involved in the pre-Beijing preparatory processes,
Beijing plus process at the national and regional levels. She was
also actively involved with the formulation of the Bangladesh
National Action Plan for Advancement of Women:
Implementation of Beijing Platform for Action. She has worked
as national and international consultant for the United Nations
and other international agencies. She has been actively involved
with the national women’s movement. In addition to this, she
has also played a dynamic role in various regional networks, such
as South Asia Women Watch, Asia Pacific Women Watch, South
Asia Association of Women’s Studies. She has also been a visiting
professor and guest speaker at the Southern Illinois University in
the United States

Yasmin Zaidi, based in Islamabad, Pakistan, Zaidi is a social

activist and has worked extensively on women’s rights, gender
and social development. She is a member of regional and national

287
networks and is a founding member of Mubariza, the national
network of gender trainers and activists in Pakistan, and of
SANGAT which works at the regional level in South Asia. An
active gender trainer and researcher, she has been part of a
number of studies on reproductive health and gender concerns,
in particular violence against women. Zaidi works as a consultant
and has designed, reviewed and monitored programs and projects
from a gender perspective in areas of rural development, health,
education and governance.

Fatimah Ihsan has been working in the development sector on

issues related to gender, governance, and human rights for a
number of years with different international organisations in
various capacities and as a freelance consultant. Currently she is
working as Gender and Policy Advisor for ActionAid Pakistan’s
Emergency and Reconstruction Project to highlight the rights of
people affected by the South Asia quake of 2005. She is
also visiting faculty in Iqra University, Islamabad where she teaches
Gender and Development.

Kirti Singh is a lawyer and activist working on women’s issues

in Delhi, India. Her area of specialisation is Family and Human
Rights Law. She is currently the Legal Convener of the All India
Democratic Women’s Association and has also been working for
reforms in laws concerning women & children.

Sumaiya Musharraf is a lawyer practicing at the Delhi High

Court and in the Matrimonial and Guardianship Courts in Delhi.

Maimoona Mullah is an activist and State Committee Member

of the Janvadi Mahila Samiti in Delhi. She is also a member of
the Muslim Women’s Sub-Committee of the All India Democratic
Women’s Association.

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 APPENDIX I

Text of CEDAW

CONVENTION ON THE ELIMINATION OF ALL

FORMS OF DISCRIMINATION AGAINST WOMEN
The States Parties to the present Convention,
Noting that the Charter of the United Nations reaffirms faith in
fundamental human rights, in the dignity and worth of the human
person and in the equal rights of men and women,
Noting that the Universal Declaration of Human Rights affirms
the principle of the inadmissibility of discrimination and
proclaims that all human beings are born free and equal in dignity
and rights and that everyone is entitled to all the rights and
freedoms set forth therein, without distinction of any kind,
including distinction based on sex,
Noting that the States Parties to the International Covenants on
Human Rights have the obligation to ensure the equal rights of
men and women to enjoy all economic, social, cultural, civil and
political rights,
Considering the international conventions concluded under the
auspices of the United Nations and the specialized agencies
promoting equality of rights of men and women,
Noting also the resolutions, declarations and recommendations
adopted by the United Nations and the specialized agencies
promoting equality of rights of men and women,
Concerned, however, that despite these various instruments
extensive discrimination against women continues to exist,

289
Recalling that discrimination against women violates the principles
of equality of rights and respect for human dignity, is an obstacle
to the participation of women, on equal terms with men, in the
political, social, economic and cultural life of their countries,
hampers the growth of the prosperity of society and the family
and makes more difficult the full development of the potentialities
of women in the service of their countries and of humanity,
Concerned that in situations of poverty women have the least
access to food, health, education, training and opportunities for
employment and other needs,
Convinced that the establishment of the new international
economic order based on equity and justice will contribute
significantly towards the promotion of equality between men
and women,
Emphasizing that the eradication of apartheid, all forms of
racism, racial discrimination, colonialism, neo-colonialism,
aggression, foreign occupation and domination and interference
in the internal affairs of States is essential to the full enjoyment
of the rights of men and women,
Affirming that the strengthening of international peace and
security, the relaxation of international tension, mutual co-
operation among all States irrespective of their social and
economic systems, general and complete disarmament, in
particular nuclear disarmament under strict and effective
international control, the affirmation of the principles of justice,
equality and mutual benefit in relations among countries and the
realization of the right of peoples under alien and colonial
domination and foreign occupation to self-determination and
independence, as well as respect for national sovereignty and
territorial integrity, will promote social progress and development

290
and as a consequence will contribute to the attainment of full
equality between men and women,
Convinced that the full and complete development of a country,
the welfare of the world and the cause of peace require the
maximum participation of women on equal terms with men in
all fields,
Bearing in mind the great contribution of women to the welfare
of the family and to the development of society, so far not fully
recognized, the social significance of maternity and the role of
both parents in the family and in the upbringing of children,
and aware that the role of women in procreation should not be
a basis for discrimination but that the upbringing of children
requires a sharing of responsibility between men and women
and society as a whole,
Aware that a change in the traditional role of men as well as the
role of women in society and in the family is needed to achieve
full equality between men and women,
Determined to implement the principles set forth in the
Declaration on the Elimination of Discrimination against Women
and, for that purpose, to adopt the measures required for the
elimination of such discrimination in all its forms and
manifestations,
Have agreed on the following:
PART I

Article I

For the purposes of the present Convention, the term

“discrimination against women” shall mean any distinction,
exclusion or restriction made on the basis of sex which has the
effect or purpose of impairing or nullifying the recognition,

291
enjoyment or exercise by women, irrespective of their marital
status, on a basis of equality of men and women, of human
rights and fundamental freedoms in the political, economic, social,
cultural, civil or any other field.

Article 2

States Parties condemn discrimination against women in all its

forms, agree to pursue by all appropriate means and without
delay a policy of eliminating discrimination against women and,
to this end, undertake:
(a) To embody the principle of the equality of men and women
in their national constitutions or other appropriate legislation
if not yet incorporated therein and to ensure, through law
and other appropriate means, the practical realization of
this principle;
(b) To adopt appropriate legislative and other measures, including
sanctions where appropriate, prohibiting all discrimination
against women;
(c) To establish legal protection of the rights of women on an
equal basis with men and to ensure through competent
national tribunals and other public institutions the effective
protection of women against any act of discrimination;
(d) To refrain from engaging in any act or practice of
discrimination against women and to ensure that public
authorities and institutions shall act in conformity with this
obligation;
(e) To take all appropriate measures to eliminate discrimination
against women by any person, organization or enterprise;

292
(f) To take all appropriate measures, including legislation, to
modify or abolish existing laws, regulations, customs and
practices which constitute discrimination against women;
(g) To repeal all national penal provisions which constitute
discrimination against women.

Article 3

States Parties shall take in all fields, in particular in the political,

social, economic and cultural fields, all appropriate measures,
including legislation, to en sure the full development and
advancement of women , for the purpose of guaranteeing them
the exercise and enjoyment of human rights and fundamental
freedoms on a basis of equality with men.

Article 4

1. Adoption by States Parties of temporary special measures

aimed at accelerating de facto equality between men and
women shall not be considered discrimination as defined in
the present Convention, but shall in no way entail as a
consequence the maintenance of unequal or separate
standards; these measures shall be discontinued when the
objectives of equality of opportunity and treatment have
been achieved.

2. Adoption by States Parties of special measures, including

those measures contained in the present Convention, aimed
at protecting maternity shall not be considered discriminatory.

Article 5

States Parties shall take all appropriate measures:

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(a) To modify the social and cultural patterns of conduct of
men and women, with a view to achieving the elimination
of prejudices and customary and all other practices which
are based on the idea of the inferiority or the superiority of
either of the sexes or on stereotyped roles for men and
women;

(b) To ensure that family education includes a proper

understanding of maternity as a social function and the
recognition of the common responsibility of men and
women in the upbringing and development of their children,
it being understood that the interest of the children is the
primordial consideration in all cases.

Article 6

States Parties shall take all appropriate measures, including

legislation, to suppress all forms of traffic in women and
exploitation of prostitution of women.

PART II

Article 7

States Parties shall take all appropriate measures to eliminate

discrimination against women in the political and public life of
the country and, in particular, shall ensure to women, on equal
terms with men, the right:
(a) To vote in all elections and public referenda and to be
eligible for election to all publicly elected bodies;
(b) To participate in the formulation of government policy and
the implementation thereof and to hold public office and
perform all public functions at all levels of government;

294
(c) To participate in non-governmental organizations and
associations concerned with the public and political life of
the country.

Article 8

States Parties shall take all appropriate measures to ensure to

women, on equal terms with men and without any discrimination,
the opportunity to represent their Governments at the
international level and to participate in the work of international
organizations.

Article 9
1. States Parties shall grant women equal rights with men to
acquire, change or retain their nationality. They shall ensure
in particular that neither marriage to an alien nor change of
nationality by the husband during marriage shall automatically
change the nationality of the wife, render her stateless or
force upon her the nationality of the husband.
2. States Parties shall grant women equal rights with men with
respect to the nationality of their children.

PART III

Article 10

States Parties shall take all appropriate measures to eliminate

discrimination against women in order to ensure to them equal
rights with men in the field of education and in particular to
ensure, on a basis of equality of men and women:
(a) The same conditions for career and vocational guidance,
for access to studies and for the achievement of diplomas
in educational establishments of all categories in rural as
well as in urban areas; this equality shall be ensured in pre-

295
 school, general, technical, professional and higher technical
education, as well as in all types of vocational training;
(b) Access to the same curricula, the same examinations, teaching
staff with qualifications of the same standard and school
premises and equipment of the same quality;
(c) The elimination of any stereotyped concept of the roles of
men and women at all levels and in all forms of education
by encouraging coeducation and other types of education
which will help to achieve this aim and, in particular, by the
revision of textbooks and school programmes and the
adaptation of teaching methods;
(d) The same opportunities to benefit from scholarships and
other study grants;
(e) The same opportunities for access to programmes of
continuing education, including adult and functional literacy
programmes, particulary those aimed at reducing, at the
earliest possible time, any gap in education existing between
men and women;
(f) The reduction of female student drop-out rates and the
organization of programmes for girls and women who have
left school prematurely;

(g) The same Opportunities to participate actively in sports and

physical education;
(h) Access to specific educational information to help to ensure
the health and well-being of families, including information
and advice on family planning.

Article 11

1. States Parties shall take all appropriate measures to eliminate

discrimination against women in the field of employment in

296
 order to ensure, on a basis of equality of men and women,
the same rights, in particular:
(a) The right to work as an inalienable right of all human
beings;
(b) The right to the same employment opportunities, including
the application of the same criteria for selection in matters
of employment;
(c) The right to free choice of profession and employment, the
right to promotion, job security and all benefits and
conditions of service and the right to receive vocational
training and retraining, including apprenticeships, advanced
vocational training and recurrent training;
(d) The right to equal remuneration, including benefits, and to
equal treatment in respect of work of equal value, as well
as equality of treatment in the evaluation of the quality of
work;
(e) The right to social security, particularly in cases of retirement,
unemployment, sickness, invalidity and old age and other
incapacity to work, as well as the right to paid leave;
(f) The right to protection of health and to safety in working
conditions, including the safeguarding of the function of
reproduction.

2. In order to prevent discrimination against women on the

grounds of marriage or maternity and to ensure their
effective right to work, States Parties shall take appropriate
measures:
(a) To prohibit, subject to the imposition of sanctions, dismissal
on the grounds of pregnancy or of maternity leave and
discrimination in dismissals on the basis of marital status;
(b) To introduce maternity leave with pay or with comparable
social benefits without loss of former employment, seniority
or social allowances;

297
(c) To encourage the provision of the necessary supporting
social services to enable parents to combine family
obligations with work responsibilities and participation in
public life, in particular through promoting the establishment
and development of a network of child-care facilities;
(d) To provide special protection to women during pregnancy
in types of work proved to be harmful to them.
3. Protective legislation relating to matters covered in this article
shall be reviewed periodically in the light of scientific and
technological knowledge and shall be revised, repealed or
extended as necessary.

Article 12
1. States Parties shall take all appropriate measures to eliminate
discrimination against women in the field of health care in
order to ensure, on a basis of equality of men and women,
access to health care services, including those related to
family planning.
2. Notwithstanding the provisions of paragraph I of this article,
States Parties shall ensure to women appropriate services in
connection with pregnancy, confinement and the post-natal
period, granting free services where necessary, as well as
adequate nutrition during pregnancy and lactation.

Article 13

States Parties shall take all appropriate measures to eliminate

discrimination against women in other areas of economic and
social life in order to ensure, on a basis of equality of men and
women, the same rights, in particular:
(a) The right to family benefits;
(b) The right to bank loans, mortgages and other forms of
financial credit;

298
(c) The right to participate in recreational activities, sports and
all aspects of cultural life.

Article 14
1. States Parties shall take into account the particular problems
faced by rural women and the significant roles which rural
women play in the economic survival of their families,
including their work in the non-monetized sectors of the
economy, and shall take all appropriate measures to ensure
the application of the provisions of the present Convention
to women in rural areas.
2. States Parties shall take all appropriate measures to eliminate
discrimination against women in rural areas in order to
ensure, on a basis of equality of men and women, that they
participate in and benefit from rural development and, in
particular, shall ensure to such women the right:
(a) To participate in the elaboration and implementation of
development planning at all levels;
(b) To have access to adequate health care facilities, including
information, counselling and services in family planning;
(c) To benefit directly from social security programmes;
(d) To obtain all types of training and education, formal and
non-formal, including that relating to functional literacy, as
well as, inter alia, the benefit of all community and extension
services, in order to increase their technical proficiency;
(e) To organize self-help groups and co-operatives in order to
obtain equal access to economic opportunities through
employment or self employment;
(f) To participate in all community activities;
(g) To have access to agricultural credit and loans, marketing
facilities, appropriate technology and equal treatment in land
and agrarian reform as well as in land resettlement schemes;

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(h) To enjoy adequate living conditions, particularly in relation
to housing, sanitation, electricity and water supply, transport
and communications.

PART IV
Article 15
1. States Parties shall accord to women equality with men before
the law.
2. States Parties shall accord to women, in civil matters, a legal
capacity identical to that of men and the same opportunities
to exercise that capacity. In particular, they shall give women
equal rights to conclude contracts and to administer property
and shall treat them equally in all stages of procedure in
courts and tribunals.
3. States Parties agree that all contracts and all other private
instruments of any kind with a legal effect which is directed
at restricting the legal capacity of women shall be deemed
null and void.
4. States Parties shall accord to men and women the same
rights with regard to the law relating to the movement of
persons and the freedom to choose their residence and
domicile.

Article 16
1. States Parties shall take all appropriate measures to eliminate
discrimination against women in all matters relating to
marriage and family relations and in particular shall ensure,
on a basis of equality of men and women:
(a) The same right to enter into marriage;
(b) The same right freely to choose a spouse and to enter into
marriage only with their free and full consent;

300
(c) The same rights and responsibilities during marriage and at
its dissolution;
(d) The same rights and responsibilities as parents, irrespective
of their marital status, in matters relating to their children;
in all cases the interests of the children shall be paramount;
(e) The same rights to decide freely and responsibly on the
number and spacing of their children and to have access to
the information, education and means to enable them to
exercise these rights;
(f) The same rights and responsibilities with regard to
guardianship, wardship, trusteeship and adoption of children,
or similar institutions where these concepts exist in national
legislation; in all cases the interests of the children shall be
paramount;
(g) The same personal rights as husband and wife, including
the right to choose a family name, a profession and an
occupation;
(h) The same rights for both spouses in respect of the ownership,
acquisition, management, administration, enjoyment and
disposition of property, whether free of charge or for a
valuable consideration.
2. The betrothal and the marriage of a child shall have no
legal effect, and all necessary action, including legislation,
shall be taken to specify a minimum age for marriage and
to make the registration of marriages in an official registry
compulsory.

PART V

Article 17
1. For the purpose of considering the progress made in the
implementation of the present Convention, there shall be

301
 established a Committee on the Elimination of
Discrimination against Women (hereinafter referred to as
the Committee) consisting, at the time of entry into force
of the Convention, of eighteen and, after ratification of or
accession to the Convention by the thirty-fifth State Party,
of twenty-three experts of high moral standing and
competence in the field covered by the Convention. The
experts shall be elected by States Parties from among their
nationals and shall serve in their personal capacity,
consideration being given to equitable geographical
distribution and to the representation of the different forms
of civilization as well as the principal legal systems.
2. The members of the Committee shall be elected by secret
ballot from a list of persons nominated by States Parties.
Each State Party may nominate one person from among its
own nationals.
3. The initial election shall be held six months after the date
of the entry into force of the present Convention. At least
three months before the date of each election the Secretary-
General of the United Nations shall address a letter to the
States Parties inviting them to submit their nominations
within two months. The Secretary-General shall prepare a
list in alphabetical order of all persons thus nominated,
indicating the States Parties which have nominated them,
and shall submit it to the States Parties.
4. Elections of the members of the Committee shall be held
at a meeting of States Parties convened by the Secretary-
General at United Nations Headquarters. At that meeting,
for which two thirds of the States Parties shall constitute a
quorum, the persons elected to the Committee shall be those
nominees who obtain the largest number of votes and an
absolute majority of the votes of the representatives of
States Parties present and voting.

302
5. The members of the Committee shall be elected for a term
of four years. However, the terms of nine of the members
elected at the first election shall expire at the end of two
years; immediately after the first election the names of these
nine members shall be chosen by lot by the Chairman of
the Committee.
6. The election of the five additional members of the
Committee shall be held in accordance with the provisions
of paragraphs 2, 3 and 4 of this article, following the thirty-
fifth ratification or accession. The terms of two of the
additional members elected on this occasion shall expire at
the end of two years, the names of these two members
having been chosen by lot by the Chairman of the
Committee.
7. For the filling of casual vacancies, the State Party whose
expert has ceased to function as a member of the Committee
shall appoint another expert from among its nationals, subject
to the approval of the Committee.
8. The members of the Committee shall, with the approval of
the General Assembly, receive emoluments from United
Nations resources on such terms and conditions as the
Assembly may decide, having regard to the importance of
the Committee’s responsibilities.

9. The Secretary-General of the United Nations shall provide

the necessary staff and facilities for the effective performance
of the functions of the Committee under the present
Convention.

Article 18
1. States Parties undertake to submit to the Secretary-General
of the United Nations, for consideration by the Committee,
a report on the legislative, judicial, administrative or other

303
 measures which they have adopted to give effect to the
provisions of the present Convention and on the progress
made in this respect:
(a) Within one year after the entry into force for the State
concerned;
(b) Thereafter at least every four years and further whenever
the Committee so requests.
2. Reports may indicate factors and difficulties affecting the
degree of fulfilment of obligations under the present
Convention.

Article 19
1. The Committee shall adopt its own rules of procedure.
2. The Committee shall elect its officers for a term of two
years.

Article 20
1. The Committee shall normally meet for a period of not
more than two weeks annually in order to consider the
reports submitted in accordance with article 18 of the present
Convention.
2. The meetings of the Committee shall normally be held at
United Nations Headquarters or at any other convenient
place as determined by the Committee. (amendment, status
of ratification)

Article 21
1. The Committee shall, through the Economic and Social
Council, report annually to the General Assembly of the
United Nations on its activities and may make suggestions
and general recommendations based on the examination of
reports and information received from the States Parties.
Such suggestions and general recommendations shall be

304
 included in the report of the Committee together with
comments, if any, from States Parties.
2. The Secretary-General of the United Nations shall transmit
the reports of the Committee to the Commission on the
Status of Women for its information.

Article 22

The specialized agencies shall be entitled to be represented at

the consideration of the implementation of such provisions of
the present Convention as fall within the scope of their activities.
The Committee may invite the specialized agencies to submit
reports on the implementation of the Convention in areas falling
within the scope of their activities.

PART VI

Article 23

Nothing in the present Convention shall affect any provisions

that are more conducive to the achievement of equality between
men and women which may be contained:
(a) In the legislation of a State Party; or
(b) In any other international convention, treaty or agreement
in force for that State.

Article 24

States Parties undertake to adopt all necessary measures at the

national level aimed at achieving the full realization of the rights
recognized in the present Convention.

Article 25
1. The present Convention shall be open for signature by all
States.

305
2. The Secretary-General of the United Nations is designated
as the depositary of the present Convention.
3. The present Convention is subject to ratification. Instruments
of ratification shall be deposited with the Secretary-General
of the United Nations.
4. The present Convention shall be open to accession by all
States. Accession shall be effected by the deposit of an
instrument of accession with the Secretary-General of the
United Nations.

Article 26
1. A request for the revision of the present Convention may
be made at any time by any State Party by means of a
notification in writing addressed to the Secretary-General
of the United Nations.
2. The General Assembly of the United Nations shall decide
upon the steps, if any, to be taken in respect of such a
request.

Article 27
1. The present Convention shall enter into force on the thirtieth
day after the date of deposit with the Secretary-General of
the United Nations of the twentieth instrument of
ratification or accession.
2. For each State ratifying the present Convention or acceding
to it after the deposit of the twentieth instrument of
ratification or accession, the Convention shall enter into
force on the thirtieth day after the date of the deposit of
its own instrument of ratification or accession.

306
Article 28
1. The Secretary-General of the United Nations shall receive
and circulate to all States the text of reservations made by
States at the time of ratification or accession.
2. A reservation incompatible with the object and purpose of
the present Convention shall not be permitted.
3. Reservations may be withdrawn at any time by notification
to this effect addressed to the Secretary-General of the
United Nations, who shall then inform all States thereof.
Such notification shall take effect on the date on which it
is received.

Article 29
1. Any dispute between two or more States Parties concerning
the interpretation or application of the present Convention
which is not settled by negotiation shall, at the request of
one of them, be submitted to arbitration. If within six
months from the date of the request for arbitration the
parties are unable to agree on the organization of the
arbitration, any one of those parties may refer the dispute
to the International Court of Justice by request in conformity
with the Statute of the Court.
2. Each State Party may at the time of signature or ratification
of the present Convention or accession thereto declare that
it does not consider itself bound by paragraph I of this
article. The other States Parties shall not be bound by that
paragraph with respect to any State Party which has made
such a reservation.
3. Any State Party which has made a reservation in accordance
with paragraph 2 of this article may at any time withdraw
that reservation by notification to the Secretary-General of
the United Nations.

307
Article 30

The present Convention, the Arabic, Chinese, English, French,

Russian and Spanish texts of which are equally authentic, shall
be deposited with the Secretary-General of the United Nations.
IN WITNESS WHEREOF the undersigned, duly authorized,
have signed the present Convention.

Source: http://www.un.org/womenwatch/daw/cedaw/
text/econvention.htm

308
 APPENDIX II

Text of the Optional Protocol to CEDAW Optional Protocol to

the Convention on the Elimination of Discrimination against
Women Adopted by General Assembly resolution A/54/4 on
6 October 1999 and opened for signature on 10 December
1999, Human Rights Day entry into force 22 December 2000

The States Parties to the Present Protocol

Noting that the Charter of the United Nations reaffirms faith in

fundamental human rights, in the dignity and worth of the human
person and in the equal rights of men and women,

Also noting that the Universal Declaration of Human Rights

Resolution 217 A (III). proclaims that all human beings are born
free and equal in dignity and rights and that everyone is entitled
to all the rights and freedoms set forth therein, without distinction
of any kind, including distinction based on sex,

Recalling that the International Covenants on Human Rights

Resolution 2200 A (XXI), annex. and other international human
rights instruments prohibit discrimination on the basis of sex,

Also recalling the Convention on the Elimination of All Forms

of Discrimination against Women4 (“the Convention”), in which
the States Parties thereto condemn discrimination against women
in all its forms and agree to pursue by all appropriate means and
without delay a policy of eliminating discrimination against
women,

Reaffirming their determination to ensure the full and equal

enjoyment by women of all human rights and fundamental
freedoms and to take effective action to prevent violations of
these rights and freedoms,

309
Have agreed as follows:

Article 1

A State Party to the present Protocol (“State Party”) recognizes

the competence of the Committee on the Elimination of
Discrimination against Women (“the Committee”) to receive
and consider communications submitted in accordance with
article 2.

Article 2

Communications may be submitted by or on behalf of individuals

or groups of individuals, under the jurisdiction of a State Party,
claiming to be victims of a violation of any of the rights set
forth in the Convention by that State Party. Where a
communication is submitted on behalf of individuals or groups
of individuals, this shall be with their consent unless the author
can justify acting on their behalf without such consent.

Article 3

Communications shall be in writing and shall not be anonymous.

No communication shall be received by the Committee if it
concerns a State Party to the Convention that is not a party to
the present Protocol.

Article 4
1. The Committee shall not consider a communication unless
it has ascertained that all available domestic remedies have
been exhausted unless the application of such remedies is
unreasonably prolonged or unlikely to bring effective relief.
2. The Committee shall declare a communication inadmissible
where:

310
(a) The same matter has already been examined by the
Committee or has been or is being examined under another
procedure of international investigation or settlement;
(b) It is incompatible with the provisions of the Convention;
(c) It is manifestly ill-founded or not sufficiently substantiated;
(d) It is an abuse of the right to submit a communication;
(e) The facts that are the subject of the communication occurred
prior to the entry into force of the present Protocol for the
State Party concerned unless those facts continued after
that date.

Article 5
1. At any time after the receipt of a communication and before
a determination on the merits has been reached, the
Committee may transmit to the State Party concerned for
its urgent consideration a request that the State Party take
such interim measures as may be necessary to avoid possible
irreparable damage to the victim or victims of the alleged
violation.
2. Where the Committee exercises its discretion under
paragraph 1 of the present article, this does not imply a
determination on admissibility or on the merits of the
communication.

Article 6
1. Unless the Committee considers a communication
inadmissible without reference to the State Party concerned,
and provided that the individual or individuals consent to
the disclosure of their identity to that State Party, the
Committee shall bring any communication submitted to it
under the present Protocol confidentially to the attention
of the State Party concerned.

311
2. Within six months, the receiving State Party shall submit to
the Committee written explanations or statements clarifying
the matter and the remedy, if any, that may have been
provided by that State Party.

Article 7
1. The Committee shall consider communications received
under the present Protocol in the light of all information
made available to it by or on behalf of individuals or groups
of individuals and by the State Party concerned, provided
that this information is transmitted to the parties concerned.
2. The Committee shall hold closed meetings when examining
communications under the present Protocol.
3. After examining a communication, the Committee shall
transmit its views on the communication, together with its
recommendations, if any, to the parties concerned.
4. The State Party shall give due consideration to the views of
the Committee, together with its recommendations, if any,
and shall submit to the Committee, within six months, a
written response, including information on any action taken
in the light of the views and recommendations of the
Committee.
5. The Committee may invite the State Party to submit further
information about any measures the State Party has taken
in response to its views or recommendations, if any, including
as deemed appropriate by the Committee, in the State Party’s
subsequent reports under article 18 of the Convention.

Article 8
1. If the Committee receives reliable information indicating
grave or systematic violations by a State Party of rights set
forth in the Convention, the Committee shall invite that

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 State Party to cooperate in the examination of the
information and to this end to submit observations with
regard to the information concerned.
2. Taking into account any observations that may have been
submitted by the State Party concerned as well as any other
reliable information available to it, the Committee may
designate one or more of its members to conduct an inquiry
and to report urgently to the Committee. Where warranted
and with the consent of the State Party, the inquiry may
include a visit to its territory.
3. After examining the findings of such an inquiry, the
Committee shall transmit these findings to the State Party
concerned together with any comments and
recommendations.
4. The State Party concerned shall, within six months of
receiving the findings, comments and recommendations
transmitted by the Committee, submit its observations to
the Committee.
5. Such an inquiry shall be conducted confidentially and the
cooperation of the State Party shall be sought at all stages
of the proceedings.

Article 9
1. The Committee may invite the State Party concerned to
include in its report under article 18 of the Convention
details of any measures taken in response to an inquiry
conducted under article 8 of the present Protocol.
2. The Committee may, if necessary, after the end of the period
of six months referred to in article 8.4, invite the State
Party concerned to inform it of the measures taken in
response to such an inquiry.

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Article 10
1. Each State Party may, at the time of signature or ratification
of the present Protocol or accession thereto, declare that it
does not recognize the competence of the Committee
provided for in articles 8 and 9.
2. Any State Party having made a declaration in accordance
with paragraph 1 of the present article may, at any time,
withdraw this declaration by notification to the Secretary-
General.

Article 11

A State Party shall take all appropriate steps to ensure that

individuals under its jurisdiction are not subjected to ill treatment
or intimidation as a consequence of communicating with the
Committee pursuant to the present Protocol.

Article 12

The Committee shall include in its annual report under article 21

of the Convention a summary of its activities under the present
Protocol.

Article 13

Each State Party undertakes to make widely known and to give

publicity to the Convention and the present Protocol and to
facilitate access to infor mation about the views and
recommendations of the Committee, in particular, on matters
involving that State Party.

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Article 14

The Committee shall develop its own rules of procedure to be

followed when exercising the functions conferred on it by the
present Protocol.

Article 15
1. The present Protocol shall be open for signature by any
State that has signed, ratified or acceded to the Convention.
2. The present Protocol shall be subject to ratification by any
State that has ratified or acceded to the Convention.
Instruments of ratification shall be deposited with the
Secretary-General of the United Nations.
3. The present Protocol shall be open to accession by any
State that has ratified or acceded to the Convention.
4. Accession shall be effected by the deposit of an instrument
of accession with the Secretary-General of the United
Nations.

Article 16
1. The present Protocol shall enter into force three months
after the date of the deposit with the Secretary-General of
the United Nations of the tenth instrument of ratification
or accession.
2. For each State ratifying the present Protocol or acceding to
it after its entry into force, the present Protocol shall enter
into force three months after the date of the deposit of its
own instrument of ratification or accession.

Article 17

No reservations to the present Protocol shall be permitted.

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Article 18
1. Any State Party may propose an amendment to the present
Protocol and file it with the Secretary-General of the United
Nations. The Secretary-General shall thereupon communicate
any proposed amendments to the States Parties with a request
that they notify her or him whether they favour a conference
of States Parties for the purpose of considering and voting
on the proposal. In the event that at least one third of the
States Parties favour such a conference, the Secretary-General
shall convene the conference under the auspices of the
United Nations. Any amendment adopted by a majority of
the States Parties present and voting at the conference shall
be submitted to the General Assembly of the United Nations
for approval.
2. Amendments shall come into force when they have been
approved by the General Assembly of the United Nations
and accepted by a two-thirds majority of the States Parties
to the present Protocol in accordance with their respective
constitutional processes.
3. When amendments come into force, they shall be binding
on those States Parties that have accepted them, other States
Parties still being bound by the provisions of the present
Protocol and any earlier amendments that they have
accepted.

Article 19
1. Any State Party may denounce the present Protocol at any
time by written notification addressed to the Secretary-
General of the United Nations. Denunciation shall take
effect six months after the date of receipt of the notification
by the Secretary-General.

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2. Denunciation shall be without prejudice to the continued
application of the provisions of the present Protocol to any
communication submitted under article 2 or any inquiry
initiated under article 8 before the effective date of
denunciation.

Article 20

The Secretary-General of the United Nations shall inform all

States of:
(a) Signatures, ratifications and accessions under the present
Protocol;
(b) The date of entry into force of the present Protocol and
of any amendment under article 18;
(c) Any denunciation under article 19.

Article 21

1. The present Protocol, of which the Arabic, Chinese, English,

French, Russian and Spanish texts are equally authentic, shall
be deposited in the archives of the United Nations.

2. The Secretary-General of the United Nations shall transmit

certified copies of the present Protocol to all States referred
to in article 25 of the Convention.

Source:http://www.iwraw-ap.org/protocol/text_english.htm

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 APPENDIX III

CEDAW and Bangladesh Study Questionnaire

The questionnaire is in Bangla. Quotations from the Quran and

its interpretation are taken from Holy Quranul Karim, Bangla
Translation and Interpretation printed under instructions and
patronage of King Fahd of Saudi Arabia. The Following is a
summarised English rendering of the Bangla text.

In 1979, UNO adopted CEDAW with a view to ameliorating

the conditions of women. Many Muslim countries ratified the
convention. Bangladesh also ratified the CEDAW except Articles
2 and 16.1 (c).

The purpose of the study is to explore the possibilities of full

ratification of CEDAW by the government of Bangladesh
including the Articles 2 and 16.1 (c).

Please go through the CEDAW attached with the questionnaire.

Article 2

Article 2 of CEDAW declares equal rights of men and women

and aims at elimination of all discrimination between men and
women and establishment of equality among them.

(1) In the Holy Quran, verse 228, Sura Al-Baquara, says, “And as
men have rights on women, so women have rights on men,
according to rules”. The interpreter says, “In this verse,
equality of rights and obligations of men and women has
been declared.” It is, therefore, clear that equality of man
and woman is a gift of Allah and Islam grants equal rights
to man and woman.

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(2) In Sura Al-Tawba, Allah says, “The believers, men and
women, are protectors of one another: they enjoin what is
just and forbid what is evil: they observe regular prayers,
practice regular charity, and obey Allah and His Messenger.”
Thus in worldly affairs they help each other and they are
equal. For the world after, they have the same position;
both preach religion. Both have equal rights to education
because the Islamic injunctions of prayer, fasting, pilgrimage
to Mecca, charity and Kalima apply equally to both.
Interpreter interprets, “All men are not superior to all women
in status. Because criterion of status to Allah is Iman (belief)
and true observance of Allah’s instructions (Amal). It is
possible that some women are more eligible for status before
Allah than many men.”

(3) In Sura Al-Baquara, while giving rights to men and women

on each other, some differences have also been referred to.
In the interpretation, this difference has been interpreted as
superiority of men over women. But there is controversy in
this matter. Maulana Yusuf Ali, well-known translator of
the Quran, meant ‘advantage’ while another English translator
Pichkthal meant ‘edge’. In any case, the difference cannot
be taken to be superiority in status because status is
determined by adherence to Allah and observation of His
dictates and in this there is no difference between men and
women.

(4) In Sura Al-Nissa, verse 34, Allah says, “Men are guardians
of women because Allah has given special characteristic to
one over the other, because men spend their money for
women.” This verse is usually cited as evidence of
subordination of women to men. But what is often lost
sight of is that the guardianship is not unrestrained, but is
contingent on specific reason. The interpreter says, “Men

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 have been made guardians of women for two reasons. Firstly,
men have knowledge and ability which cannot be attained
by women. Secondly, men ensure fulfillment of all wants
and needs of women from their income or their assets.”
Are the reasons valid in the changed social, economic and
political situation now prevailing?
(i) Women were never behind men in knowledge. Bibi Ayesha,
wife of the Prophet, and Rabia Basri were head and shoulder
above men of their time. The Quran is full of praise for the
contributions and superiority of the Virgin Mary. Women
fell behind because of lack of opportunity. With the limited
opportunity now opened up, women are showing their merit
in education and knowledge and the girls in the country
have fared better than the boys in the recently held public
examinations.
(ii) The days of excellence of manual ability and strength are
long gone. Technological knowledge and professional skill
are now the source of human power. Ability is now
technology and talent based and physical strength can no
longer be considered as the yardstick of superiority.
(iii) In the past, women were dependent on men because of
restriction to their economic activity outside home. It is
now recognised that women’s work as homemaker is no less
important economically than out-of-home work of men.
Moreover, time and situation have changed; women are
entering the labour market in increasing number and are
proving their worth as bread earners. There are families in
which women’s income is the main source of subsistance.
There are families in which women earn more than men. In
poverty-stricken Bangladesh, the income of the wife is now
increasingly recognised as essential for maintenance of the
family. Men can no longer boast of being maintainers of
women.

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 The two reasons cited for male guardianship no longer hold
good. Thus, the interpretation of male guardianship given
by the Ulemas at a time when women were behind men in
education and ability and were dependent on men for
maintenance is antiquated and there is need for
reinterpretation in the changed circumstances.

(5) To argue in the reverse direction, if ability, knowledge, and

maintenance are held to be the basis of guardianship, then
a wife who is more educated and earns more than the
husband must be recognised as the guardian of the husband
by the same logic. In fact, both should be equal partners
irrespective of the difference in ability and income.

(6) A special situation obtains in Bangladesh. For more than a

decade now, women leaders are running the country as prime
minister and leader of Opposition through democratic system
of adult franchise and this leadership has been accepted by
the Islamic political parties. There is a coalition government
now and ministers of parties who are committed to make
Bangladesh an Islamic state are working under the direct
subordination of a female prime minister.

(7) If women can be the guardians of the state, why can’t they
be guardians of the family? If a woman can take decisions
of the state, why should they be debarred from taking
decisions in the family?

(8) The Constitution guarantees equal rights to men and women

in all spheres of life including education and employment.
The government of Bangladesh has ratified Article 16.1(c),
(f) and (h) of CEDAW which ensures the same rights and
responsibilities in matters of children and with regard to
guardianship and wardship, and in choice of name,
profession and occupation.

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The guardianship issue has, therefore, been settled in favour of
CEDAW and the government is now obligated to pass legislation
giving effect to equality of the husband and wife in matters of
guardianship. The government has already issued a circular stating
that the name of the mother must occur side by side with the
name of the father in all documents and papers.

In the perspective of the facts and circumstances narrated above–

(1) Do you agree that the Article 2 of CEDAW should be

ratified?

(2) If no, please cite reasons.

Article 16.1 (c)

This article provides the same rights and responsibilities to men

and women in marriage and divorce. But in Bangladesh, women
suffer from discrimination in these matters. A husband may have
four wives at a time; but the wife must have only one living
husband. Husbands may divorce by just uttering the words ‘I
divorce you’ three times without requiring to go to court and
without citing any reason. Divorce takes place then and there
irrespective of whether the words were pronounced in anger or
on the spur of the moment. Even if the husband is repentant
afterwards, there is hardly any remedy.

On the other hand, the wife has no right to divorce. She can
divorce in a similar manner only and if only the husband delegates
his power to divorce to wife. Such delegation must take place
before the marriage and must form part of the marriage contract.
In Bangladesh, such delegation had never taken place in the past
and is of recent occurrence. In the absence of such delegation,
the wife must go to the court which may repudiate the marriage
on specific grounds approved by Sharia laws. Due to the cost of

322
legal proceedings and the lengthy process involved, dependant
wives seldom went to court.

It may be pointed out that Sharia laws prevail only in personal

family matters of marriage, divorce and inheritance and related
matters. Sharia laws have no application in other spheres. Civil
and criminal laws, legal evidence, interest, banking etc are
regulated by acts of Parliament and in many cases these laws are
contrary to Sharia laws and supersede Islamic principles. But the
Ulema have not opposed these laws on the ground that Sharia
laws are unalterable. But when it comes to marriage, divorce and
similar matters, they clamour that Sharia is unchangeable. In
spite of such double standards, laws have been passed in these
matters. For example, Child Marriage Restraint Act, Dissolution
of Muslim Marriage Act, Muslim Family Laws Ordinance,
Registration of Muslim Marriage Act are in operation. It is,
therefore, a fact that the Parliament did pass laws in personal
and family matters and these laws were enacted on considerations
of the well-being of people and society, public interest, hardship
of specific sections of population, justice and equity. Further
enactments are, therefore, possible and justifiable on same
considerations.

Polygamy of Men

Polygamy of men is supported under Sura Al-Nissa, verse 3. The

provisions of the verse are as follows:

A man can marry and have at a time maximum of four wives

provided he can observe the letters and conditions laid down by
Allah and thus polygamy is conditional.

The condition is that he will strictly maintain justice and equality

among all the wives.

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If there is any apprehension in his mind about justice and equality,
he must be satisfied with one wife only. For man apprehensive
of observing the condition, only one wife is sanctioned.

If there is only one wife, the possibility of discrimination is the

least. Since possibility of discrimination is the least with one
wife, preference of the Quran is for one wife.

A man can have as many slave girls as possible and may have
sexual relations with them.

Islam approves slavery and since slavery is banned by the law of

the land, the condition (v) is null and void.

Muslim jurists have given different interpretation on the polygamy

issue according to the school of jurisprudence. In Bangladesh,
Hanafi interpretation is followed and polygamy is permitted even
if the conditions are breached. But Muslim countries like Tunisia,
Turkey, Yemen, Morocco, Indonesia and Iran consider the
conditions as prohibitive and forbid polygamy. These countries
have, therefore, abolished polygamy.

Allah himself has suggested that it is difficult to observe the

conditions. The interpreter in the Saudi Bangla version notes
that the Prophet (sm) has passed the message of horrible
punishment for those who violate the conditions. The interpreter
has further said that if a man cannot observe the conditions, his
second or other marriages will be invalid and he will be punished
in the other world. From all these facts, the logical and rational
conclusion follows that Islam in fact and in application permits
one wife only. Muslim husband should be prevented from
polygamy in his own interest in this and in the other worlds. It
is the duty of the Ulema to protect him from wrath of Allah.

Are the conditions observable in the present context of

Bangladesh?

324
This is a poor country. For most husbands, it is difficult to make
both ends meet even with one wife. Many wives now work for
an income in addition to the husbands to support the family in
both rural and urban areas. It is impossible for a husband to
maintain more than one wife not to speak of maintaining them
equally. So for Bangladeshi husbands, condition (iii) is a stark
reality and monogamy should be enforced by law to protect
people from taking rash, thoughtless, fickle-minded and foolhardy
decisions to marry a second wife and thus to save them from
the wrath of Allah.

The reality is that polygamy is almost non-existent and men with

more than one wife are subject of ridicule. Even the Islamic
jurists and the Ulema in Bangladesh now seldom have more than
one wife.

Even the rich in Bangladesh do not practice polygamy. The

educated class also shuns polygyny. Because they are now aware
of the advantages of monogamy and banes of polygyny.

Women are no longer ignorant. Both in rural and urban areas,

women are receiving formal education and entering the economic
world. They now oppose and resist polygyny. It is due to the
women’s movement that the government was forced to enact
Muslim Family Laws Ordinance.

Thus, in the light of the current situation, a correct, rational

interpretation of the Quranic verses justifies prohibition of
polygyny and introduction of monogamy.

Divorce

Discrimination in divorce is defended on the basis of Quranic

verse that says, “If you apprehend disobedience (of wives),
admonish them, separate their bed and beat them. If they become

325
obedient, do not seek any other solution.” It is clear from the
verse that divorce is not permissible in anger or on the spur of
the moment. If there is any conflict between a couple, it cannot
be solved by instantaneous divorce. There must be reasonable
ground for divorce. Steps must be taken to remove the reason
and compromise must be sought. If and only if compromise is
not possible, divorce may be resorted to.

The interpreter says that conflict between husband and wife is

not unusual; but such conflict should be resolved by compromise
and reconciliation and that is why Allah has instructed the
husbands that they must not do excess, must not find fault, must
assume patience and forbearance and settle and compromise
among themselves. Thus, divorce cannot be given in anger and
rashness: there must be valid reasons, which may be removed by
reconciliation and compromise settlement. If this fails, divorce
is the last resort. The verse implies reconciliation and resolution
of apparent reasons. Reconciliation and compromise is possible
usually through a third party, which can be the court. Already
wives have to go to court for seeking divorce. The principles of
equality enshrined in the Quran and mutual rights guaranteed in
the Quran lead to the logical conclusion that, like wife, husband
should also go to the court for reconciliation and resolution of
the apparent reasons. Women are no longer behind men in
knowledge, ability and talent. Medical science, psychology and
psychiatry all reject any differences between men and women in
intellect and intelligence. Women and men should, therefore,
have equal rights in divorce.

There is no difference in opinion that divorce is a hateful act to

Allah and this hateful act has been permitted only in extremely
exceptional circumstances. Such an act cannot be left to the
whims and temper of individual husbands; Allah cannot intend
such whimsical acts. Both husband and wife must pass through

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the same process preferably in a family court already created by
law in Bangladesh.
In the perspective of the facts and circumstances narrated above:
Do you agree that the Article 16.1 (c) of CEDAW should be
ratified?
If no, please cite reasons.

Ijtihad
Islam is a progressive religion and as it extended to new people
and new territories and came across new situation and
developmenst, Islamic jurists and the Ulema brought in
reinterpretation, reorientation and readjustment in religious
matters. Ijtihad is recognised a valid means of interpreting and
readjusting Islamic principles.
Society in Bangladesh is confronting change in all spheres of
life. Globalisation has added new horizon of change and
adjustment. In the international field, CEDAW is a development
that we cannot ignore.
Bangladesh does not want to live in isolation; but wants to play
a dignified role in the international community. More than 100
countries have already ratified CEDAW. Failure to ratify it will
make Bangladesh an outcast. In the past, in the days of Caliphs
and afterwards, their followers have given newer and newer
decisions and faced challenges of time creditably.
In the perspective of globalisation and the need to play a
significant role in the international community,
(i) Do you think that Ijtihad is necessary in the changed
condition that CEDAW has given rise to?
(ii) If no, cite reasons.

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 APPENDIX IV

Workshops on CEDAW and Muslim Personal Law

This appendix deals with the experiences of four workshops

held to explore the rights of Muslim women within the framework
of Islamic law and their civil rights. The issues or discussions
in the workshop were framed keeping in view the rights conferred
by CEDAW provisions. As a minority community, Muslim women
in India have experiences very specific to the economic and
political context in India. Even the implementation of the various
provisions of Islamic law are affected or influenced by such
factors. Further, there are variations between women’s experiences
determined by their class, caste and even regional locations. The
workshop tried to ensure that this diversity was given space for
expression in the discussions. This was helped also by ensuring
that there was representation from different sections of Muslim
women. The workshops included different:
! socio-economic groups
! religious denominations (sects)
! castes and discussed
! regional variations, if at all in the implementation of religious
laws and whether the Sharia is uniform in its application
! class and caste variations, if any, in customary practices
! the impact of political developments on Muslim women in
the context of the rise of forces hostile to religious pluralism
or the constitutional and legal rights of minority communities
! the economic and political status of Muslim women and
whether there was any discrimination against them by virtue
of their religious belief

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2. Details of the Workshops

The first workshop was held in Bangalore where women from

the southern region of India from the states of Andhra Pradesh,
Karnataka, Kerala, and Tamil Nadu participated. The second
workshop was in Bhopal covering the states in the central and
western region—Madhya Pradesh, Uttar Pradesh, Maharashtra,
Gujarat, Rajasthan, Haryana, and Delhi. The third one was in
Howrah where women from the eastern and northeastern region
— West Bengal, Bihar, Orissa, Assam, and Tripura — participated.

In all these workshops, most of the participants were Sunni,

therefore, to include a better understanding of the situation of
Shia women, a fourth workshop was conducted specifically to
interact with Shia women—this was done in Kanpur where
women from Lucknow and Kanpur (in Uttar Pradesh)
participated. Lucknow has a sizeable Shia Muslim population,
which is why this region was selected for the workshop.

In all the four workshops, the group was a mixed caste group.
In India, the deeply ingrained caste system among Hindus has
influenced other religious communities, including Muslims where
caste has no religious sanction. Women from different castes
attended the workshop. The socio-economic profile of the
participants was also mixed with workers, rural women, urban
middle-class professional women attending. For example, there
was representation from among the ladaaf (Tamil Nadu), bidi
workers (Karnataka), chikan workers (Uttar Pradesh), zardozi
workers (Delhi), lawyers, doctors, teachers, peasant women and
artisans.

In all these workshops, the urban-rural distribution was

maintained.

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 The table below gives the details of workshops

# Venue Dates Participants Participant

states

1. Bangalore May 24-25, 45 women Andhra Pradesh

2003 mostly Sunni; Karnataka,
Kerala,
Tamil Nadu

2. Bhopal June 7-8, 2003 42 women Madhya Pradesh,

mostly Sunni; Uttar Pradesh,
Maharashtra,
Gujarat,
Rajasthan,
Haryana, Delhi

3. Howrah July 26-27, 75 women West Bengal,

2003 almost all of Bihar, Orissa,
them Sunni Assam, Tripura

4. Kanpur August 12, 12 women; Uttar Pradesh

2003 almost all of
them Shia;

2.1 The Bangalore, Bhopal and Howrah Workshops

The workshops were conducted in three sessions each:

Islamic law and customary practices

Communalism and fundamentalism:

! On the communal situation in the country; how it impacts

on the rights of Muslims particularly women

! On the fundamentalist influence within the community and

how it impacts on the rights of Muslims particularly women

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Economic rights of Muslim women — the socio-economic
conditions in which women live; economic and social issues that
might impact on women’s rights.

The Kanpur Workshop

The workshop in Kanpur was held specifically to get inputs

from Shia women on Islamic law and customary practices. It
was a one-day single-session meeting. Though issues of the
economic condition of Muslim women did come up, it was
mainly devoted to practices among Shia Muslims on the issues
relating to family laws.

2.3 Findings

1. The one issue that dominated the discussion in all the

workshops was the man’s unilateral right to divorce at one
go – also called “triple talaq”. Apart from this, the legal
issues that dominated all the workshops could be listed out
as:
! Nikah
! Mehr
! Dowry
! Mut’a
! Khula
! Maintenance
! Custody of Children
! Polygamy
! Property Rights

2. In all the workshops, women very clearly and strongly

articulated their indignation at what they perceived as the

331
 insensitivity of most sections of the clergy towards their
rights within Islamic law. Women almost felt that the
interpretation of Islamic law could be more gender-sensitive.
There appeared to be a difference within socio-economic
groups on how they perceived their legal rights — the poorer
sections of working women were more concerned about
their immediate problems and solutions regardless of what
is sanctioned by personal law.

3. The rise in inter-community tensions and the politics of

minority blaming and naming and the impact on women
was an important issue of concern.

4. The discussions showed that within India there is no

homogeneity in the implementation of many laws and also
that there are clear regional and sectarian differences in
customary practices.

5. Economic issues were also discussed. Government policies

in this sphere, it was felt, impacted on all women. However,
there was discussion on the discrimination faced by Muslim
women in policies of recruitment, access to government
schemes and so on.

6. An important finding was that where there are political

forces that have encouraged or given opportunities to Muslim
women to participate in public life such as in the panchayat
system, Muslim women have benefited. The linkages with
other supportive movements such as women’s organisations
was found to be very beneficial by the participants who
stressed it was important for Muslim women to be part of
wider democratic mobilisations.

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 APPENDIX V

Comparative Analysis Between CEDAW, Formal Laws,

Shariah and Customary Practices

PROTECTIVE LAWS Where laws are formulated on the basis

of women being taken as a group, which
either cannot or should not engage in
specified activities and, therefore, need
prospective legislation, but at times this
can be for an unlimited time.
CEDAW Some aspects of the CEDAW articles can
also qualify as protective.
FORMAL LAWS Article 26 (2) Nothing in clause (1) shall
prevent the State from making special
provisions for women and children (S.S.
Ali). Article 25 (3) “Nothing in this article
shall prevent the State from making any
special provisions for the protection of
women and children.”
Chapter 2 of the Constitution —
Principles of Policy — more rights have
been listed for the protection of women
and children and other disadvantaged
groups, such as, Article 32 which states
that special representation shall be given
to peasants, workers and women, and
Article 34 which refers to the full
participation of women in all spheres of
the national life by creating affirmative

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 actions. Furthermore, Article 35 states that
“the State shall protect the marriage, the
family, the mother and the child”, and
Article 37(e) which calls upon the State
to provide secure, just and human
conditions of work for women and
children as well as women’s maternity
benefits. (Fauri: 14) Female Infanticide
Prevention Act, 1870, Maternity Benefit
Ordinance, 1958 and the Mines and
Maternity Benefit Act, 1941, the Provincial
Employees Social Security Ordinance,
1965, (Ali: 15-16).

QURAN/SHARIAH/ “Men are protectors and maintainers of

HADITH/ women, because Allah has given the one
more (strength) than the other and
because they support them from their
means.” Al-Nisa: 34 (Fauri).

CUSTOMARY Men have assumed the role of protecting

PRACTICES women and their honor. This has led to
many discriminatory practices such as
curtailing women’s mobility and access to
resources, lack of independent decision-
making, and segregation etc. This is also
an example of how certain discriminatory
practices under the guise of ‘protection’
are carried out.

Corrective Laws:

This category implies that women are a separate group

who need special treatment. The idea is to alter and improve
specific treatment that women are receiving without making

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any overt comparison to the treatment of men. These may
be of limited duration depending on the time period
required to achieve the desired result.

CEDAW ARTICLE 4 Adoption of States Parties of temporary

special measures aimed at accelerating de
facto equality between men and women
shall not be considered discrimination as
defined in this Convention, but shall in
no way entail as a consequence the
maintenance of unequal or separate
standards. These measures shall be
discontinued when the objectives of
equality of opportunity and treatment
have been achieved. Adoption by State
Parties of special measures including
measures contained in the present
Convention, aimed at protecting maternity
shall not be considered discriminatory.

FORMAL LAWS Article 26 (2) Nothing in clause (1) shall

prevent the State from making special
provisions for women and children. (Ali).

QURAN/SHARIAH/ According to Fauri, “Islamic legislation has

HADITH laid down rules and regulations that ensure
justice and equity for both women and
men at all times and under any
circumstances. Therefore, if Muslims
abide by these provisions and implement
them correctly, there will never be a need
for changing or modifying any laws
pertaining to Muslim women. However,
and as evidence of Islam’s flexibility
certain aspects of Muslim life were left

335
 open to Ijtihad depending on the context,
the time and place.” (Fauri: 14) According
to the Quran, “Allah commands justice,
the doing of good.” Al-Nahil: 90 (Fauri:
14).

CUSTOMARY No supporting customary practices – there

PRACTICES are no known practices that are corrective
in relation to women. At one time, jirgas
or tribal councils were considered to be
corrective in that they were instituted to
provide speedy justice to settle disputes
amicably. However, this practice does not
have the same connotation, the gang rape
of a young woman in Meerwala by jirga
members being a case in point.

Non-Discriminatory Laws:

These include provisions which reject a conceptualisation

of women as a separate group and, reflect one of men and
women as entitled to equal treatment.

CEDAW ARTICLE 1 For the purposes of the present

Convention, the term “discrimination
against women” shall mean any
distinction, exclusion or restriction made
on the basis of sex which has the effect
or purpose of impairing or nullifying the
recognition, enjoyment or exercise by
women, irrespective of their marital status,
on a basis of equality of men and women,
of human rights and fundamental
freedoms in the political, economic, social,
cultural, civil or any other field.

336
FORMAL LAWS Article 25 of the Constitution states that
“(i) All citizens are equal before law and
are entitled to equal protection of law452
(ii) There shall be no discrimination on
the basis of sex alone.” National Policy
for Development and Empowerment of
Women, 2002, National Plan of Action.
The Constitution of Pakistan provides
complete equality and is reiterated in the
chapter on fundamental rights and those
accorded in the Principles of Policy. See
Articles 26(1), (2) which states, “Non-
discrimination in respect of access to
public place”, and Article 27 which
prohibits discrimination in services. (see
also under protective since some of the
protective laws are also non-
discriminatory).

QURAN/SHARIAH/ According to evidence derived from the

HADITH Quran and Sunnah:453 “O Mankind! Revere
your Guardian-Lord, who created you
from a single person, Created of like
nature, his mate, and from them twain

452
According to S. Sardar Ali and Kamran Arif, in ‘Blind Justice to All’,
equality before law has a somewhat negative connotation that indicates the
absence of any special favor to any individual and equal subjection of all
classes to ordinary law. However, equal protection of laws means that no
person or class of persons shall be denied the same protection of laws which
is enjoyed by other persons or classes in like circumstances.” (pg.1)
453
Nawal Fauri, An Overview of Women’s Human Rights in Shari’a Stipulations and
CEDAW Articles, (Jordan: UNIFEM).

337
 scattered (like seeds) countless men and
women; revere Allah, through whom ye
demand your mutual (rights), and
(reverence) the wombs (that bore you):
for Allah ever watches over you.” Al
Nisa’:1. “For Muslim men and Muslim
women, for believing men and women,
for devout men and devout women, for
the true men and true women, for men
and women who are patient and constant,
for men and women who are humble
themselves, for men and women who give
charity, for men and women who guard
their chastity, and for men and women
who engage in God’s praise, for them has
God prepared forgiveness and great
reward.” Verse XXXIII:35. “Ye are one
from another.” Al-Nisa 25 (Fauri).
According to S. Ali, on the occasion of
the Last Haj, the Prophet (SAW) is quoted
to have said, “All people are equal, as equal
as the teeth of a comb. There is no claim
of merit of an Arab over a non-Arab or
a white over a black person. Only God
fearing people merit a preference with
God.”

CUSTOMARY Although, the Constitution of Pakistan,

PRACTICES CEDAW and Shariah are all supportive to
women, customary practices are
discriminatory towards women. (See more
under customary practices, below).

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CEDAW ARTICLE 2 State Parties condemn discrimination
against women in all its forms, agree to
pursue by all appropriate means and
without delay a policy of eliminating
discrimination against women and to this
end, undertake: To embody the principle
of the equality of men and women in
their national constitutions or other
appropriate legislation if not yet
incorporated therein and to ensure,
through law and other appropriate means,
the practical realisation of this principle;
To adopt appropriate legislative and other
measures, including sanctions where
appropriate, prohibiting all discrimination
against women; To establish legal
protection of the rights of women on an
equal basis with men and to ensure
through competent national tribunals and
other public institutions the effective
protection of women against any act of
discrimination; To refrain from engaging
in any act or practice of discrimination
against women and to ensure that public
authorities and institutions shall act in
conformity with this obligation; To take
all appropriate measures to eliminate
discrimination against women by any
person, organisation or enterprise; To take
all appropriate measures, including
legislation, to modify or abolish existing
laws, regulations, customs and practices
which constitute discrimination against

339
 women; To repeal all national penal
provisions which constitute discrimination
against women.

FORMAL LAWS The Constitution of Pakistan provides

complete equality and is reiterated in the
chapter on fundamental rights and those
accorded in the Principles of Policy. See
Articles 26(1), (2) which states “Non-
discrimination in respect of access to
public place…”, and Article 27 which
prohibits discrimination in services. (See
also under protective since some of the
protective laws are also non-
discriminatory). The discriminatory laws
that are in need of repeal are the Hudood
Ordinances, Laws of Qisas and Diyat, and
the Law of Evidence.

QURAN/SHARIAH/ According to evidence derived from the

HADITH Quran and Sunnah.454 “O Mankind! Revere
your Guardian-Lord, who created you
from a single person, Created of like
nature, his mate, and from their twain
scattered (like seeds) countless men and
women; Revere Allah, through whom ye
demand your mutual (rights), and (revere)
the wombs (that bore you): for Allah ever
watches over you.” Al Nisa’:1 “For Muslim
men and women, for believing men and

454
Fauri.

340
 women, for devout men and women, for
the true men and true women, for men
and women who are patient and constant,
for men and women who are who humble
themselves, for men and women who give
charity, for men and women who guard
their chastity and for men and women
who engage in God’s praise, for them has
God prepared forgiveness and great
reward.” Verse XXXIII:35 “Ye are one
from another.” Al-Nisa 25 (Fauri).

CUSTOMARY In contrast to supportive laws for women,

PRACTICES the worst kind of discrimination that takes
place as a customary practice is honor
killings. Although this has been declared
as ‘murder’, no concrete action has been
taken by the government to date.

CEDAW ARTICLE 3 States Parties shall take in all fields, in

particular in the political, social, economic
and cultural fields, all appropriate
measures, including legislation to ensure
the full development and advancement of
women for the purpose of guaranteeing
them the exercise and enjoyment of
human rights and fundamental freedoms
on a basis of equality with men.

FORMAL LAWS See comments corresponding to Article 1

and 2 of the convention – The
government of Pakistan through the Local
Government Ordinance, 2000, has
ensured the 33% representation of

341
 women in the local bodies election. There
is a 5% quota for women in public
institutions.

QURAN/SHARIAH/ According to Fauri, quoting from the

HADITH Quran, “Whoever works righteously, man
or woman, and has faith, verily to him
will We give a new life, a life that is good
and pure and We will bestow on such
their reward according to the best of their
actions.” Al-Nahil: 97. According to Ali:
“And women shall have rights similar to
the rights against them, according to what
is equitable.” Al-Baqqara: 227.

CUSTOMARY Regarding political, social and economic

PRACTICES rights of women, there are many
discriminatory practices that negate these
rights. Examples include: Women being
barred from voting in the tribal areas,
women’s right to work and income is
controlled by men, women viewed as
commodities.

CEDAW ARTICLE 4 See under corrective

CEDAW ARTICLE 5 State Parties shall take all appropriate

measures: to modify the social and cultural
patterns of conduct of men and women,
with a view to achieving the elimination
of prejudices and customary and all
practices which are based on the idea of
the inferiority or superiority of either of
the sexes or on stereotyped roles for men
and women; To ensure that family

342
 education includes a proper understanding
of maternity as a social function and the
recognition of the common responsibility
of men and women in the upbringing and
development of their children, it being
understood that the interest of the
children is the primordial consideration
in all cases.

FORMAL LAWS According to Ali, Article 5 of the

convention puts a difficult obligation on
the States as it requires changing of
cultural and social attitudes towards
women to ensure their participation in
society on the basis of equality (p. 45).
Furthermore, this article is important in
the context of Pakistan where most of
the practices stem from biased cultural
practices and prejudices. (46).

QURAN/SHARIAH/ According to Fauri, “Islamic law does not

HADITH discriminate between one human being
and another and it guarantees both sexes
their full rights and freedoms.” And
“When patterns of cultural and social
behavior adhere to Islamic rulings and
teachings, justice and equality is ensured
for both sexes.” The Quran says, “Verily
the most honored of you in the sight of
Allah is the most righteous of you.” Al
Hujrat:12, “And let not the hatred of
others to you make you swerve to wrong
and depart from justice. Be just that is
next to piety.” Al-Maeda: 8.

343
CUSTOMARY To date, no law has been passed against
PRACTICES the practice of honor killings. Increasingly,
the so-called Islamic Laws of General Zia-
ul Haq are used to perpetrate violence
against women and use women to settle
scores among men and their disputes.

CEDAW ARTICLE 6 State Parties shall take all appropriate

measures, including legislation, to suppress
all forms of traffic in women and
exploitation of prostitution of women

FORMAL LAWS There are a number of laws that exist in

Pakistan addressing the issue of
prostitution of women. These are: The
West Pakistan Suppression of Prostitution
Ordinance, 1961, amended in 1968; The
Punjab Suppression of Immoral Traffic
Act, 1935; The West Pakistan Vagrancy
Ordinance, 1958, Pakistan Penal Code, sec
497 and the Hudood Ordinance, 1979 (p.
57).

QURAN/SHARIAH/ Islam prohibits all forms of sexual

HADITH trafficking and exploitation. According
to Islamic law, anyone who engages in
such activities is subject to severe
punishment. (Fauri: 14). “And come not
near unto adultery, Lo! It is an
abomination and an evil way.”

CUSTOMARY According to the “State of Human Rights

PRACTICES in 2000” there is evidence of women from
Sri Lanka and Bangladesh being sold to
landlords in Sindh and Punjab. Women

344
 are also trafficked through the custom of
vulvar.

CEDAW ARTICLE 7 State Parties shall take all appropriate

measures to eliminate discrimination
against women in the political and public
life of the country and, in particular, shall
ensure to women, on equal terms with
men, the right: To vote in all elections
and public referenda and to be eligible
for election to all publicly elected bodies;
To participate in the formulation of
government policy and the
implementation thereof and to hold public
office and perform all public functions at
all levels of government; To participate
in non-governmental organisations and
associations concerned with the public and
political life of the country.

FORMAL LAWS According to Ali, the Constitution of

Pakistan does not discriminate against
women for participation in the political
and public life of the country. There is
also a 5% quota for women in public and
private sector. (64). Under the present
government, several developments have
taken place on issues of women’s rights
such as seven women who were recruited
into the policy-making bodies. Under the
Devolution of Power Plan, the
government has allocated 33% special
seats for women in the local bodies at the
union council, tehsil and district levels to

345
 be contested through direct elections.455
The number of women who have been
elected through this is 36,105.456 (Local
Government Ordinance, 2000).

QURAN/SHARIAH/ According to Fauri, the Sharia grants

HADITH Muslim women the right to participate in
all spheres of life. She adds that women
have the right to work or hold any public
office, except leadership of a Muslim
nation. But this is debatable as some
Muslim jurists believe that this is forbidden
and others give alternative interpretations
of Sharia that permit women to be head
of state. (p. 15) “And in no wise covet
those things in which Allah hath bestowed
His gifts more freely on some of you than
on others, To men is allotted what they
earn, And to women what they earn. But
ask Allah of His bounty: For Allah hath
full knowledge of all things.” Stated in
verse IV:32 of the Quran (Ali: 60).

CUSTOMARY Most women are registered voters and do

PRACTICES cast their votes, but in most cases are
influenced by the male members of the
family. In some areas of Balochistan,
NWFP and Punjab, women are not
allowed to vote.

455
Legislative Watch, January-February 2001.
456
Naeem Mizra, Women’s Participation in Local Government Elections 2000-2001,
2000, p. 2.

346
CEDAW ARTICLE 8 State Parties shall take all appropriate
measures to ensure to women, on equal
ter ms with men, and without
discrimination, the opportunity to
represent their governments at the
international level and to participate in
the work of international organisations.

FORMAL LAWS According to Ali, there is no law on the

statute book in Pakistan that prohibits
women from representing their
government at the international level.
However, there is no affirmative action
measure that ensure diplomatic positions
for women abroad. Currently, there are
about 6 women ambassadors to different
countries. There are many examples of
women who have held senior positions
abroad and in international organisations,
e.g. Dr. Nafis Sadik, United Nation’s senior
ex-employee. (p. 66).

QURAN/SHARIAH/ Fauri interprets this article by saying that

HADITH any qualified Muslim woman has the right
to hold any international positions
provided this does not jeopardise their
primary responsibilities of being a wife
and mother, etc. (Fauri: 15).

CUSTOMARY Again, here the issue becomes that of

PRACTICES control although laws may support
women’s right to participate in different
spheres of life, it eventually depends on
their male kin to ‘allow’ them to

347
 participate. Of course, in most cases
women are not allowed to carry out
certain kinds of responsibilities.

CEDAW ARTICLE 9 State Parties shall grant women equal

rights with men to acquire, change or
retain their nationality. They shall ensure
in particular that neither marriage to an
alien nor change of nationality by the
husband during marriage shall
automatically change the nationality of the
wife, render her stateless or force upon
her the nationality of the husband. State
Parties shall grant women equal rights with
men with respect to the nationality of
their children.

FORMAL LAWS The present government has amended

section 5 of the Pakistan Citizenship Act
of 1951, to provide that the children of
Pakistani women married to foreigners
would also be entitled to Pakistani
citizenship. This entitlement had
previously been available only to children
of Pakistani men married to foreigners,
not for children of Pakistani women
married to non-Pakistanis. However, the
government did not amend section 10 (2)
of the act, which is equally discriminatory,
since it provides for the grant of
citizenship to the foreign spouse of a
Pakistani man, but does not provide an

348
 equal facility for the foreign spouse of a
Pakistani woman.457

QURAN/SHARIAH/ The Sharia grants both men and women

HADITH the full freedom to choose or retain any
nationality they want and to confer this
nationality on their children. Although,
in Islam sons and daughters must take on
their father’s name, this does not restrict
their parents’ right to nationality. The
Quran says: “O mankind! We created you
from a single (pair) of a male and a
female, and made you into nations and
tribes that ye may know each other (not
that ye despise (each other). Verily the
most honored of you in the sight of Allah
is (he who is) the most righteous of you.”
Al-Hujurat:13 (Fauri: 15)

CUSTOMARY No known customary practice that goes

PRACTICES against this provision.

CEDAW ARTICLE 10 State Parties shall take all appropriate

measures to eliminate discrimination
against women in order to ensure to them
equal rights with men in the field of
education and in particular, to ensure it
on a basis of equality of men and women.
The same conditions for career and
vocational guidance, for access to studies
and for the achievement of diplomas in

457
Legislative Watch, January–February 2001.

349
educational establishments of all
categories in rural as well as urban areas;
this equality shall be ensured in pre-school,
general, technical, professional and higher
technical education, as well as in all types
of vocation training; Access to the same
curricula, the same examinations, teaching
staff with qualifications of the same
standard and school premises and
equipment of the same quality; The
elimination of any stereotyped concept
of the roles of men and women at all
levels and in all forms of education by
encouraging co-education and other types
of education which will help achieve this
aim and in particular, by the revision of
text books and school programmes and
the adaptation of teaching methods; The
same opportunities to benefits from
scholarships and other study grants; The
same opportunities for access to
programmes of continuing education,
including adult and functional literacy
programmes, particularly those aimed at
reducing, at the earliest possible time, any
gap in education existing between men
and women; The reduction of female
student drop-out rates and the
organisation of programmes for girls and
women who have left school prematurely;
The same opportunities to participate
actively in sports and physical education;
Access to specific educational information

350
 to help to ensure the health and well being
of families, including information and
advice on family planning.

FORMAL LAWS Ali points out that in the chapter on the

Principles of Policy of the Constitution
of Pakistan, it is stated thus: Article 37
(b) “The State shall remove illiteracy and
provide free and compulsory secondary
education within the minimum possible
period. Article 37 (c) Make technical and
professional education generally available
and higher education equally accessible to
all on the basis of merit.” There are many
laws in Pakistan that promote education,
some of these are: The Provincial Primary
Education Ordinance, 1962, The Literacy
Ordinance, 1985; The Workers Children
Ordinance, 1972; Education Policy 1998-
2010. The present government has also
announced the Education Sector Reforms
(ESR) — adult literacy, education for all
and technical education covered under
ESR — Education for women is also one
of the areas of concern in the National
Plan of Action. The government has also
promulgated legislation for compulsory
primary education for Punjab, NWFP and
the Federally Administered Tribal Areas
(FATA).

QURAN/SHARIAH/ Fauri states that all of the measures

HADITH included in this article are in consonance
with Islamic teachings and principles

351
 which promote equal access to education
regardless of their sex. (Fauri: 16). Ali
quotes the following Ahadith: “Educate
your children for they are born for a time
that is not yours.” And, “Seek knowledge
even if you have to go to China. Seek
knowledge from the cradle to the grave.”
“To seek knowledge is obligatory for every
Muslim male and female.”

CUSTOMARY As is indicated, statutory/Islamic laws

PRACTICES support women’s education; usually
traditional laws and norms restrict
women’s mobility, thereby, reducing access
to education. Gender bias and the concept
of segregation is often used to implement
these restrictions in the attainment of
higher level of education for women.
However, the attitude towards women/
girls’ education is gradually evolving in
certain rural areas.

CEDAW ARTICLE 11 State Parties shall take all appropriate

measure to eliminate discrimination against
women in the field of employment in
order to ensure, on a basis of equality of
men and women, the same rights, in
particular:

The right to work as an inalienable right

of all human beings;

The right to the same employment

opportunities; including the application of

352
the same criteria for selection in matters
of employment.

The right to free choice of profession

and employment, the right to promotion,
job security and all benefits and conditions
of service and the right to receive
vocational training and retraining,
including apprenticeships, advanced
vocational training and recurrent trainings.

The right to equal remuneration, including

benefits and to equal treatment in respect
of work of equal value, as well as equality
of treatment in respect of work of the
evaluation of the quality of treatment in
respect of work of the evaluation of the
quality of work. The right to social
security, particularly in cases of retirement,
unemployment, sickness, invalidity and old
age and other incapacity to work, as well
as the right to paid leave.

The right to protection of health and to

safety in working conditions, including the
safeguarding of the function of
reproduction.

In order to prevent discrimination against

women on the grounds of marriage or
maternity and to ensure their effective
right to work, State Parties shall take
appropriate measures: To prohibit, subject
to the imposition of sanctions, dismissals
on the grounds of pregnancy or of

353
maternity leave and discrimination in
dismissals on the basis of marital status.
To introduce maternity leave with pay or
with comparable social benefits without
loss of former employment, seniority or
social allowances.To encourage the
provision of the necessary supporting
social services to enable parents to
combine family obligations with work
responsibilities and participation in public
life, in particular through promoting the
establishment and development of a
network of child-care facilities.To provide
special protecting to women during
pregnancy in types of work proved to be
harmful to them.

Protective legislation relating to matters

covered in this article shall be reviewed
periodically in the light of scientific and
technological knowledge and shall be
revised, repeated or extended as necessary.

354