The Afghan Refoulment Principle
A few days ago, the Federal Caretaker Cabinet held a meeting regarding the growing threat of terrorism and militancy within Pakistan. The said cabinet, absent any thought of whether they have the authority to formulate new security policies or not, or whether the impact of devising such policies could be devastating for the state, decided to shift all the blame for deteriorating security on Afghan refugees, which came as no surprise. The caretaker cabinet also announced that 1.1 million Afghan refugees without documentation have till November before they will be forcefully evicted from Pakistan. This news was met with massive outrage as international and local humanitarian organizations called such a move myopic and an illogical take on the worsening security situation.
Before we discuss the legality of the forceful eviction of Afghan refugees, we must first discuss under whose authority is a caretaker government empowered to make such a policy decision. It is now a settled principle of law that a caretaker government cannot make policy decisions, especially those that can have long-term effects on the country, as well as the incoming government. The Supreme Court has clearly laid down this principle in
2021 PLD 313 and the same principle was cemented by the Peshawar High Court and the Lahore High Court in
2022 PLD 100 and
2023 CLC 1535 respectively, wherein the courts stated that the caretaker government can only continue day-to-day policies till the elected government comes to power.
Even if we take into account the recent amendments to the Election Act 2017, they still do not allow the caretaker government to make such serious policy decisions, as the amendments only allowed for the implementation of the IMF program. There is no doubt that the caretaker cabinet does not have the power to make such a policy decision, especially when the mess brought forth by such a policy will have to be cleaned up by the incoming government. In addition to the burden such a precedent may create on incoming governments, an unelected institution cannot be allowed to make such policy or reform, as they are not the representatives of the people.
Furthermore, Pakistan cannot forcefully evict Afghan refugees, especially if those refugees face threats in their home country, as it is against International Humanitarian Law. Whilst Pakistan is not a signatory to the 1951 Refugee Convention or the 1967 Protocol, that does not mean that Pakistan can take any inhumane action that it sees fit regarding refugees. The principle of non-refoulment is now considered a legal customary principle in International Law. The International Court of Justice in the judgment
Nicaragua vs United States of America, held that the conduct of states following such rules is sufficient for the existence of customary law and any instance of the contrary should be treated as a breach rather than the formation of a new rule.
Considering the fact that the principle of non-refoulment, or returning an asylum seeker to their home country has been declared as an act contrary to International Humanitarian Law in multiple treaties as well as the United Nations Declaration of 1967, it can be fairly stated that the rights of the refugees are no longer enshrined solely in aforementioned convention and protocol. Further evidence of this customary law can be perused from the fact that in addition to the 1967 Declaration, the UN General Assembly passed Resolution 37/95 in 1982 regarding principles of asylum and non-refoulment and then in 1989, Resolution 44/137, which called upon all states to refrain from taking steps that would jeopardize the institution of asylum which was further cemented in Resolution 45/140 of 14 December 1990, Resolution 46/106 of 16 December 1991 and in Resolution 47/105 of 16 December 1992. In Resolution 48/116 of 21 December 1993, the General Assembly called upon "all States to uphold asylum as an indispensable instrument for the international protection of refugees, and to respect scrupulously the fundamental principle of non-refoulement."
To be continued on the website
Pakistan has been a safe haven for refugees, and through its actions, has played a leading role in transforming the rights of refugees regarding refoulment
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