Women’s Ministry Treads Cautiously in Promoting Gender Equality in Afghanistan

"The rural dimension of women's issues is not receiving the attention that it ought to," Cheryl Ray, a civil society development consultant with the Women's Ministry, told EurasiaNet in an interview. "The problems are elemental in rural regions, relating to things like just surviving child birth and keeping children alive."

The Women's Ministry is devoting a significant chunk of its $10 million development budget for 2003 to the establishment of regional centers in each of Afghanistan's provinces. The centers plan to offer Afghan women opportunities to learn how to read and write. They also hope to provide health education and guidance on income generation. The ministry additionally seeks to operate mobile units to expand outreach.

The plan faces significant logistical and political hurdles, in large measure due to Afghanistan's weak state structure. The authority of President Hamid Karzai's interim administration is tenuous in many regions. Instead, local warlords, rather than the central government, wield power in many regions. [For background see the Eurasia Insight archives].

"We just have to work around problems in the provinces," Ray said. In some cases, she said, local warlords – such as Ismail Khan, the de facto leader of western Herat province – appear intent on retaining control over the direction of women's development programs. "Khan has his own group [of women experts] that is not necessarily connected with the Women's Ministry." She said. "It's the same thing with some other governors. But at least they send them to Kabul for training."

Ray suggested that the Women's Ministry's challenges would be eased by a shift in the foreign donor focus. At present, most foreign assistance efforts are concentrated in Afghan cities, especially Kabul. "There is a disproportionate amount of attention [on cities]," Ray said. "About 85 percent of [foreign] resources are devoted to projects that benefit only about 10 percent to 15 percent of women."

In addition to political obstacles, the Women's Ministry officials must also contend with cultural sensitivities, especially in rural regions, where most residents adhere to a conservative Islamic lifestyle, Ray said. "Up to 90 percent of women [in rural areas] have not met an individual outside of their family or village," Ray said.

"Karzai is walking a tight rope between progressive and conservative elements. The Women's Ministry is also walking a tight rope. We must be very careful," Ray continued. "Right now, we are taking a low-key approach – just trying to get programs on the ground that people can't argue against. In particular we're promoting health care. After our presence becomes more established, then we will move into areas that are more controversial."

The most controversial topics are related to women's changing role in society. "It is trying to answer questions like: what are the rights of women in Islam? And how to draw distinctions between rights and cultural distinctions," Ray said.

Domestic debate has already begun on a new Afghan constitution, which will attempt to establish a new framework for women's rights. The constitution is expected to be ratified by a special Loya Jirga, or grand tribal council, this autumn. Given the deeply entrenched cultural attitudes on gender-related issues, the Women's Ministry is urging a go-slow approach. "Rather than seeking detailed rights in the constitution, we're focusing our efforts on getting a basic statement on equal rights and the right to vote," Ray said. The "real roll-up-your-sleeves" work for the Women's Ministry should come in late 2003, when a new civil code is developed, Ray added.

Ultimately, Ray contends, Afghanistan has little choice but to expand women's opportunities. The country's conflict-altered demographic situation is exerting considerable pressure for change. Ray pointed to the fact that Afghanistan now has upwards of 2 million "war widows," who cannot be "adequately cared for within the current family system." Thus, most war widows need training to enter the workforce and provide for themselves. "Reality will force a change in traditional mores," Ray said. "It will provide opportunities for some women