PM ABUL RAGHEB TELLS DAS CHENEY GOJ WORKING ON

C O N F I D E N T I A L SECTION 01 OF 02 AMMAN 005908

SIPDIS

E.O. 12958: DECL: 10/08/2012
TAGS: PHUM PGOV PREL US JO
SUBJECT: PM ABUL RAGHEB TELLS DAS CHENEY GOJ WORKING ON
LEGAL REVISION TO HELP STOP HONOR KILLINGS


Classified By: Amb. Edward W. Gnehm for reasons 1.5 (B) and (D)

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PM: "WE ARE SERIOUS ABOUT DOING SOMETHING"
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1. (C) NEA DAS Elizabeth Cheney met October 8 with Prime
Minister Ali Abul Ragheb to discuss economic, political, and
educational reform issues (septel). Ambassador Gnehm, USAID
Director, and PolCouns accompanied. Planning Minister Bassam
Awadallah and PM's Media Advisor Natasha Bukhari sat in on
the Jordanian side. Following discussion of Jordan's
economic reform program, Cheney expressed to the PM continued
USG concern about the practice of honor killings in Jordan.
In particular, she noted that Jordan has the potential to
become a model for the region in terms of development, but
that continued tolerance of the practice of honor killings
stands in the way. Cheney noted strong USG concern with
Article 340 of the Jordanian criminal code which permits
honor killings, and Article 98, which is often used to reduce
sentences for perpetrators of these crimes.


2. (C) Abul Ragheb responded that many outside Jordan have
misinterpreted honor killings. "Islam is against it; it
comes out of tradition." He said there is also confusion
about the two sections of Jordanian law that deal with
punishment for honor crimes. Article 340, most often cited
as the "honor crimes law," actually deals with "crimes of
passion" and can only be applied if a husband catches a wife
in the act of infidelity and kills her or her lover on the
spot. Abul Ragheb claimed that this law had only been
applied three times, given the specificity of the exception.
He said the GOJ has already amended this law to make it
gender non-specific (i.e. spouse versus husband or wife).

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MINIMUM SENTENCE FOR ALL MURDER CONVICTIONS
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3. (C) The real issue of concern, he continued, was the
broader Article 98, which instructs judges to take into
account the circumstances of murders in handing out
punishment. Judges in Jordan have traditionally used Article
98 to reduce sentences as part of mediation efforts between
families or tribes to prevent the start of a feud. They have
also used this clause to reduce sentences in honor killing
cases when the family of the perpetrator (which is usually
also the family of the victim) asks for leniency so the
guilty male relative can continue to support his family. The
GOJ, he said, realizes that, in many cases, a man will kill a
female relative for another reason and say he was moved to
kill her to protect the family honor. Abul Ragheb said the
GOJ wants to institute a minimum sentence for all persons
convicted of any kind of murder (he mentioned 7 and 5 years
as possibilities). This would ensure that those who claimed
to have killed in the name of honor would not receive token
sentences. If the government makes this amendment to Article
98 and honor killers receive "serious sentences, they won't
do it any more." "We are serious about doing something about
this."


4. (C) DAS Cheney noted the importance of a strong public
message from the GOJ condemning the practice of honor
killings. She asked if the GOJ would also consider a public
information campaign on honor killings, and offered USG
assistance for such an effort. Abul Ragheb said that the
subject of honor killings had been taboo until 4 years ago,
when the government and Royal family had begun a significant
information campaign against honor killings. However, in
2000 when the GOJ had tried to amend Article 340, Parliament
soundly defeated the GOJ's proposal. Parliamentarians voted
against the law, he said, either to "save tradition" or
"ensure law and order." Cheney reiterated the potential
importance of such a campaign, and noted that the USG would
like to provide support to end the practice.

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GOJ SUPPORTS ARAB HUMAN DEVELOPMENT REPORT
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5. (C) DAS Cheney had also discussed honor killings in an
October 7 meeting with Foreign Minister Marwan Muasher (other
topics reported septel). DAS Cheney told Muasher the U.S.
stood ready to assist the GOJ in addressing this problem,
noting that changes here could have wider implications
regionally given Jordan's potential role as a model on a host
of reform issues.


6. (C) Muasher said the GOJ is working to address this
"convoluted notion of honor that is deeply rooted in a
socially conservative society." Muasher said that
he is personally doing all he can "to give a signal
that these things will not be tolerated." As an
example, he outlined the steps he has taken since becoming
Foreign Minister to eliminate discrimination against
women in the diplomatic corps, including providing equal
benefits and allowances for spouses and children of all
diplomats, regardless of the gender of the officer (ref).
DAS Cheney commended these efforts, and noted that there
are broad issues of women's empowerment that require
near and long term strategies to address. The issue of
honor killings, however, is different and requires an
immediate resolution.


7. (C) As the meeting concluded both DAS Cheney and
Muasher agreed that the problem of gender discrimination
is an important issue the Arab world must address,
and that the recently issued UN Arab Human Development
Report (AHDR) provides concrete suggestions for policy
reforms to address gender equality issues. Muasher
observed that Jordan is "the only Arab country that has
fully endorsed" the report. The GOJ, he said, will
continue to take a "very proactive role" in inter-Arab
deliberations on these issues. DAS Cheney told Muasher
that Jordan should consider the U.S. a partner in this
regard.

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ACTIVIST DISCUSSES HONOR KILLINGS
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8. (C) April Palmerlee, Senior Coordinator for
International Women's issues, also raised the issue of
honor killings during her meetings with GOJ officials and
NGOs. Nancy Bakir, Human Rights Advisor to the Prime
Minister, agreed with Palmerlee that honor killings are a
serious matter but noted that societal attitudes are
improving, and that the Jordanian media now regularly
report on honor killings. In a subsequent meeting with
human rights activist Sa'eda Kilani, Kilani said that
people had become confused between laws with regard to
honor killings and "crimes of passion," and that, in
her opinion, the GOJ should do more to clarify the
differences. Kilani said that the fact that any
woman has to live in fear of being killed by her
husband or close family member is tragic, and noted
efforts of Royal Family members (in particular Prince Ali)
to address the issue. "The Royal Court, in general,
is quite supportive of women's rights," Kilani said.

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COMMENT
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9. (C) Abul Ragheb's comments and pledge to amend
Article 98 are the most positive statements from the
GOJ on honor killings since the failed attempt
to repeal Section 340 in 2000.


10. (U) DAS Cheney has cleared this message.

GNEHM