Memorandum submitted by Womankind Worldwide
WOMANKIND Worldwide (WK) is a UK-based international
development charity that works in partnership with 60 organisations
in over 20 developing countries. Through our work, we aim to enable
women to voice their concerns and claim their rights and to work
globally for policies and practices which promote equality between
men and women.
WK's main focus is on promoting women's civil and
political participation, reducing violence against women and informing
and influencing policies and practice impacting on women's human
rights at the local, national and international levels. Our work
in these core areas has naturally led us to develop knowledge
and expertise in the area of women, conflict and development,
both in terms of the impact of armed conflict on women, but also
their important role in conflict prevention and peacebuilding.
This paper outlines the key learning from three of our programmes
in countries that can be described as either in conflict or post-conflict
situations or as 'fragile states'.
WK also conducts policy and advocacy work in the
UK, with a particular focus on promoting the implementation of
UN Security Council Resolution 1325 (UNSCR 1325), in particular
through its active role on the UK Working Group on Women, Peace
& Security. Our advocacy work is directly informed by the
learning of our partners and other organisations working in this
field
This submission builds on two previous submissions
to the International Development Committee Inquiries into Afghanistan
in 2002 and 2005.
1. Women, Conflict and Development
1.1. Conflict and development concerns are interdependent.
On the one hand, the insecurity associated with conflict undermines
progress on the development of communities and whole countries.
On the other hand, conflict can be further accelerated by economic
and social instability. WK believes that gender inequality is
a root cause of poverty and insecurity and that no efforts to
reduce poverty and end insecurity will succeed unless they include
measures to tackle violations of women's human rights.
1.2. Conflict impacts on women and men differently.
While men make up the majority fighting in armed forces and militias,
women form the majority of those displaced by war. Since women
are usually the primary care-givers, they bear the additional
responsibility of having to access food and other resources in
situations of physical insecurity. While both women and men experience
trauma and violence during war, women experience specific trauma
resulting from different forms of violence, including sexual violence,
rape and sexual abuse. This abuse has also been linked to the
military personnel and peacekeepers sent to protect them. It is
therefore crucial to examine the gendered impact of conflict since
this often exacerbates existing forms of discrimination and violations
of women's human rights.
1.3. The tendency to portray women as 'victims'
of conflict is too simplistic and it should not be assumed that
all women are non-partisan - some women do participate in wars.
However, women also have a crucial role to play in conflict prevention,
resolution and reparation efforts.
1.4. The transition from conflict to peace offers
a unique opportunity to address the root causes of conflict and
to transform institutions, structures and relationships that hinder
gender equality and justice. Increased representation of women
in peace negotiations is important - not only do women have the
right to participate equally with men in the decision-making processes
that shape the development of their community and their country,
but their exclusion from these processes can severely compromise
the long-term success and sustainability of any peace and reconstruction
solutions. Their equal participation must be combined with efforts
to address gender issues in peace agreements, for example, violations
of women's human rights, sexual and reproductive rights and the
need for new legislation to extend women's economic rights, such
as access to land, property and other resources.
1.5. While there is a growing recognition of
women's agency in peacebuilding, they continue to be largely ignored
or sidelined in all aspects of post-conflict reconstruction and
peacebuilding processes.
1.6. There are a number of international instruments
which set out clear guidelines and principles for the promotion
and integration of a gender perspective and respect for human
rights in all peace and security, conflict prevention and management
and peacebuilding initiatives. UN Security Council Resolution
1325 sets out clear guidelines to promote women's role in all
aspects of conflict prevention and resolution. This resolution
builds on key provisions set out in internationally agreed instruments,
such as CEDAW and the Beijing Platform for Action.
1.7. Special attention also needs to be given
to the following instruments that are equally as important as
the UNCSR 1325 on promoting women and girls rights in peacebuilding
and war: UN Guiding Principles on Internal Displacement (Francis
Deng Guidelines), the four Security Council Resolutions of equal
importance is on Children and Armed Conflict (1612/2005; 1539/2004;
1460/2003 and 1379/2001). The work carried out by the different
UN Special Representatives and Rapporteurs, particularly the UN
Special Rapporteur on Violence against Women and the UN Special
Representative to the Secretary General on Human Rights Defenders.[147]
1.8. WOMANKIND believes that the full and rapid
implementation of these and other supporting tools is necessary
to facilitate inclusion of gender and women's rights in all efforts
to address peace and security at the national and international
levels.
2. WOMANKIND's approach to peacebuilding
WK works in partnership with women's organisations
in developing countries. The primary focus of our work in conflict-affected
countries is to promote the active and meaningful participation
of women in all aspects of peace-building. We are committed to
using a rights-based approach in all aspects of our post-conflict
reconstruction and peacebuilding work. The learning from our work
at the community level offers models of best practice that can
be disseminated to other development practitioners and replicated
elsewhere. [148]
2.1 Forgotten Conflicts and Local Truth Commission
(Peru)
2.1.1. Violent civil war engulfed Peru for much of
the 80s'. Women were profoundly affected and suffered internal
displacement, violence and sexual violence. The Lima-based Truth
and Reconciliation Commission was set up TWO years ago[149]
and acts as a forum for civil society, the military and politicians
to deal with human rights abuses committed during the conflict.
It is valuable for its recognition of the specific needs of diverse
groups, for example, women and indigenous women, but suffers from
lack of international commitment and support.
2.1.2. WK's Peruvian partner the Institute for the
Defence of Women's Rights (DEMUS) have discovered that such a
public approach is not effective everywhere. They believe that
the isolated community of Manta[150]
are not yet prepared for public court cases. This remote region
became the location of a fierce and prolonged conflict between
the Shining Path Guerrillas and the Military during the 80s'.
Local residents, the majority of whom are indigenous Quechua speaking
peasants, were victims of sustained violence. Many fled, but some
had no choice but to remain and were killed or endured multiple
human rights abuses[151].
Today, the conflict has ended, but the memories remain.
2.1.3. The indigenous women of Manta face multiple
discrimination on the basis of their gender, their ethnicity and
their rural isolation, which was exacerbated during the conflict.
It has also meant they have been sidelined by mainstream post-conflict
and peacebuilding efforts.
2.1.4. With the support of WK, DEMUS initiated a
peace and reconciliation programme in Manta in 2004[152]
to tackle these problems. They began by producing an appraisal
of conflict related issues still affecting the population. Following
initial meetings with residents they realised that: the community
remains fragmented and distrustful of one another and outsiders;
issues such as sexual violence perpetrated against women remain
highly sensitive and taboo; women are often reluctant to share
their experiences for fear of shame and social exclusion; and
men have yet to deal with the feelings arising from their failure
to protect the women.
2.1.5. With the support of WK, DEMUS has gained the
trust of the community by adopting a sensitive and gradual approach
to starting the process of exploring people's experiences of the
conflict, and in particular, those of the women. In this way,
DEMUS plans to help rebuild the community and to develop a model
of best practice that can be applied elsewhere in Peru.
2.1.6. Through its work with the Manta community
in Peru WK has learnt that the impacts of conflict endure for
decades, even generations[153]
and will not be lessened or resolved until they are dealt with.
This highlights the importance of post-conflict programmes in
countries that have been post-conflict for some time. The sensitive
nature of the human rights violations committed during the conflict
in Manta has also taught us that the concept of justice needs
to be defined by the community so they can begin the process of
realising justice in a culturally appropriate manner.[154]
2.2. Women's contribution to reuniting a war
torn country (Somalia)
2.2.1. Following state collapse in 1991, Somalia
has been without a central government and has experienced serious
inter-clan warfare. The sustained and violent interclan warfare
between Somalia's five fiercely independent clans has resulted
in widespread poverty and deprivation, impacting women the hardest
in this strictly patriarchal society. Women have experienced multiple
human rights violations in the form of rape, displacement and
violence. A peace and reconciliation effort was launched in 1999
but failed to incorporate women into the process.
2.2.2. WK and its partners, Save Somali Women and
Children (SSWC), have challenged women's exclusion by initiating
the formation of a 'sixth' clan consisting of women, which has
been officially recognised and incorporated into the peace process.
This has provided women with the opportunity to negotiate their
gender specific needs and interests and participate in politics
and the formation of a democratic government planned for 2010.
Women's involvement has been key in uniting disparate clans and
gaining the trust of the population. A significant achievement
was their negotiation of the removal of militia roadblocks and
the provision of livelihood support for the demobilised militia.
By forming the sixth clan women have played a vital part in bringing
peace to Somalia and have opened up a new space for the participation
of women.
2.3 Empowering women to find a voice in transitional
times (Afghanistan)
2.3.1. WK's Afghanistan programme began
in 2001 with the aim of integrating gender issues at the outset
of national reconstruction efforts and advocating for the rights
of Afghan women together with local women's organisations. To
that end WK helped establish the Working Group for the Rights
of Afghan Women.
2.3.2. Since 2003, we have been providing
technical and financial assistance to three Afghan women's groups[155].
The work focuses on the promotion of women's civil and political
participation through civic education programmes with women and
young girls, equipping and enabling them with the knowledge, skills
and resources they need to take an active part in their country's
post-conflict reconstruction. Specifically, together with local
partners, WK has enabled greater numbers of women to vote, stand
for elections and be trained as election observers, as well as
helping to shape policy.
2.3.3. Despite progress at this level, women continue
to face 'conflict' in their daily lives through violence in the
home and lack of security outside the home. Gender-based violence
against women constitutes a serious impediment to the participation
of Afghan women in public life, and to their participation in
the economic sphere, as well as the obvious damage to their physical
and mental health. Our experience of working with communities
and women on the ground demonstrates that although post-conflict
situations offer opportunities for new roles for men and women,
in Afghanistan as elsewhere, the complexities of gender relations
mean that there are no quick and easy solutions and what is required
are long-term strategic interventions grounded in local realities
and contexts.
Recommendations
WK welcomes the UK government's support of Security
Council Resolution 1325 and specifically its development of a
national action plan to implement the provisions of 1325. We also
welcome the government's efforts to promote cross-departmental
planning and strategising around conflict prevention and peacebuilding
with initiatives such as the Post-Conflict Reconstruction Unit
(PCRU).
However, we believe that the UK government could
significantly improve its peacebuilding and post-conflict reconstruction
policies by acting on the following recommendations:
General recommendations
The UK government should:
- Increase resources and support for the accelerated
implementation of existing commitments
to promote women's equal participation with men in all aspects
of conflict prevention, resolution and peacebuilding processes,
including the commitments set out in UN Security Council 1325,
the Beijing Platform for Action and CEDAW, and those of lesser
known and/or applied instruments, such as UN Guiding Principles
on Internal Displacement (Francis Deng Guidelines), the four Security
Council Resolutions on Children and Armed Conflict (1612/2005;
1539/2004; 1460/2003 and 1379/2001) and the work of the UN Special
Representatives and Rapporteurs, particularly the UN Special Rapporteur
on Violence against Women.
- Place the promotion of human rights, and,
in particular, women's human rights, at the centre of all its
policies to ensure that women's equal
participation in all aspects of decision-making and their freedom
to live lives free from violence are central to all conflict prevention
and peacebuilding initiatives.
Conflict prevention & peacebuilding
The UK government should:
- Support women's contributions to operational
conflict prevention by increasing resources
and support for early warning systems (EWS) to monitor countries
at risk of conflict, with a gender perspective, including gender-sensitive
indicators of conflict, fully integrated into the EWS
- Promote women's participation in peace processes
by providing greater support for women's effective participation
in all stages of peace processes, promote gender-sensitive peace
negotiations and agreements and encourage the mainstreaming of
a gender perspective throughout the implementation of peace accords
- Support informal and innovative grassroots
initiatives led by women's organisations, which
can be a significant force for change by increasing the inclusiveness,
transparency and sustainability of peace processes and reconstruction,
as highlighted in this submission, through locally driven, locally-owned
and inclusive processes
- Pay greater attention to 'forgotten', less
visible conflict and post-conflict communities in countries such
as Peru, Nicaragua and Zimbabwe, which
are often neglected by official peace processes
- Encourage the integration of a gender perspective
in Disarmament, Demobilisation & Reintegration (DDR) processes
- women actively participate in conflict as armed combatants,
yet their distinct needs are often ignored in official DDR processes.
Their knowledge and insights, whether they are peacebuilders,
former combatants or simply members of affected communities must
be taken into consideration in DDR processes. Governments must
also provide greater support for unofficial DDR programmes, such
as WK's programmes in Peru and Somalia, since these are frequently
sidelined, but play a vital role in providing support to the most
excluded, including those not reached by mainstream DDR programmes
- Support the integration of a gender perspective
in Truth & Reconciliation Commissions and
ensure that women's human rights violations are documented and
prosecuted in accordance with international laws and standards
- Widen the scope of post-conflict
work, which usually focuses on rebuilding the infrastructure
and the economy, to include the rebuilding of social capital and
civil society and to promote long-term sustainable advances in
gender equality and women's empowerment
- There is a need to recognize the very significant
contribution of Women's Human Rights Defenders
in peacebuilding, towards the advancement of human rights
for all people. It is vital to ensure that these activists can
expect to operate in an environment that is not only safe, but
also actively supportive of their work.
The UK & Global Peacebuilding Efforts
- Peacebuilding Commission -
we welcome the establishment of a Peacebuilding Commission (PBC)
and support the commitment to integrate a gender perspective into
the work of the PBC and involve women equally in all aspects of
conflict prevention, resolution and peace-building. This reinforces
the goals agreed upon in SC Resolution 1325. WK urges the UK government
and other stakeholders to ensure that these principles are acted
upon in all aspects of the implementation of the PBC's work. WK
further recommends that the PBC extends its mandate to conflict
prevention, as well as post-conflict reconstruction
- Responsibility to Protect
- the Responsibility to Protect framework is currently gender
blind, which seriously limits its usefulness. The UK should take
the lead in ensuring that existing experience and research on
gender, peace & security are incorporated into all 3 segments
of the R2P framework - i.e responsibility to prevent, responsibility
to react and responsibility to rebuild - with particular attention
paid to CEDAW and UN SC Resolution 1325.[156]
January 2006
147 The Representatives and Rapporteurs provide analysis
and independent advice to the UN via the Secretary General's office,
which helps shape policymaking at an official level. They can
collate evidence on abuses against women and men over a period
of time, either as an individual organisation, or on a national
or regional basis, or by type of abuse. As with the UN Declaration
on Human Rights, reports produced by Representatives can be presented
as recommendations of the UN and used to highlight instances or
patterns of abuse Back
148
For further details of our work in these countries, visit: www.womankind.org.uk/where-we-work.html Back
149
Based on the recommendation of the report, which documented Human
Rights violations during the conflict. A analysis to this report
was written by Amnesty International (See publication AMR 46/003/2004/s) Back
150
Manta is in the Department of Huancavelinca in the West of Peru. Back
151
Human Rights Abuses in Manta included torture, rape and the associated
forced pregnancy and enslavement. Back
152
Dfid agreed to provide support to WK towards this project at the
end of last year. Other funders are UNIFEM which has supported
the programme for 8 months and PCS, an international agency supported
by European and North American funders. Back
153
This is due to the fact that many of the children in Manta were
fathered by the military either by consensual relations or sometimes
by rape. These children are identifiable because they were obliged
to assume their fathers' names. They face discrimination and social
exclusion. Back
154
A challenge of this process is ensuring that culture does not
become a justification for failing to address crucial issues such
as violence against women. Back
155
WK's partners in Afghanistan are the Afghan Women's Educational
Centre (AWEC), the Afghan Women's Resource Centre (AWRC) and the
Afghan Women's Network (AWN). Back
156
For a current and in-depth analysis of both why and how gender
should be integrated into the various aspects of the R2P framework,
see UNRISD publication New Voices, New Perspectives. "A
Sight for Sore Eyes: Bringing Gender Vision to the Responsibility
to Protect Framework" at http://www.un-instraw.org/en/index.php?option=content&task=blogcategory&id=155&Itemid=215
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