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Women at The Peace Table - Making A Difference
Women at The Peace Table - Making A Difference
AT THE
PEACE TABLE
Making a Difference
Sanam Naraghi Anderlini
1 Preface
5 Introduction
10 Chapter 1: The First Steps to the Peace Table
Women’s Activism
Drawing on the Strength of the Women’s Movement
❖ South Africa, Northern Ireland, Guatemala
Building Peace Movements in the Midst of War
❖ Liberia, Burundi,Georgia, Palestine
Negotiating Equality During Post-Conflict Reconstruction
❖ Cambodia
54 Conclusions
59 Notes on Contributors
62 Acronyms
63 References
“Human beings are like parts of a body,
UNIFEM extends its sincere thanks and gratitude to Dr. Hanan Ashrawi,
Mrs. Mary Brownell ,M s . Cheryl Carolus,Mrs. Nani Chanishvi l i ,M s .E m m a
Chirix, Senator Piedad Cordoba Ruiz,Ms. Bozqul Dudkhudoeva ,M s . Helen
Jackson, Ambassador Georg Lennkh,Mrs. Luz Men de z ,D r. Marjorie
Mowlam,Mrs. Alice Ntwarante,Mrs. Imelda Nzirorera ,M rs . Ruth S. Perry,
and Minister Mu Sochu a ,a ll of whom took time out of their busy schedules
to speak at length about their experiences. Without them, this book would
not have been possible.
We would also like to thank all those individuals and organisations who
contributed time, resources and ideas, often at very short notice.
They include: Rana Malki of the Palestinian Initiative for the Promotion of
Global Dialogue and Democracy; Sheree Dodd and Gail Kingsbury of the
Secretary of State’s Press Office in Northern Ireland; Tracy Temple of the
Cabinet Office in the United Kingdom and Michelle Bayley of the Cabinet
Press Office; Roshan Dadoo of the South African High Commission in
London; Afsar Farman of Cleary Gottlieb Stein and Hamilton; Debbie Kolb
of the Center for Gender Organisation, Simmons College ;E n gelbert
Theuermann of the Austrian Mission to the United Nations; David Lord
and Vida Cofi-Robertson of the UN Department of Political Affairs; Karen
Orenstein of the East-Timor Action Network and Massoumeh Farman-
Farmaian of MFF Associates New York. We would also like to acknowledge
Ndeye Sow and Prof. Ed Garcia of International Alert; Mrs. Thandi Modise,
Dr. Luca Anderlini and Mr. Fraser Cameron of the European Union
Delegation to Washington, DC; and Dr. Sabbar Farman Farmaian, who
provided important advice and support.Finally, a special thanks is
extended to UNIFEM staff members, both in New York and in the field
offices, who made valuable contributions to this process.
Lysistrata: In the last war we were too modest to object…
Magistrate:: Quite right too, by Zeus.
Lysistrata: Right? That we should not be allowed to make the least
suggestion to you, no matter how much you mismanage the City’s
affairs? …That’s why we women got together and decided we were
going to save Greece…
Magistrate: But the international situation at present is in a
hopeless muddle. How do you propose to unravel it?
Lysistrata: Well, take a tangled skein of wool for example. We take
it so, put it to the spindle,unwind it this way, now that way. That’s
how we’ll unravel this war, if you let us…
Magistrate: Are you such idiots as to think that you can solve
serious problems with spindles and bits of wool?
Lysistrata: As a matter of fact, it might not be so idiotic as you
think to run the whole city entirely on the model of the way we
deal with wool…The first thing you do with wool is wash the
grease out of it; you can do the same with the City. Then you
stretch out the citizen body on a bench and pick out the burrs –
that is, the parasites. After that you prise apart the club-members
who form themselves into knots and clots to get into power, and
when you’ve separated them, pick them out one by one. Then
you’re ready for the carding: they can all go into the basket of
civic goodwill… Not only that, Athens has many colonies.
At the moment these are lying around all over the place, like
stray bits and pieces of fleece. You should pick them up and bring
them here, put them all together, and then out of all this make
an enormous great ball of wool – and from that you can make
the People a coat.
bridges and strengthen The end of the Cold War sparked hopes of new possibilities for
higher levels of cooperation among countries. Instead, the
partnerships between number of nation-states has increased, breaking along the fault
lines of ethnicity, language and religion, and fueling more
the United Nations, intra-state conflicts than at any time in human history. The
battlefield has moved to the village, the street and the home.
governments and civil Civilians represent the overwhelming majority of the victims
of war, with women and girls targeted for special forms of
society organisations in attack. They are raped, forced into marriages, abducted by
warring groups and exposed to the scourge of HIV/AIDS.
our collective effort to Even as women around the world are finding many new
platforms to express their ideas and concerns, women's
build sustainable peace priorities in countries suffering armed violence continue to be
largely marginalized. This occurs in large part because women's
and human security voices are rarely heard at the peace table. To change this situa-
tion and to curtail the cycle of poverty and violence that results,
throughout the world.” we must continue to support women’s leadership in times of
peace, but we must also make greater efforts to assist their
—Noeleen Heyzer attempts to participate as decision-makers in times of war.
Executive Director, UNIFEM An important first step is to recognize that despite the many
challenges they face, women across Asia, Africa, Europe, and
North and South America are already at the forefront of many
peace efforts. At the grassroots and community levels, women
have organized to resist militarisation, to create space for dia-
logue and moderation, and to weave together the ripped fabric
of society. They have spoken against the use of violence as a
strategy for personal or communal gain, and they have fought
for recognition of the fact that violence can never be compati-
ble with human development. Women’s commitment to peace
also remains critical to ensuring the sustainability of peace
agreements signed by political and military factions.
Within the UN system, UNIFEM is playing a lead role
in highlighting the different ways in which women can be
empowered to become leaders at all levels of peace-building.
Since 1993, the fund has supported a comprehensive programme
2 Women at the Peace Table: Making a Differ e n c e
Noeleen Heyzer
Executive Director, UNIFEM
"We looked at peace-making not as a personal agenda for
power, but as issues dealing with life and death. We did not
try to appease each other. Most of our dialogue was very, very
—Hanan Ashrawi
Introduction
“Peace accords are often The negotiations leading to peace are never simple. They are
wrapped in history and identity, in the struggle for power and
seen as a culminating the quest for justice, in personal loss, grief, fear and uncertain-
ty. In contemporary civil wars and internal conflicts, where
point of a peace process. violence reaches into homes and villages, sometimes pitting
neighbours against each other, peace cannot be imposed from
In the language of above. The burden of peace-making and peace-building must
be shared by all members of society.
governments and the Yet from Dayton to Rambouillet, Arusha to Colombia, it is
predominantly male leaders of the fighting parties who are
military, the accords negotiating an end to war and laying the foundations for
peace.2 The justification often given is that the peace table must
are referred to as an bring together those who have taken up arms, because it is
up to them to stop the conflict. While this argument may
end-game scenario… hold true for negotiations to secure an end to hostilities, it can-
not be sustained for the discussions that build the framework
In reality, the accords for a new society. The process of reconstructing a society
emerging from war requires the equal contributions of
are nothing more than men and women. Ensuring women’s participation in such
negotiations enhances the legitimacy of the process by making
opening a door into a it more democratic and responsive to the priorities of all
sectors of the affected population.
whole new labyrinth The peace table is not a single event. It spans the entire
process of negotiations, often beginning in the midst of war,
of rooms that invite and continuing through the various phases of the transition to
peace. It is the pivotal component of a process that addresses all
us to continue in the aspects of peace-making, and provides a platform for negotiat-
ing agreements on new legislation, structures of governance
process of redefining and social institutions. The wide spectrum of issues covered
under the agenda of peace negotiations can include: power-
our relationships.” sharing agreements; economic reconstruction; demobilization
and reintegration of soldiers; legislation on human rights;
—John Paul Lederach1
access to land, education and health; the status of displaced
people; and the empowerment of civil society. These issues
have long-term effects on the lives of every man and woman,
not least because the civilian population is largely responsible
for translating the agreements reached into concrete initiatives
6 Women at the Peace Table: Making a Differ e n c e
for reconstruction long after the ink has process. The case being put forth here is that
dried on the accords themselves. women with an understanding of social jus-
The aim of this publication is to tice and of the ways that gender inequality
advance discussions on the impact of hinders human development can make
women’s contributions to peace negotia- peace negotiations more constructive ,m ore
tion processes. Through a series of inter- inclusive and more sustainable. Their
views with women who have played absence from this process results in setbacks
prominent roles in peace processes to the development of society at large and
around the world, it outlines the chal- undermines democracy.
lenges they have faced, the strategies they International consensus has already
have developed to bring their voices to been reached on the need to include
the decision-making arena, and the dif- women in all aspects of decision-making
ference that they have made through their related to peace. The UN General
efforts. Women at the Peace Table: Making Assembly has passed resolutions calling for
a Difference is far from being a definitive women’s increased participation.3 The
study, and it does not presume to repre- Beijing Platform for Action, signed by 189
sent the views of all women participating countries at the 1995 UN Fourth World
in peace processes. It seeks simply to Conference on Women, promotes women’s
explore the issues through the perspec- equal participation at all stages of the
tives of women leaders who are breaking peace process, including at the level
new ground in peace-making, shaping of decision-making.4 The Convention
civil society and strengthening democra- on the Elimination of All Forms of
cy in their countries. Discrimination Against Women, ratified
to date by 165 countries, calls for using
The Case for Women’s Participation quotas and reservations to increase
the number of women at all levels of polit-
Some observers argue that women who ical decision-making.5 Various regional
participate in peace negotiations behave no organizations and national governments
differently than their male counterparts. have taken important steps to implement
They may not represent the views and con- these agreements.
cerns of women at large; they are often International resolve to safeguard
divided along political, racial and ideologi- women’s human rights in conflict situa-
cal lines; and they may not be more compe- tions has also been strengthened in recent
tent peace-makers than men. In reality, both years, in response to the increased targeting
men and women exert positive and negative of women as weapons of war. The ad hoc
influences on peace talks, and often individ- criminal tribunals for Rwanda and the for-
ual personalities sway the dynamics of the mer Yugoslavia have made unprecedented
Introduction 7
peace table becomes a platform for trans- have adopted in their efforts to reach the
forming institutions and structures, and formal peace table. Chapter Two reflects
opening the door to greater social justice. on their experiences at the peace table
With a clear international mandate and itself,including the contributions that they
a wealth of knowledge derived from their have made. Chapter Three is a brief survey
practical experiences in building peace of international commitments to increase
within communities, women have a strong women’s participation in peace negotia-
justification for claiming equal participa- tions and related decision-making
tion at the peace table. Many of the women processes. It offers examples of concrete
taking the lead in promoting visions of ways in which women have harnessed
peace and social justice are emerging these agreements to advance the peace
through community-based groups, agenda at national and international levels.
women’s movements and civil society Inevitably, this discussion will raise far
organizations. Some are now making their more questions than it can answer. The
way into the arena of political decision- views expressed here are those of a small
making. Their efforts in this direction number of women speaking on the sub-
would benefit from increased national, ject of strengthening women’s leadership
regional and international support. in peace-making. Some observers would
The women interviewed for this book argue that the contributions of women
form part of a growing movement that is from one side of a conflict should be
determined to push forward an agenda matched with those of women from the
advocating inclusion, equality and a other side; that the views of these women
notion of peace defined in terms of should be compared to the those of men;
human security.9 In working to strength- and that grassroots perspectives should
en partnerships between governments be given as much prominence as the
and civil society, these leaders are helping reflections of women in higher levels of
to transform the structures and institu- political leadership.
tions that perpetuate the injustices and Within the constraints of space and
inequalities often lying at the root of war. time, we have attempted to draw upon
experiences and perspectives from diverse
A Brief Outline regions and sectors. The contributors to
this publications include government
The chapters presented here cover three representatives, civil society leaders, and
broad areas based on the narratives of the some who have served in both capacities.
contributors. Chapter One provides an Some have been most active in the
overview of the obstacles that these pre-negotiations phases, others have been
women have faced and the strategies they negotiators or played consultative roles,
Introduction 9
"The people who know Whether or not they are invited to the peace table, women in
war zones around the world are mobilizing to assert their right
war, those who have to participate in a process that bears consequences affecting all
aspects of their lives. For them, the peace table is a forum not
experienced it...are the only for negotiating the end to war, but also for laying the
foundations of a new society guided by the principles of social
most earnest advocates justice, human rights and equality. Women are making clear
that they will no longer shoulder the responsibility of support-
of peace in the world." ing their families and communities, serve at the forefront of
anti-war movements, or fight alongside male combatants2
—Dwight D. Eisenhower 1
without an equal opportunity to voice their ideas in official
peace negotiations.
Although there is an emerging international consensus that
women have the right to participate in political power and
decision-making processes, most of the opportunities that
have arisen in recent years have been confined to peacetime
politics. Women’s efforts to participate in peace negotiations
processes have met with more limited success, in part because
the obstacles in many cases are greater. The polarized and tense
atmosphere of conflict negotiations tends to reinforce prevail-
ing social attitudes that exclude women. Political power usual-
ly rests firmly in the hands of an exclusive, predominantly male
elite. They regard the concerns and actions of women, be they
public marches or cross-community development projects, as
separate from the formal political processes. “Gender is an
issue that has little or no interest to the political parties and has
even less appeal to the instigators of war,” says Senator Piedad
Cordoba Ruiz, a staunch champion of both peace and women’s
rights in Colombia. A clear demonstration of this occurred at
the Burundi peace talks, where male delegates told the facilita-
tor, “The women are not parties to this conflict. This is not
their concern. We cannot see why they have come, why they
bother us. We are here and we represent them.”3
Resistance to women’s participation in peace negotiations is
evident across regions and sectors of society, and throughout var-
ious stages of the transition process. Many within Guatemala’s
indigenous communities perceive the political mobilization of
The First Steps to the Peace Ta b l e 11
women as a direct threat to their culture the immediate dangers receded, the men
and traditions. Long-time peace activist adopted a very patronizing, patriarchal
Emma Chirix says that even a significant attitude of “good for you, you’ve done your
number of indigenous women themselves national duty, now go back to the kitchen.”
express little interest in the goal of Women’s efforts to participate in formal
women’s empowerment and education. In peace processes are often curbed by securi-
the ex-Soviet republics, although women ty concerns. In Colombia, Senator Cordoba
attained equal access to education during Ruiz was abducted and physically threat-
the communist era, a combination of ened for her efforts to facilitate a dialogue
economic decline and nationalism has process for peace among parties to the
today increased the conflict. In Georgia,
marginalization of peace activist Nani
women in political Chanishvili, now a
dec i s i on - m a k i n g, Member of Parlia-
including in national ment, was held
and regional peace- hostage by Abkhaz
making fora. separatists. Although
Even women such concerns are
who have played an not limited to
active role in con- women, the culture
flicts have found of militarism that
themselves pushed permeates societies
Women's peace activism is paving the way
aside with the in conflict can rein-
for new laws and policies that emphasize
advent of negotia- women's rights and equality. force gender-based
tions. In Kashmir, discrimination. In
the justification for excluding women,says Cyprus, says Sevgul Uludag, a journalist
human rights activist Rita Manchanda, is and founder of the Women’s Research
“that their involvement would make them Center, members of the Women’s
more vulnerable.”4 She argues that they are Movement for Peace and a Federal
already targeted by militias on all sides, but Solution in Cyprus were derided by
that at least by being involved in the polit- local newspapers as “sexual maniacs” and
ical dialogue they have a voice. In Palestine, were told to sit at home and care for
although the peace process is not yet their children.5
complete, women are once again experi- Since women’s peace activism has
encing pressure to return to their been largely confined to grassroots and
traditional roles. Veteran peace activist and civic organizing, women often face an
negotiator Hanan Ashrawi says that when uphill struggle to reach official political
12 Women at the Peace Table: Making a Differ e n c e
structures, partly because they lack women resisted the military recruitment
resources or experience in developing of husbands and sons through hiding
effective strategies for engagement. The them, lying to the authorities and even
Northern Ireland Women’s Coalition arriving at the front lines to take them
barely had sufficient funds to publish a home.7 In Colombia, women walked
manifesto and campaign effectively together to the most violent regions in the
during the 1996 elections, and despite an country as part of the Peaceful Road of
estimated 400 women’s groups working Women campaign.
on peace-building and reconciliation Women’s peace activism is fostered in
in the region there is still limited some places by the more general women’s
participation of women in political power movement and the struggle for women’s
structures. In Bosnia, says Mevlida rights and gender equality. In other cases,
Kunosic-Vlajic, a former chemical it is simultaneously paving the way for
engineer turned parliamentarian and women’s involvement in official peace
peace activist, women actively supported negotiations and nurturing women’s
the war effort by caring for soldiers and activism on a range of other development
becoming the primary income earners for issues. A common theme that emerges
their families. They were excluded once through this publication is that strong
the peace process began in 1995, women’s civil society organizations culti-
however, because they had little under- vate skills and broaden opportunities
standing of how to strategize politically. for women to gain entry to the peace
Kunosic-Vlajic recalls, “We kept asking process. In the turmoil of conflict,
ourselves, what is our role in society women’s activists are coming together to
now? What is our role in the family? articulate new social agendas that link
We are not needed.”6 peace to critical development issues. They
are mobilizing public support and sway-
Women’s Activism ing powerful political structures to create
new laws and policies.
In spite of the obstacles they encounter, They are also forming strong coali-
women in all regions of the world are tions that use gender to bridge deep
devising creative and effective strategies political, ethnic and religious divides. In
to advocate for peace and to participate protracted conflicts such as the one in
in peace-making processes. In the Northern Ireland, women collaborated
Philippines, women initiated village on cross-community programmes relat-
peace zones to protect their children from ing to child care, health and micro-
recruitment by militias and the state enterprise. In Rwanda, Burundi and
army. In the Balkans and the Caucasus, Bosnia, they have been at the forefront of
The First Steps to the Peace Ta b l e 13
of the negotiations process was held in As the following cases from South
our own political party structures and Africa, Northern Ireland and Guatemala
in our own civil society organs.” Having indicate, existing networks of women’s
seen other women’s liberation movements groups can assist in activities such as
fall by the wayside when the peace talks launching a political campaign, rallying
began, the South Africans were deter- support for anti-war actions and
mined to secure their place in the official advocating for participation in decision-
negotiating teams. She says, “We were making processes.
not going to allow ourselves to be treated
so badly, after we had made equal ❖ South Africa: The Principle of Inclusion
contributions and sacrifices to the strug- South Africa’s apartheid policy started in
gle for liberation.” the 19th century, when white settlers
adopted a policy to exclude the indige-
Drawing on the Strength of the nous black population. During the
Women’s Movement 1940s, a system of oppression came
The existence of a strong women’s into full force, with every citizen in the
movement can provide important oppor- country classified according to race:
tunities for women to enter political black, coloured, Asian, or white. The cat-
processes. Where there is a tradition of egories determined people’s place of
women’s activism, there tends to be a abode, their education, the professions
higher level of consciousness regarding they could enter, whom they could marry,
political, cultural, economic and social and their political rights. The majority
issues. This can be mobilized for peace black population was forced to live in
activism, while existing networks and townships, often far from their place of
political experience can provide a plat- work. Between 1945 and 1991, an esti-
form for women to lobby for access to mated 11 million people were arrested for
peace negotiations. Women’s civil society violating the segregation laws.
organizations are also critical to the The government policy was to keep
development and the realization of the black population oppressed and
women’s full capacities for leadership. under-developed, but available for menial
Reflecting on her experiences in South work. Uprisings and protests were vio-
Africa, Cheryl Carolus says, “My main lently suppressed, and countless black
line of organization was always in the leaders of the battle for freedom were
women’s movement. I really grew and killed and arrested, but the struggle to
developed because of the way women in end apartheid never died. By 1990, the
these organizations nurtured me and gave weight of international pressure and
me opportunities.” sanctions had forced President P. W.
The First Steps to the Peace Ta b l e 15
de Klerk and moderates in the ruling issues. Carolus remembers what hap-
National Party to concede that the exclu- pened when an organization called Black
sion of the majority from political Sash, which consisted mainly of the
processes was no longer feasible. After liberal wives of English speaking big busi-
27 years in prison, independence leader nessmen, found itself in an anti-apartheid
Nelson Mandela was released. In 1991 a federation with the Domestic Workers’
national peace accord was signed, fol- Union. “It would never have occurred to
lowed by a draft Constitution in 1993. In them to speak to their domestic workers
1994, Mandela and the African National at home,” Carolus says. “Now they were
Congress won the country’s first free part of a coalition where the president
and fair elections. was a domestic worker. Together, both the
Women were extensively involved in rich and poor women became aware that
the political struggle, and reached high they had suffered in many of the same
level positions in major political organi- ways. They realized that rich and poor
zations such as the African National men can treat women with the same
Congress (ANC). For many women, the humiliation. So it was coming together
tradition of local activism became a around the issue of dignity.”
training ground for work in larger arenas. In the years leading up to the 1994
In the early 1980s, community organiza- elections, activists formed a strong
tions for women grew out of concerns National Women’s Coalition that cut
over housing and safety issues. “Women across racial, social and political lines.
were more likely to join women’s organi- Realizing that women had an historic
zations, because if they belonged to gen- opportunity to contribute to reconcilia-
eral civic groups with their husbands and tion through the writing of South
they disagreed with him, they couldn’t say Africa’s Constitution, the coalition
so,” says Cheryl Carolus. “We spent a lot mobilized grassroots political support
of time talking about the status of women around an ANC proposal that women
in transformation at the community level should be equally represented among the
and our involvement with the liberation negotiators. Despite shouts of tokenism,
movement. At some point, women start- the resolution passed. Today, South Africa
ed moving into broader civic structures, has one of the most democratic govern-
and we felt dispirited. But then we real- ments in the world, and a constitutional
ized that maybe this was an important guarantee of equality. Attitudes have
role of the women’s movement.” started to change too. “If women aren’t
The anti-apartheid struggle brought part of some important body or activity,
women from across the social and racial people ask why they aren’t there,”
spectrum together around common Carolus says.
16 Women at the Peace Table: Making a Differ e n c e
She adds, “I cannot overemphasize the 1969, a campaign of violence began. At the
need for women to organize together as heart of the conflict lay the identity and
women, to make sure that there is a ownership of the province, with Catholics
coherent movement, that we listen to one hoping for reunification with the Republic
another, that those of us who are sitting in of Ireland and Protestants seeking to
the process are considering the needs and remain loyal to the British government.
concerns of all women. Everything else The conflict, characterized by public bomb-
flows from there.” ing campaigns in the province and in
mainland Britain, continued for many
❖ Northern Ireland: years, with failed attempts at bringing
A Women’s Political Party resolution. In 1985, the
While they were outside of Anglo-Irish Agreement was
the political hierarchy, some "I cannot overemphasize signed, and although the
400 grassroots women’s violence did not cease, it set
the need for women
peace organizations were the stage for exploratory
active in Northern Ireland to make sure that those talks. The Downing Street
for over a decade before of us who are sitting Declaration followed in
peace talks began in 1985. in the process are 1 993, and although neither
Working on issues such the Republicans nor the
considering the needs
as childcare, education, Unionists were fully satis-
health, and micro-enter- and concerns of fied with it, a cease-fire was
prise, women from both all women." decl ared the following year.8
the Catholic and Protestant In 1996, international
communities came together mediator George Mitchell
Cheryl Carolus
for dialogue and collabora- entered the process, declar-
tion. When it became ing that a primary condi-
necessary for women to tion for participation in the
launch a formal political campaign for par- official talks was that parties had to be
ticipation at the peace table, the women’s elected; the top ten parties in the region
movement proved to be a powerful force. would be included. For smaller political
Although the Northern Ireland parties and community-based action
conflict dates back to Anglo-Irish dis- groups, the six-week preparation time for
putes that began in the 12th century, the the elections was daunting. However, for
latest cycle of violence between Catholics the countless women’s groups and organi-
and Protestants was re-ignited in 1968 zations that had spent years working
when Catholic civil rights activists con- across communities, breaking new ground
fronted the Royal Ulster Constabulary. In and building peace at that level, the idea of
The First Steps to the Peace Ta b l e 17
being excluded from the official talks struggle between the US-backed military
process was unacceptable. and a variety of rebel and guerrilla forces,
A small group of women activists con- and escalated throughout the 1970s. The
vened a meeting, inviting representatives country’s large indigenous population
from over 200 women’s organizations to was already oppressed and poverty-
strategize and intervene in the elections stricken, but as the war seeped into the
process. The result of this meeting was countryside, indigenous people too were
the creation of the Northern Ireland recruited by the guerrilla forces. In 1982,
Women’s Coalition (NIWC). It was the the rebels united to form the Guatemalan
first women-dominated political party, National Revolutionary Unity (URNG).
with members from both the Catholic In the months that followed, the army
and Protestant communities. To manage intensified its efforts, and the scale of ter-
the diversity of their constituency, the ror and destruction reached new heights.
NIWC declared that its three guiding By 1983, the URNG was weakened, and,
principles would be inclusion, equality with US encouragement, the army agreed
and human rights. By galvanizing women to return the country to civilian rule.
at the grassroots, the NIWC succeeded in Presidential and legislative elections were
winning two seats in the local elections. It held in 1985. Peace negotiations began in
came in ninth overall, but this was suffi- 1987, with the final peace agreement
cient to secure a seat at the peace table. being signed in 1996.
In the decade long process that led to this
❖ Guatemala: Visibility for All final agreement, civil society organizations
In Guatemala, women were active in all joined together with political parties to
aspects of the 36-year-long civil war, and a identify issues of concern and draft propos-
politically-inclined women’s movement als at the Assembly for Civil Society (ACS).
existed with links to the formal political These were presented to the parties directly
parties. As the peace process commenced, involved in the negotiations. The presence
women began to play key roles in both civil of women in the ACS and also at the peace
society forums and at the peace table. The table created a number of opportunities for
existence of a cross-party and cross- women from all sectors of society, says Luz
sectoral women’s coalition enabled the Mendez, the coordinator of the National
nascent indigenous women’s movement to Union of Guatemalan Women. The Co-
gain entry to the peace process, giving voice ordination of Organizations of the Mayan
and visibility to the needs of Guatemala’s People of Guatemala (COPMAGUA), rep-
indigenous women’s population. resenting over two hundred organizations,
The conflict in Guatemala was typical also played a critical role in advocating for
of the cold war era. It began in 1960 as a and securing rights for indigenous peoples.
18 Women at the Peace Table: Making a Differ e n c e
In March 1995, largely due to its efforts, development aid, and led to the establish-
the Accord on the Identity and Rights of ment of the Office for the Defense of
Indigenous Peoples was officially signed by Indigenous Women.
all parties.
While indigenous groups first began Building Peace Movements
condemning the war and making a claim for in the Midst of War
equal treatment in the early 1980s, the rights The chaos of conflict sometimes sweeps
of indigenous women were overlooked until aside traditional structures and norms,
the 1990s. With little or no access to health bringing women into the public sphere.
care or education, these women are This can occur regardless of whether there
among the most dis- is a well-developed
advantaged sectors of women’s movement
Guatemalan society, already in place. As
says Emma Chirix, a conflict fatigue sets
founding member of in, the momentum
Kaqla, the Guatemalan for peace activism
Indigenous Women’s builds. Ruth Perry, a
Organization. Through founding member of
her affiliation with the Liberian Women’s
COPMAGUA, Chirix Initiative and later
succeeded in speaking Head of the National
out about the rights of State Council of
Social and political transformation often
indigenous women. Liberia, says there
begins in the midst of conflict, when women
However, the main assume new leadership roles. comes a time when
breakthrough came women say, “Enough
when the national women’s organizations is enough. We are tired of hiding in the
embraced their cause. Within the ACS, a bushes,eating grass and burying our dead.”
women’s sector was formed to bring Women often take the lead in move-
together different women’s groups, includ- ments that arise in the midst of a conflict
ing those representing indigenous women. partly because men are away fighting or
This acceptance and support was critical.“It face greater risk of persecution and arrest.
was through (the women’s movement) that Ironically, because women are regarded as
the indigenous women gained entry into less threatening to the established order,
the peace process,” says Chirix. Their pres- they tend to have more freedom of action.
ence in civil society forums and at the peace In some instances, they can make public
table subsequently drew attention to their pleas for peace by taking advantage of
living conditions and need for legal and sexist notions that for the most part
The First Steps to the Peace Ta b l e 19
The women ‘caught the vision,’ and by bought poster sheets and made posters so
January 1994, the Liberian Women’s that almost every woman could have one.
Initiative (LWI) was formed. The move- They said,‘Please stop the war. Please stop
ment was open to all women, regardless the fighting. We are dying.’”
of ethnic, social religious or political The primary goal of the LWI became
background. “Once you wanted peace in to attend the regional peace talks and
Liberia, you were part of us,” Brownell advocate grassroots perspectives directly
says. “So we had the illiterate women and to the faction leaders. In the early days,
those with doctorate degrees. All of us funds were raised by auctioning cakes and
made up the LWI.” organizing other informal events.
The strategy they adopted was to take Eventually, assistance came from a
a unified stance on issues that affected variety of sources, including internation-
everybody. “We needed to have one voice, al donors, and the women were able to
and we chose disarmament before elec- attend regional peace talks. The war
tions as our point for advocacy,” says Ruth lords were reluctant to acknowledge their
Perry. The group was strengthened in its existence, says Brownell, and wondered
resolve in 1996 when it witnessed the where “we were getting money from to be
breakdown of the Sierra Leonean peace travelling everywhere!” But the women’s
accords. “Sierra Leone had the best agen- persistence paid off. The LWI representa-
da in terms of what they were doing for tives,although never official participants at
peace,” says Perry. “Unfortunately, the the peace table, proved to be highly influ-
Sierra Leoneans did not go all over the ential consultants during the process, and
country to talk about disarmament. So acted as monitors to ensure that promises
they had the election and they had partial were kept. The initiative has also been a
disarmament, and then the peace process catalyst for bringing women and gender
failed. We learned from them.” issues into the national political arena.
Having defined their mission, the LWI
developed a strategy to target all parties to ❖ Burundi: Mobilizing
the talks and to initiate a programme to International Support
physically assist in the collection of small Burundi has suffered from a cycle of
arms. Women even went to the disarma- ethnic and political violence since the
ment sites to give the fighters a glass of 1960s. The current round was triggered in
cold water and a sandwich and thank 1993 with the assassination of Melchior
them for giving up their guns. The move- Ndadaye, the first Hutu elected as
ment struck a chord with men too. president. With support from the United
Brownell says, “When we were demon- Nations, a power-sharing government was
strating in the street s ,m en came and they established in 1995 between members of
The First Steps to the Peace Ta b l e 21
opposing political parties, but in 1996, government and financial assistance from
it collapsed when a Tutsi-dominated mili- international donors, the women traveled
tary coup brought the current president, to Arusha and put their case to ex-
Pierre Buyoyo, to power. President Nyerere. “We said that women
Neighboring governments imposed represent 52 percent of the population in
economic sanctions and called for a our country, so how could the problems of
return to constitutional order. Their ini- our country be discussed when our pres-
tial attempts to initiate a peace process, ence and opinions were being neglected?”
however, were thwarted in August 1997, recalls Imelda Nzirorera, who works in the
when the Burundian government Burundian government’s Ministry of
demanded the removal of sanctions as a Human Rights. “We told him that we
precondition. Following informal negoti- wanted to present our point of view on
ations, the Arusha peace process began. It peace, because when there is a crisis, we as
was facilitated by ex-Tanzanian President the women, pick up the pieces.” The
Julius Nyerere, since deceased. In July women told Nyerere that they would no
1998, 17 different political parties met longer accept being just the victims of the
for the first round of the Arusha talks. conflict. Nyerere was sympathetic, says
Five commissions were established to Nzirorera, but in the end reported back
address the issues of democracy and that “your own brothers from Burundi
good governance; peace and security for will not accept your participation.”
all; the nature of the conflict; reconstruc- Despite this opposition, the Burundian
tion and economic development; and parties eventually relented and allowed the
guarantees for the application of the women to remain as temporary observers
peace agreement. No civic organizations at Arusha. They have received support from
were allowed to participate. the international community to sustain
With the violence continuing unabated their advocacy activities, and have partici-
and the sanctions taking their toll on civil- pated in the Commission on Economic
ians, Hutu and Tutsi women from across Reconstruction and a number of informal
the social and political spectrum started a seminars and workshops. They have also
protest against this exclusion. They joined used the opportunity to establish links and
together in calling for a place at the peace raise awareness of their concerns among
table, and adopted a strategy of seeking international observers. The women’s coali-
support from regional heads of state. At a tion has become a strong rallying point for
sub-regional meeting of women’s organi- women throughout Burundi. “There are so
zations in Uganda, the Burundian dele- many women who encourage us to contin-
gates sought President Yoweri Museveni’s ue putting on the pressure to participate in
endorsement. With the blessing of his the negotiations,” says Nzirorera.
22 Women at the Peace Table: Making a Differ e n c e
❖ Georgia: Building Equality Step by Step not just around the issue of peace. The
In the ex-Soviet republic of Georgia, group also spoke about culture, educa-
although women technically had equal tion, health, and women’s movements,
opportunities and access to education and and organized summer schools, medical
employment, there was no tradition of an clinics and even a peace train. “The best
independent civil society or women’s way to make peace is to focus on common
movement. Nevertheless, through their activities, common life.” Chanishvili says.
determination to participate in the peace “If you only speak about peace, no one
process, women managed to lay the foun- will tell you they want war. What counts is
dations for peace activism and to make how you go about bringing peace.”
their presence felt within the political arena. In the end, the nascent movement was
The breakdown of the centralized not strong enough to influence the course
Soviet Union in 1989 led to disputes of Georgia’s political events. Conflict
between and within satellite republics. broke out on three fronts, with the
Tensions mounted between Georgia and Georgia-Abkhazia war of 1992-93 result-
the republics of Abkhazia, South Ossetia ing in the death and displacement of
and North Ossetia, with Tbilisi withdraw- thousands. “We tried to have demonstra-
ing South Ossetia’s autonomous status in tions, to engage with political groups,”
1990. A strong nationalist movement says Chanishvili. “But we could not
within the republic was marginalizing pressure the political process very much.
ethnic minorities. As the threat of civil The women’s movement was simply not
war increased, Nani Chanishvili, then a strong enough.”
professor of linguistics, joined with col- Her experience,however, led Chanishvili
leagues to form a non-governmental to seek and win a seat in Parliament. She is
association to campaign for the preven- learning from the inside that the political
tion of armed conflict. Initially, the group system provides little opportunity for
captured the attention of political figures women to participate in the ongoing
and the media. peace negotiation process, but she has not
“They wanted to speak with us been deterred. Chanishvili continues to play
because we were politically neutral, a very a key role in establishing the Gender
strong group that included respected Development Association of Georgia, and
women from the university,” Chanishvili strengthening the foundations of the
recalls, adding that many of the women women’s NGO movement across the
drew credibility from the fact that they Caucasus. “We’re working through legisla-
were older in age, with families and tion, step by step, to make gender equality
careers. They sought to mobilize women visible,” she says. A new decree on gender
across ethnic and national divides, and equality is still far from implementation,
The First Steps to the Peace Ta b l e 23
she admits, but still the commitment itself so much collective power,” recalls Ashrawi.
is an important beginning. “The women’s demonstrations were the
most meaningful, because it was as if they
❖ Palestine: Collective Power came face to face with issues of life and
For Palestinian women, the Intifada was death – for ourselves, for our children, for
the catalyst for strengthening women’s our daughters, for generations. It was
gender-based alliances, and bringing women who would grapple with the army
women’s peace and political activism to to rescue people. As one soldier said, he
the fore. Beginning in December 1987, couldn’t stand the look of contempt in
the Intifada was the spontaneous uprising Palestinian women’s eyes, and he knew that
of the Palestinian people living in the we weren’t scared.”
Occupied Territories. For the most part, The Intifada was also a time when
ordinary civilians, shopkeepers, women women began to challenge prevailing atti-
and children protested non-violently. tudes and perceptions regarding gender
However, over three years, thousands of roles. In the case of a woman released
Palestinian men and boys were arrested. from jail for political activities, for exam-
Women came to the fore, taking up the ple, the traditional response would have
responsibilities of earning an income, been to question her virginity. Ashrawi
caring for the families single-handedly, says the activists subverted these norms.
and taking the opportunity to enter the “We would celebrate a woman who was in
public domain. jail and came out of jail, or women who
The uprising also triggered the mass struggled. It meant you paid your debt or
mobilization of women.“They had to come duty, it was a source of tremendous pride.”
into the open, to take the risks themselves,” It was during this same period that the
Hanan Ashrawi says. They seized the ongoing dialogue between Palestinian
opportunity to speak out collectively and Israeli women was also transformed
against the Occupation, and their resistance into a political discourse. This was not a
and active engagement became a source of simple process. Ashrawi recalls that the
empowerment and unification. “Women women did not try to appease each other,
would face the [Israeli] army,” says Ashrawi. but in the end, they were able to develop
They were aware of the ingrained sexism of a common framework through which the
the soldiers, which largely prevented them conflict could be understood. “We started
from firing at women. Even when the with self-determination, and said that a
shooting began, however, the women were people fighting for self-determination
not deterred. “We took the risks. We went cannot deny it to women, at the individ-
ahead. We were beaten up and tear gassed ual or the collective level,” Ashrawi says.
and spat at. It was incredible. But there was “We had a rally on no-man’s land with
24 Women at the Peace Table: Making a Differ e n c e
Israeli women leaders. We described in the peace process can foster a wider
that area as women’s land because it was popular mandate for peace and contribute
no-man’s land. We gradually developed a to making it more sustainable. Women’s
common agenda.” peace activists around the world have
Today, the coalition of Israeli and also found new opportunities to address
Palestinian women is fully established and women’s development issues in this
recognized in the form of Jerusalem Link, a context, and in ways that promote
non-governmental organization that advo- women’s rights, advance social justice
cates policies on every aspect of the peace and benefit societies at large. In
process.A number of its founding members, Cambodia, women first created a vibrant
including Ashrawi, partici- civil society movement, in
pated in the pre-negotiations part through the interven-
mediated by the US gov- "I am mobilizing tion of the international
ernment, and have been community, and then went
active in the ongoing peace politicians so that on to build a comprehen-
process that was agreed on we can have a bigger voice, sive new programme for
in Oslo in 1994. a bigger pool of women’s development.
women leaders to
Negotiating Equality ❖ Cambodia: From Stained
During Post-Conflict transform the politics of Cloth to Precious Gems
Reconstruction conflict into politics Cambodia’s decades of
Too often, the violence that for development." deva stating conflict began
comes with warfare contin- with the spill-over of the
ues into the private sphere Vietnam War in the 1960s.
long after official ceasefires Mu Sochua The country, already divid-
are signed. In many cases, ed politically, slid into
the intensity of war and the turmoil. With the rise of
oppression imposed by fighting factions Pol Pot and the Khmer Rouge’s Year Zero
provides no chance for civil society mobi- programme, Cambodia experienced the
lization or women’s peace activism in the genocide of an estimated two million
time leading up to the peace table and people. Superpower interventions and
ceasefire agreements. Even if women are foreign occupation contributed to the
excluded from the actual peace talks, upheaval; there was no opportunity to
however, it remains equally critical to settle the conflict until the end of the
draw on their contributions in shaping Cold War. In 1991, Cambodia’s four
longer-term reconstruction and reconcili- warring factions signed a peace accord
ation programmes. Women’s participation in Paris, agreeing to a ceasefire and
The First Steps to the Peace Ta b l e 25
women’s issues to FUNCINPEC leaders, The ministry has devised a five-year plan
she eventually became head of the Ministry called Women are Precious Gems. It places
for Women’s and Veteran’s Affairs. women’s development into the wider
Her goal there, she says, is to initiate framework of social justice and universal
a transformation from within the human rights. Using simple reasoning,
establishment with the aim of redress- rather than confrontation with male col-
ing structural inequalities and altering leagues and established local authorities,the
cultural perceptions of women. In ministry is advocating education, health
Cambodia, cultural norms not only care, economic loans and better living con-
reinforce gender inequalities, but also dis- ditions for women. “We ask, ‘Can you say
courage confrontation. So the challenge is that female workers do not deserve better
to develop an approach that addresses living conditions? Or rural women do not
issues such as violence against women, deserve better education? Can you say that?”
and raises the awareness of men, without Mu Sochua says, adding, “These are things
being overtly confrontational and threat- that are very simple. How can you argue
ening. Mu Sochua says, “I am mobilizing with them? You go to the men and women
politicians so that we can have a bigger and say, ‘Can you argue against them? No
voice, a bigger pool of women leaders one would disagree. So from there you
to transform the politics of conflict into build. The process is very important.”
politics for development.” The programme works with youth, gives
The aim, she says is not to overturn the lectures, and organizes question and answer
cultural identity of the nation, but to focus sessions on issues such as HIV/AIDS and
on the elements within it that oppress violence against women. Mu Sochua points
women.“There is a Cambodian saying that out that although it has been a slow process,
men are a piece of gold, and women are a support is growing throughout the country.
piece of cloth,” she explains. “The piece of “There are more and more men who say,‘We
gold, when it is dropped in mud, is still a want to help. We are with you. We can no
piece of gold. But a piece of cloth, once it’s longer watch our children being sold, being
stained, it’s stained forever. If you are a kidnapped. We’re aware that members of our
prostitute ,i f you have been raped ,i f you are own families are dying of AIDS.’” Imple-
a widow, you are no longer that virginal menting the programme is “like a dream with
piece of cloth. But men, whether they are a plan and a roadmap,” Mu Sochua says. The
criminals or have cheated on their wives, ultimate goal is the empowerment of women.
they are still a piece of gold. When there is “We cannot bring in the answers for them,
such a saying, a perception, then there is but we can give them opportunities that they
something wrong with that culture, and do not have,” she says.“It’s all about how you
that’s when you want to change it.” are going to change this for yourself.”
The First Steps to the Peace Ta b l e 27
Notes
1
M. John Pusey, Eisenhower the President (New
York: Macmillan,1956).
2
Dyan E. Mazurana and Susan R. McKay, Women
and Peacebuilding (Montreal: International
Centre for Human Rights and Democratic
Development,1999), pp. 18-19.
3
Imelda Nzirorera quoting the response of the
Burundian delegates given to the late President
Julius Nyerere, the mediator of the Arusha peace
talks.
4
Rita Manchanda, “Armed Conflict and Violence:
Women’s Experiences in Kashmir,” presentation
at the Women and Violent Conflict: Global
Perspectives conference, London, May 1999.
5
Sevgul Uludag, “Obstacles in Gender
Discrimination,” October 20, 1999,in
Womenwatch’s Women and Armed Conflict dis-
cussion at http://sdnhq.undp.org/ww/women-
armdconf/msg00085.html.
6
Presentation given at the European launch of the
international campaign From the Village Council
to the Negotiations Table: Women Building
Peace ,G en eva, January 20, 2000.
7
See Mazaruna and McKay, pp. 18-19.
8
Information found at “A Brief History of
Northern Ireland,” http://members.tripod.co.uk
/~northernireland/nihist.htm
9
Information provided in Accord 1, The Liberian
Peace Process 1990-1996 (London: Conciliation
Resources,1996). Available at www.cr.org/
accord/sesay1.htm.
10
For more information on the Cambodian con-
flict and peace process see Accord 5,
Safeguarding Peace: Cambodia’s Constitutional
Challenge (London: Conciliation Resources,
1998). Available at www.cr.org/acc_cam/
intro.htm.
II. Women at the Peace Table
"Woman is the A t the Dayton Peace talks that ended the Bosnian conflict in
1995, there were no Bosnian women in the delegations, even
companion of man, though the international community was well-aware of the
trauma that women had experienced and the responsibilities
gifted with equal that they would be shouldering during reconstruction. Four
years later, prior to the NATO bombings of Kosovo, there was
mental capacities. only one Kosovar women at the Rambouillet negotiations. In
Sierra Leone, five and half years of civil war were marked by
She has the right to particularly vicious attacks against women and young girls.
The 1996 peace accord2 addressed many key issues regarding
participate in the reconstruction, power-sharing and disarmament, but over-
looked the rights and interests of women.3 In Tajikistan, there
minutest details in is only one woman in the 26-person National Reconciliation
Commission,although the war has left some 25,000 widows to
the activities of man, cope with the upbringing of their families and the reconstruc-
tion of their communities. At the first Arusha peace talks on
and she has an equal Burundi, only two of the 126 delegates were women. In East
Timor, the recently established consultative group of the
right of freedom and National Council of Timorese Resistance has only two women
representatives out of a total of 15.
liberty with him." The growing recognition that women have a right to partici-
pate in political structures and decision-making is increasingly
—Mahatma Gandhi supported around the world by positive action programs and
other mechanisms. As the examples above show, however, official
peace processes remain almost an exclusively male domain, and
little has been done to encourage women’s equal participation.
Even among the dedicated and experienced women peace advo-
cates who were interviewed for this project, those who served as
members of official delegations, such as Hanan Ashrawi, Luz
Mendez and Cheryl Carolus, were exceptions rather than the rule.
The Burundians only have temporary observer status at the
Arusha peace talks. Members of the Liberian Women’s Initiative
were allowed to act only as consultants, and were never accorded
full rights. “We wanted to get to the peace table, because to us, we
were a part of the decision-making,” says Mary Brownell. “The
amazing thing was that the war lords didn’t want us at the peace
table, but they were asking us what we thought about (the issues).”
Women at the Peace Ta b l e 29
peace table must also contend with an the room was tense and anxious, looking
environment that is not conducive to at their watches and wondering where
respect for women’s rights. Nani the children were. Carolus says, “We saw
Chanishvili, reflecting on the discussions first hand that when you impose equality
held by Georgian parliamentarians on the in a situation of inequality, you entrench
repatriation of refugees, recalls talk about and deepen that inequality.”
returning refugee and internally displaced
women to the same people who had Confronting Discrimination
killed and raped them. Decisions were
being made in consultation with the To cope with discrimination at the
military officials who bore responsibility peace table, and to secure the power and
for the atrocities, but not with the vic- respect necessary to carry forward their
tims. “As a Member of Parliament, I had agendas, women have adopted different
the opportunity to attend these meet- approaches. Carolus says that in South
ings,” says Chanishvili. “I told them, Africa they went and spoke to the
‘Don’t you think that you have to ask husbands and children of the women
these women whether they want to go who were in the negotiations and who
back under the general who killed their were under a lot of pressure. “We named
children and raped them? You are speak- and shamed the men,” she says. “The
ing with this general, negotiating with advantage was that these men were also
him, about returning her, but you’re not active members of the same political
speaking with her.’” organizations. The minute they knew
In South Africa, where women were that other people knew how badly they
welcomed to the peace table and sat in were behaving, they changed. It was just
half the seats, they still faced the burden straight education.”
of expectations from their own families. Like Luz Mendez, Mu Sochua has
The negotiations lasted long into the simply made sure that the quality of
night, recalls Carolus. Every woman had her work and the work of the women in
supposedly achieved full status, but in her ministry is beyond reproach. “I am
reality, “nobody has done anything very aware of the stigma,” she says.“That’s
about her husband and her children why everything has to meet a standard.
who still expect her to be home, doing I want the women in my department
the cooking. They are very proud of to speak with competence. If you go to
their mothers, but they still expected that defend something, you better have
there would be food and that somebody the statistics behind you. You better have
would sort out their socks and washing.” the facts behind you. You better speak
As a result, by ten o’clock at night half with a competent voice.”
Women at the Peace Ta b l e 31
Carolus points out the importance of Burundian women’s coalition sought the
ensuring that women delegates enter the support of regional governments and inter-
talks process with confidence and a firm national delegates at Arusha. Cambodian
mandate, especially from their female women used the presence of UNTAC to
constituencies. It is not enough to assume form the country’s first civil society move-
that women’s issues will be supported ment. In the Balkans, women’s organiza-
simply by having a delegation that is 50 tions created a regional alliance and called
per cent female, she says. Women must upon the Organisation for Security and
maintain contact with their primary Cooperation in Europe (OSCE) to support
support base, and have regular debriefin- their demands for participation in the
gs with women in their political parties South-Eastern Europe Stability Pact, which
and their constituencies.“It’s very impor- is currently being drawn up for the region’s
tant to make sure that women are part of economic, political and social recovery.
the process of shaping the mandates that
go to the table,” Carolus says .“ In political Do Women Make a Difference?
parties, women themselves must make
sure that the candidates they put forward In spite of many setbacks, the women inter-
are actually empowered to be part of the viewed here, as well as many others, have
processes inside the party itself. The man- persisted in their attempts to contribute to
dating process must be very rooted.” peace negotiations and to assert their right
In Liberia, Mary Brownell says that to be there. Their experiences and reflec-
women won the respect of the dominant tions raise many questions. Does the
political factions by their scrupulous presence of women influence the course of
adherence to honesty and transparency. peace talks and the agreements reached?
“We were sincere. We were not after finan- Can it be assumed that the increased par-
cial gain,” says Brownell. “They couldn’t ticipation of women at the Dayton Talks or
buy us off by offering us a few thousand in Sierra Leone would have brought the
dollars to close our mouths. We rejected rights and needs of women into the agen-
those who attempted it. What we had to da? Rigid distinctions clearly cannot be
say, we said, whether they liked it or not. made about the actions and interests of all
This is why the war lords respected us.” men and women in peace talks. However,
Some women have successfully used the testimonies of women regarding their
coalitions and partnerships to strengthen roles in negotiations can provide some
their presence in peace talks. The LWI insight into the perspectives that they bring
reached out to press its case with both to the peace table, the processes that they
the international media and the representa- seek to undertake, and the gender-based
tives of influential donor countries. The differences that they perceive.
32 Women at the Peace Table: Making a Differ e n c e
these were ‘abstract’ for many people. The the political process. They successfully
women’s peace movement gave a human fought for participatory mechanisms in
face to the conflict, and highlighted the the Constitution that would require the
personal consequences of the violence. government to consider input on policies
“The women would come and talk about from the population at large, and worked
their loved ones, their bereavement, their to ensure that legislation would be accessi-
children and their hopes for the future,” ble. “We asked “Why do we need rights?”
recalls Jackson. By drawing attention to says Carolus. “It wasn’t just a question of
these tangible factors, the women putting laws down on a piece of paper. It
succeeded in showing that “living and the was about more practical things, such
quality of life in Northern Ireland were as how the right to land would allow a
the issues that mattered.” This vision of female-headed household in a rural area
peace and the future eventually gained to have a sustainable livelihood. It was
widespread public acceptance. about being respectful of people’s right to
Given the stark realities faced by many choose the life they want.”
women caught in the midst of conflict, it is Women also reported that men and
not surprising that women tend to articu- women frequently understand the
late peace in terms of meeting basic purposes of peace talks differently, and
human security needs. Their vision may be come to the table with different motiva-
based on a combination of the political, tions. Reflecting on the Arusha peace
economic, personal, community, food, talks, Imelda Nzirorera says, “What
health, and environmental issues that arise worries us most is that our Burundian
in their daily life experiences.6 As Mary brothers, who are members of political
Brownell says, “We wanted to walk down parties, are putting the division of the
the street and not look behind us for stray national pie first. In other word s ,t h ey are
bullets. We wanted our children to go to thinking, at the end of the negotiations,
school, to be educated. We wanted to move what position and post will we get?”
about freely, attend our business,make our Hanan Ashrawi echoes this criticism,
market ,l ive a normal life.” suggesting that there was a qualitative dif-
Defining peace in terms of basic uni- ference between the dialogues of Israeli
versal human needs often leads women to and Palestinian women leaders and their
advocate practical solutions in the build- male counterparts. “We looked at peace-
ing of peace. In South Africa, says Cheryl making not as a personal agenda for
Carolus, the women’s coalition lobbied power, but as a set of issues dealing with
hard for measures that would make the life and death,” she says.“So while the men
new government open to constituencies would postpone difficult topics and adopt
that had traditionally been excluded from the American paradigm of ‘let’s deal with
34 Women at the Peace Table: Making a Differ e n c e
they pay the price, they don’t always reap In Burundi, aware that women are
the rewards. The rewards are for the men; among the least informed members of
the consequences are for the women.” society, the women’s coalition has made
It is therefore not surprising that many significant efforts to reach out to the
initiatives supported by women tend to provinces and inform them of events in
stress inclusion, participation and consen- Arusha. Alice Ntwarante says, “We are
sus building. In Colombia, according to very conscious about the fact that we want
Piedad Cordoba Ruiz, individual women to ensure that the grassroots women
like herself were instrumental in initiating are able to contribute effectively to the
dialogue with the guerrilla forces that even- success of these negotiations.” Similarly
tually persuaded them to join the wider in Cambodia, women have been instru-
peace talks. In Guatemala, the women’s mental in institutionalizing the public
coalition supported the Indigenous consultation in decision-making processes
Women’s Movement and enabled them to relating to post-conflict reconstruction.
actively participate in the peace process. The women’s ministry, says Mu Sochua,
Reflecting on the work of the Northern regularly consults on policy decisions with
Ireland Women’s Coalition, Kate Fearon over 30 women’s organizations.
asserts that “we argued consistently that a In the Middle East, Hanan Ashrawi
peace settlement stood little chance of suc- and other women leaders have played a
cess if parties were excluded. All parties pivotal role in maintaining the public
were part of the conflict, and all parties space for participation in the on-going
had to be part of the solution.”7 peace negotiations. They emphasize that
Many peace activists and conflict the process of consultation is a means of
analysts, regardless of gender, believe that identifying and prioritizing the core
the peace being negotiated at the political issues, and agreeing upon the negotiable
level must be rooted and accepted by the and non-negotiable points from the per-
people who have to live it in the future. spectives of experts, the public and the
In the cases presented here, women’s politicians. It also strengthens the bonds
organizations were often at the forefront between the formal and informal sectors,
of initiating public mobilization and and ensures transparency in the process.
consultation. The NIWC, for example, At a recent conference organized by
created an organization called the Civic Ashrawi, government ministers chaired
Forum. It was “a body composed of nine committees, where 45 experts were
representatives of civil society which discussing issues relating to the final
would complement and assist the work round of the peace talks in front of a pub-
of elected politicians, broadening and lic audience. “They had to interact. They
deepening our democracy,” Fearon says. had to listen,” Ashrawi says. The findings
36 Women at the Peace Table: Making a Differ e n c e
of the conference are being distributed peace accords to address the fundamental
and discussed in town halls and other factors contributing to women’s oppres-
public forums. If the people are not sion. As a result, the accord supports
involved in the decision-making, Ashrawi women’s rights to land ownership, access
maintains, the official talks process is to credit, health care and participation in
“a useless exercise.” political processes.
Mu Sochua maintains that women par-
Standing Up for Women’s Rights ticipants in decision-making processes
Women at peace tables are often the sole have the responsibility to ensure that the
voices speaking out for women’s rights and voices of women as a whole are not lost.
concerns. Since the peace Where men can be dismis-
and reconstruction process sive or simply unaware,
sets the tone for the politi- women should draw atten-
cal, economic and social tion to the problems of
institutions that follow, "The direct participation other women, and stand
women with an under- of women at the firm on subjects relating to
standing of gender issues peace table is the only their rights. “On issues like
can make critical contribu- violence against women,
way to ensure that
tions to the longer term goal trafficking, exploitation of
of women’s development women's demands are women, men are not the
and equality. “The direct incorporated in victims. Women are the
participation of women at the agreements." vi ctims, so they cry out,”
the peace table is the only she says. “Women like
way to ensure that women’s myself cry out because it is
demands are incorporated Luz Mendez not acceptable. It’s not a
in the agreements,” says Luz principle that I want to
Mendez. In Guatemala, the negotiate or compromise.”
women’s groups not only The actions of Mary
made a point of allying with Brownell, Ruth Perry and
the indigenous people’s groups and other the LWI were a clear statement of women
excluded sectors, but were also determined claiming their general right to be heard
to get an official acknowledgement of and treated equally. “We didn’t think that
women’s roles and experiences in the they should leave us out of the peace
country’s war and development process. negotiations, because we are all part of
They ensured that not only would they the country,” she says. “We struggled
have a place at the peace table, but that against the marginalization of women in
they would also be able to use the decision-making. We didn’t want the men
Women at the Peace Ta b l e 37
to tell us all the time ‘we’re doing this’ or to no in-depth analysis has been done to con-
hear it on the radio or in the news paper.” firm that women use these different skills
Self-determination lies at the heart in peace talks to become better negotiators
of much of the struggle for women’s or peace-makers. Are women better listen-
rights and gender equality. In Palestine, ers? Do they foster a more conciliatory
women used the parallels between atmosphere? Do men shout louder and
self-determination for the people and self- more often than women? The evidence
determination for women as both a point available is only anecdotal, but in the inter-
of advocacy and a rallying call. In South views undertaken here, similarities and
Africa, the parallels between racism and common experiences emerge.
sexism became very important. Ultimately, Some women suggested that experi-
says Cheryl Carolus, gender equality is ences and skills gained from their roles as
inseparable from the wider peace and mothers and caretakers enhanced their
development goal. “When you exclude abilities to engage in peace talks. For
53 per cent of your population from Cheryl Carolus, one of the distinct
playing a meaningful role in the transfor- features that women bring to negotia-
mation of your society, you are doing tions is their people skills, acquired
that society a huge disservice,” she says. through daily tasks such as managing
During apartheid, it became clear that children or caring for the sick and elderly.
under-educating and under-developing 80 Acknowledging the danger of stereotyp-
per cent of the people was eventually going ing women as “nurturers,” she maintains
to harm even the privileged few. When that in the negotiations and the drawing
some of those who opposed racism were up of the South African Constitution,
later reluctant to acknowledge that sexism “the fact that the women were nurturing
was a similar form of unjustified exclusion, and caring became hugely positive attrib-
women reframed the debate in terms utes. The process became one of listening
of equality for all. “We said that for the to what other people were saying, listen-
same reasons that you can’t exclude me ing to their fears even if you disagreed
from the full benefits of my society purely with them. People came out feeling that
on the basis of one biological fact ,l i ke the their concerns were being dealt with.
colour of my skin, you can’t use another It wasn’t just posturing.”
one, like the sex in which I was born,” Ruth Perry attributes much of her
Carolus explains. influence over the war lords and the trust
she garnered from them to her identity as
Communications a mother. “They considered me an expe-
Some research has claimed that men and rienced mother with many children,” she
women communicate differently, although says, drawing attention to her own seven
38 Women at the Peace Table: Making a Differ e n c e
children. “I told them I was a disciplinar- Then the fear and distrust begin to
ian mother,” she adds, explaining that her decline. The aggression declines too.”
ground rules were that once issues were In peace talks, when sensitive issues are
agreed upon in private talks, no side being addressed,anger, fear, aggression and
could renege on them “I told them if you frustration are commonplace. “There are
try to change, well, you don’t get me to people who shout a lot,” says Mowlam.
change. I’m a firm mother.” “Because it’s mainly men, people associate
Reflecting on Mo Mowlam’s influence in it with male behaviour. I don’t think
the Northern Ireland process, Helen Jackson that women would necessarily behave
suggests that her ability to listen and in the same way. It’s abusive, unfair and
empathize contributed to difficult to cope with.” This
breaking down barriers and behaviour can be destruc-
tackling core issues. “I think tive to the process, says
there was a gender aspect to "If you are trying to Am bassador Georg Lennkh
her style,” Jackson says “She of Austria, who has chaired
make peace, the
related very quickly and the Commission on Recon-
naturally with the sort of 'blame culture' doesn’t struction and Economic
issues that the women in the work. You have Devel opment in the
community wanted to raise. Burundi peace talks. “Men
to see in what ways
She listens and hears with- have a habit of getting
out wrapping things up in you can build trust carried away,” he says.“They
political jargon.” and confidence to feel aggressed by someone;
Mowlam, while scepti- make progress." they have to retort. It
cal of attributing any of becomes very acrimonious
her own skills to gender very quickly.”
alone, acknowledged that Mo Mowlam Cheryl Carolus says
one of her contributions to that “by working around
the Northern Ireland peace the areas of commonality,
process was to look beyond women deal with conflict
the façade. “You have to ask, ‘Why do they differently.” In Liberia, for example, the
need to shout?,’” she says, referring to the LWI sought not only to find areas of
male-majority political leaders .“ If you are convergence, but also implemented pro-
trying to make peace, the ‘blame culture’ grammes to foster cooperation. Countless
doesn’t work. You have to see in what ways regional peace conferences had been
you can build trust and confidence to stalled because the factions refused to
make progress. I believe you can only do compromise, and would be sent home to
this if you give people a sense of hope. iron out their differences. In seeking to
Women at the Peace Ta b l e 39
break the deadlock, the LWI set up a battle against discrimination. It provided
number of workshops, inviting represen- a lifetime opportunity to establish a
tatives from all factions.“We came up with system of laws and values that would
different games, such as puzzles that you influence the future of the nation. Cheryl
cannot complete unless you get help from Carolus says, “We felt quite determined
somebody else,” explains Mary Brownell. that the document that was going to
“We were trying to tell them that they need be the law-based value system for genera-
to rely on each other.” In the course of the tions in our country had to take on
workshops, the representatives not only board the kinds of things that half the
began to discuss some of the more con- population was fighting against.” In part
tentious issues, but also reached a number because of the vigilance and activism
of agreements. “A week after that we had a of the National Women’s Coalition, the
consultative ECOWAS regional meeting Constitution now outlaws unequal
here in Liberia,” recalls Brownell. “They treatment against any sector of society
used the findings from the workshops as on any grounds.
part of that agenda.” By successfully advocating for having
women well represented in the peace
Transforming the Process: negotiations and the process of drafting
Women’s Achievements the Constitution, the coalition also
opened the door to the more general
If it is difficult to define the qualitative dif- acceptance of women in power and
ferences that women make at the peace decision-making positions. Women are
table, it is not so difficult to see the con- now well represented across all levels of
crete results of their actions. As is the case government. Five of the seven ambassa-
with women in decision-making roles in dors to G7 countries are women. Even the
other kinds of institutions, women at the hours of Parliament have changed to
peace table bring change. They propose allow members to combine their private
laws supporting equality for women and responsibilities with their public duties.
other social sectors, and initiate new devel- In Guatemala, women incorporated a
opment strategies and programmes that range of issues critical to women’s devel-
benefit both women and society at large. opment into the peace agreement. They
They also open opportunities for women’s included equal access to land, credit and
participation in a wide spectrum of productive resources, health care, and
political institutions, and they alter under- education and training. The agreement
standing of the roles women can play. affirmed women’s right to a paid job, elim-
For South Africans, writing their new inated legal discrimination and imposed
Constitution was a critical step in the penalties for sexual harassment. It also set
40 Women at the Peace Table: Making a Differ e n c e
up new institutions such as the Office for “In the past it was led by a man,” says
the Defense of Indigenous Women’s Rights Mu Sochua,“and it was a disaster.” The law
and mechanisms to promote women’s was criticized for being discriminatory
political participation. Although these against men, and Mu Sochua had to spend
measures are all targeted toward women,if two full days in Parliament defending it.
they are implemented they will benefit the She argues that the law was needed to
longer social and economic development ensure social justice, and to back up
of the nation as a whole. the constitutional guarantees.
Within the context of reconstruction in The ministry is also drafting a proposal
Liberia, the Liberian Women’s Initiative has to create a new National Council for
successfully advocated Women. It will col-
for a new unit for laborate with non-
women and children governmental groups
in the Ministry of to monitor the per-
Planning, and is formance of the gov-
proposing the estab- ernment on improv-
lishment of a separate ing the status of
women’s ministry. The women. Mu Sochua
group has also con- points out that
vinced the Ministry of institutionalizing this
Education to start a process in the post-
mass literacy drive, conflict environment
The adoption of positive action programmes in the
called Each One Teach new South Africa is widening the space for women will introduce a new
One, that is aimed at to participate in charting the country's development. level of transparency,
women and girls.One create checks and
of the LWI’s founding members is now balances in the system, and deepen the
the Minister for Education, and several democratic process.
members serve in the legislature. Reflecting on events in Northern
In Cambodia, women’s organizing led Ireland, Mo Mowlam suggests that
to their participation in the drafting of through their decade of cross-community
the new Constitution, where they won work, women there created space for
constitutional guarantees of equal rights, moderation and compromise. “Attitudes,
including the right to vote, the right to the hardest things to change in politics,
participate in politics and the right to slowly began to change,” she says. In 1998,
choose their professions. Another new law the Good Friday Agreement, which is the
guarantees that the Ministry for Women basis of the current peace process, was
and Veteran’s Affairs will be led by women. submitted for a public referendum. An
Women at the Peace Ta b l e 41
overwhelming 70 per cent voted in its meant a lot to the people. I started making
favour in Northern Ireland, and over 90 visits and encouraging State Council mem-
per cent supported it in the Republic of bers to return. If I hadn’t done that, the
Ireland. Mowlam attributes much of this whole process would have been derailed.
to the persistence of women’s canvassing Instead, everybody went back to work. We
and lobbying throughout the region. “In moved on.”
my view, women have been crucial in get- For many women working in peace
ting to where we are in Northern Ireland,” processes, there is a feeling of personal
she says. responsibility and accountability toward
By campaigning for disarmament and those who have supported them. Hanan
publicly monitoring the Ashrawi says a sense of the
war lords, the Liberian public trust still infuses all
Women’s Initiative con- of her work. After being
tributed to breaking the I went on national voted into Parliament, she
cycle of Liberia’s dozen radio appealing for peace. resigned her post as Minister
failed peace agreements. I started encouraging for Higher Education,main-
Without women, says Ruth taining that she can work
State Council members
Perry, “the war would have best to build a sense of pub-
just continued and contin- to return. If I hadn't lic partnership outside gov-
ued.” Perry’s own combina- done that, the whole ernm ent structures.“Once I
tion of words and actions took the bus from the
process would
prevented the resurgence of bridge, and people clapped,
violence in the aftermath of have been derailed. saying, ‘She’s the one who
a shoot-out in Monrovia, Instead, everybody tells the truth!’ Another
during the most critical went back to work. time this peasant woman
phase of the Liberian talks. who was illiterate said, ‘I
We moved on."
“I was on my way to work,” came all the way just to
she recalls, “but was told by vote for you.’ These
the security forces to return, Ruth Perry moments are the real vin-
because there was a shoot- dication of what we’re
out.” Her instinct was to doing,” Ashrawi says. “The
contact the faction leaders reward is not the big boss
and inform them of the events. “I told patting me on the back. It’s the person
Charles Taylor to please calm his boys who tells you, ‘You’ve spoken on my
down. I went on national radio appealing behalf. You were my voice. You protected
to those that were involved to please give my rights. I trust you. I’ve used you to
peace a chance. My physical presence empower myself.’”
42 Women at the Peace Table: Making a Differ e n c e
“In war-torn societies… For women in countries affected by conflict, support from the
United Nations, partner organizations and the international
women often keep non-governmental community can be critical for their struggle
to gain access to the peace table. Contact with the internation-
society going. They… al community can be a means of ensuring that their voices and
calls to participate are heard and taken into account both with-
are often the prime in and outside the boundaries of their own country.
In Burundi, women peace activists strategically combined
advocates of peace. support from international organizations with that of
influential women politicians and leaders in the region in
We must ensure that order to gain entrance to the Arusha peace negotiations as
temporary observers. The women have taken the opportunity
women are enabled to to initiate informal consultations with the various parties
to the conflict, whom they have been lobbying to adopt a
play a full part in peaceful settlement, and have also persisted in their efforts to
secure permanent representation.
peace negotiations,in In Liberia, by ensuring that ambassadors and delegates
from the Organisation for African Unity (OAU) and the
peace processes, in Economic Community of West African States (ECOWAS)
received their position statements, the Liberian Women’s
peace missions.”1 Initiative succeeded in contributing to high-level regional
meetings, and in garnering the support of regional leaders and
—Kofi Annan international officials. Mary Brownell recalls the first time that
the LWI spoke openly at a formal ECOWAS meeting. “We
began lobbying the heads of states, we pleaded with them to
please give us this opportunity to be heard. The next day,
before they could start any official business, they said, ‘We’ll
hear from the women in Liberia.’ We informed them of our
mission, and the situation on the ground. They were so moved,
we saw some of them wiping their eyes.” To ensure the LWI’s
credibility and to raise awareness at the policy level, it was
critical to maintain links with the media, the diplomatic
community, the United Nations, the European Union and the
regional organizations,says Brownell. “We kept them informed
of everything that was happening and all the moves we made.
So there was nothing hidden.”
44 Women at the Peace Table: Making a Differ e n c e
Beijing Platform for Action: Women and Armed Conflict Strategic Objective No. 1
… Ensure that these bodies are able to address gender issues properly by providing
appropriate training to prosecutors, judges and other officials in handling cases
involving rape, forced pregnancy, indecent assault and other forms of violence
against women in armed conflicts, including terrorism, and integrate a gender
perspective into their work.
The International Community: Matching Wo rds with Actions 47
activists in all regions gained renewed Luz Mendez says, “The fact that women’s
strength from Beijing and the commit- issues were present at the international
ments made by governments and interna- level had a positive effect on the
tional organizations to advancingwomen’s Guatemalan negotiating table. The Beijing
participation at all levels of peace-making. Platform of Action was a source of
Since 1995, new local, national and strength and inspiration, because it
international initiatives have emerged deepened our capacity to make proposals
to advance the agenda for building women’s at the negotiating table.”
leadership for peace. Networks spanning Within the UN system, the Beijing
Latin America, Europe,Asia and Africa have platform is informing the development of
formed, linking women’s new initiatives to promote
peace organizations region- women’s participation in
ally and globally. In the peace-making, and is guid-
"The Beijing Platform
Balkans and the former ing efforts to ensure that
Soviet Union, numerous of Action was women’s contributions to
women’s organizations have a source of strength peace processes are accord-
mushroomed since 1995, and inspiration, because ed a prominent place on the
with a strong focus on international peace and
it deepened our
increasing women’s partici- security agenda. In Africa,
pation in decision-making capacity to make UNIFEM has supported
and reconstruction pro- proposals at the the establishment of the
cesses. In Africa, a vibrant Federa tion of African
negotiating table."
movement of women peace Women Peace Networks
advocates from across the (FERFAP), which was
region has taken root and Luz Mendez formed by 13 women’s
is making its mark in peace organizations from
many sectors. war-affected countries across
The force has been the region. As part of a
equally strong at the national level. In regional peace advocacy platform, FERFAP
Cambodia, the Ministry for Women’s and members have initiated dialogue with gov-
Veteran’s Affairs and local women’s devel- ernments and inter-governmental organiza-
opment organizations have initiated tions that are promoting peace in a number
programmes related to some of the priori- of countries, such as Eritrea and Ethiopia.
ty issues identified within the Beijing The federation is committed to advocating
platform. Reflecting on the influence of the gender-sensitive approaches in the plan-
Beijing process on Guatemalan women’s ning, implementation and evaluation of
participation in peace negotiations, peace and reconstruction programmes.
The International Community: Matching Wo rds with Actions 49
resources on the part of the international 12.6 percent of all personnel, including
and donor communities would enhance professional, field, local and military
the impact of these initiative s .E rika Papp, staff.12 The situation is little different
a peace activist in Serbia, points out, “At within the structures of other regional
the grassroots we have the commitments and intergovernmental institutions.
and are willing to work, so seek us out Angela King, the Special Advisor to the
and listen to us.”10 Ruth Perry maintains Secretary General on Gender Issues and
that international organizations should the Advancement of Women, notes that
give women a chance to share the lessons the presence of women makes a substantial
they have learned. “Send us to help the difference to peace-keeping missions. King
various countries, to see what impact we led the 1992 UN mission in South Africa,
would have out there,” she says. “We where women made up 53 per cent of the
believe that when we meet these people personnel. “Having a woman chief and a
one-on-one, we know what to advocate, number of women team leaders creates an
we know what to say. We want them to attitudinal shift, even among women
use us, for national support, and for themselves,” she says. In the town of Port
moral support.” Elizabeth, for example, women teachers
In practical terms, the international had appointed men from outside their
community’s actions should begin with ranks to negotiate with the government
the promotion of gender balance at all over working conditions. It took a woman
levels of decision-making within the staff member with the UN mission to
internal hierarchy of the international point out that perhaps they should
organizations that oversee peace and appoint representatives from among
security issues. This is in keeping with themselves, who would be best qualified to
agreements that have been made to build a identify their needs and goals.13
critical mass of women in decision- There is an important case to be made
making positions across governmental and for strengthening the role of the United
intergovernmental institutions. At the time Nations as an advocate for women at the
of writing, there are no women among the peace table. In recent years, the financial
34 special representatives and envoys of pressures confronting the UN have
the UN Secretary-General appointed to challenged the organization on a number
countries and regions of conflict.11 Across of important levels. With the requisite
the various missions of the UN technical and financial resources, the
Department of Peace-keeping Operations ability of the UN to support the engen-
in early 2000, women had assumed an dering of peace processes could be further
average of 20 percent of all professional enhanced. In the words of Piedad
positions. They made up an average of Cordoba Ruiz, UN and international
52 Women at the Peace Table: Making a Differ e n c e
Notes
1 12
Kofi Annan, United Nations press release UN Department of Peace-keeping Operations.
SG/SM/6179, WOM/957. 13
Women’s Feature Service,“United Nations:
2
See UN Security Council Resolutions 918, 1076, Making Peace with Women,” March 10, 1997.
1 1 9 3 ,1 2 0 8 ,1 2 1 4 ,1 2 3 1 ,1 2 6 5 .
3
See Mazurana and McKay, pp. 66-69.
4
See www.un.org/womenwatch/daw/cedaw.
5
Fourth World Conference on Women, The
Beijing Platform for Acti on :G l obal Framework,
Article 23 (New York: United Nations,1996).
Available at www.un.org/womenwatch/daw/
beijing/platform/plat1.htm#framework.
6
See paragraphs 131-141 of the women and
armed conflict chapter of the Beijing Platform
for Action. Available at www.un.org/women
watch/daw/beijing/platform/armed.htm.
7
Information provided by Bineta Diop, executive
director of Femme Africa Solidarité and member
of the AWCPD.
8
Sonja Lokar (ed.), OSCE Stability Pact Gender
Task Force First Plan of Action 2000 (Sarajevo:
EDAC 2000).
9
For more information, refer to the national
action plans prepared for the Beijing +5 review.
Available at www.un.org/womenwatch/
followup/national/natplans.htm.
10
Speech made at the Plenary Session of the
Economic Commission of Europe, Beijing +5
Preparation Conference, quoted in European
Women in Acti on ,G en eva ECE Conference,
Daily News Brief, No. 4, January 21, 2000.
11
In 1999 there were two:Elizabeth Reh n ,t h e
SRSG in Bosnia-Herzegovina, and Dame Ann
Hercus, the Deputy SRSG and Chief of Mission
of the UN Operation in Cyprus. See www.un.org/
News/ossg/srsg.htm for details on recent
appointments.
Conclusions
“When eventually The narratives presented in this publication offer a brief insight
into the experiences of women leaders and activists who have
men see the point they sought to influence the agenda of peace negotiations within
their countries and regions. The challenges they have overcome
support it, and support and the achievements they have made draw attention to a
number of critical lessons, reflections and questions. These in
it so well that you begin turn shed new light on the strategies and mechanisms required
to assure women a greater voice and a place at the peace table.
to wonder: Was it just A strong argument for increasing women’s participation in
peace processes derives from international commitments that
ignorace? Was it have been agreed upon by most governments and internation-
al institutions. The Convention on the Elimination of All
that they always Forms of Discrimination Against Women and the Beijing
Platform for Action provide clear statements of political will
thought that women that emphasize the need to assure women’s access to and full
participation in all areas of political decision-making. These
couldn't think well agreements have outlined the concrete actions required to
fulfil this goa l ,i n cluding the use of positive action programmes
enough and had no and policies that promote gender balance at international,
regional and national levels.
ability? Or was it just As Mu Sochua, Luz Mendez, Hanan Ashrawi and others have
demonstrated, women draw on international agreements such
that they were so filled as the Beijing platform and CEDAW to advance their struggle
for gender equality within national and regional contexts. This
with themselves that process could be further strengthened through renewed com-
mitments that build on existing agreements. The international
they couldn't see community has the responsibility to reaffirm its commitment
to supporting women’s participation in peace processes, and to
women and their needs? place this issue firmly on the agenda of powerful international
peace and security organs such as the UN Security Council.
I wondered.” Notwithstanding the agreements already reached, resistance
to women’s presence at the peace table remains strong. The
—Justice Annie Jiaggie1 reason often presented for excluding women is that only the
warring parties are required to engage in negotiations to end
hostilities, and that the issues of women’s participation and
gender equality bear little relevance to this process. This
argument, however, fails to acknowledge that the peace table
Conclusions 55
is not a single event, but rather a process including the right to vote, the right
that holds the potential to transform to participate in politics and the right to
institutions, structures and relationships choose their professions. The Ministry for
within society. The contributors to this Women and Veteran’s Affairs now active-
publication have shown that women’s ly collaborates with non-governmental
participation, whether formal or infor- groups to measure the impact of govern-
mal, has contributed to ensuring that ment policies and programmes on
social justice and gender equality remain improving the status of women.
central both to the agreements reached at Oftentimes, the gains that women have
the peace table and to the ensuing process negotiated at the peace table are largely
of reconstruction and reconciliation. rooted in their first hand experiences of
In South Africa, for example, women’s the consequences of war. In most conflict
participation in the negotiations to situations, women assume expanded lead-
dismantle apartheid helped to secure a ership roles in providing for their families
constitutional guarantee of equal treat- and sustaining community relationships
ment for all sectors of society. Women and structures. The break-up of families
also lobbied for the adoption of positive and the wide-scale displacement of com-
action programmes that have expanded munities, economic hardships, and sexual
their access to political decision-making abuse and other human rights violations
structures. During the peace negotiations are among the key factors that propel
in Guatemala, women successfully advo- women to mobilize for peace.
cated for incorporating within the agree- In placing their priorities on the agen-
ment a range of issues critical to women’s da of the peace table, women often draw
empowerment and gender equality. The on their ties with local constituencies.
agreement affirmed women’s right to a This process of consultation can assist in
paid job, eliminated legal discrimination, changing public perceptions, dispelling
imposed penalties for sexual harassment, fears, and fostering an environment of
and set up new institutions to promote cooperation. It also serves to ensure that
women’s political participation,including the peace negotiated is “owned” by the
the Office for the Defense of Indigenous communities and people who have to
Women’s Rights. In Cambodia, although make it a reality in their lives. From the
women did not participate in the official Middle East to South Africa, Northern
peace negotiations, they have actively Ireland to Georgia, women are emphasiz-
sought to influence the political process ing the need to build consensus and
in the period of transition to reconstruc- consult with the community at large. The
tion and development. They have won contributors to this publication outline a
constitutional guarantees of equal rights, wide range of strategies that they have
56 Women at the Peace Table: Making a Differ e n c e
employed in this regard. These include women in all arenas. The responsibility
creating public forums, reaching out to for opening new spaces for women’s par-
marginalized groups, and strengthening ticipation is one that must be shared by
links between governments and civil soci- the various actors who command politi-
ety in order to ensure more participatory cal clout and influence over the course of
and transparent systems of governance. peace negotiations at national, regional
In the course of mobilizing and advo- and international levels. While women
cating for the right to participate in the clearly need access to the peace table in
peace-building process, many women order to advance toward the goal of
have also formed strategic partnerships gender equality, the peace table also
with international institutions and non- requires women’s participation to truly
governmental organizations. This has uphold the principle of democracy and to
opened up new opportunities to advance lay the foundations for sustainable peace.
the peace agenda at national and regional
levels. In Africa, women have rallied inter- Emerging Issues
national support to bolster the develop-
ment of regional women’s peace networks. Although this publication may give rise to
These include the African Women’s more questions than answers, some of
Committee on Peace and Development these questions provide the basis for fur-
(AWCPD), which is affiliated with the ther exploration. They may also highlight
OAU, and the Federation of African a range of critical issues that women
Women’s Peace Networks (FERFAP). In encounter through their participation in
south-eastern Europe, women’s organiza- peace-making processes.
tions have joined forces with the OSCE to Arguments for women’s inclusion at
lobby successfully for the establishment of the peace table must clearly acknowledge
a gender task force that is working to pro- the reality that not all women who reach
mote gender issues within the framework positions of power are active proponents
of the South-Eastern Europe Stability Pact. of women’s rights. For some, partisan
These examples of partnerships are all political loyalties take precedence over
part of a growing movement that is driv- ideals and goals that stress the advance-
ing women’s advocacy for greater partici- ment of women in society. It is therefore
pation in decision-making processes not enough to assume that progress
related to peace. Ultimately, however, the toward gender equality will be achieved
challenge of ensuring women’s equal simply by increasing the number of
participation requires a combination of women decision-makers. Avenues must
strategies that stress political will, part- be sought to build a critical mass of
nerships, and continued activism among transformational leaders—both men and
Conclusions 57
women—who place the goals of social You have to win by accommodation some-
justice and gender equality at the center times. But you accommodate on one side,
of their political motivations, and who and keep pushing on the other."
will together assume the responsibility for Women who enter peace processes
moving this agenda forward. sometimes do so facing threats to their
The task of building and maintaining personal safety. Their bravery may
strong links between women political include reaching out to build alliances
leaders and their grassroots constituen- with women from “the other side,” or
cies requires focused attention. The agen- developing links with international part-
das of these two groups may be widely ners and voicing opposition to a conflict.
divergent. This gap often increases in While security risks are not faced by
situations of conflict, when mechanisms women alone, regressive social norms
that would otherwise promote leadership that deny women opportunities to
accountability have broken down. The assume leadership roles may sometimes
question therefore is how to develop raise the stakes for those who challenge
effective mechanisms during conflicts these norms in order to take part in the
to ensure that women leaders are political process. In committing itself to
committed to presenting and defending supporting women’s participation in
grassroots priorities. peace-making, the international commu-
The difficulties inherent in developing nity must seriously consider how to
more effective partnerships between express support for women leaders who
women leaders and their male counter- dare to speak out.
parts in peace-making processes has been Translating peace agreements into
well-captured in this publication. The concrete development programmes dur-
persisting question is how to engage men ing the phase of post-conflict reconstruc-
as partners without compromising on the tion is invariably linked to the need to
goal of equal rights. In the words of Mo secure the requisite financial and techni-
Mowlam,"You have to take men with you. cal investments to manage the transition
That doesn't mean you stop fighting as successfully. The tendency to marginalize
women. It doesn't mean you stop giving programme initiatives that relate to the
each other support. It doesn't mean you advancement of women’s rights and gen-
stop when you've made some progress. But der equality may be exacerbated in the
you also have to say, 'Hold on a minute— process of drawing up development pri-
this guy over here is getting very upset.' Is orities, particularly when the needs are
it going to improve the situation of women overwhelming. Even when women,
who have to live and work with that through their participation at the peace
man in the future, if he feels excluded? table, have succeeded in obtaining paper
58 Women at the Peace Table: Making a Differ e n c e
Dr. Hanan Ashrawi: Director of Ms. Cheryl Carolus: South African High
the Palestinian Initiative for the Promotion of Commissioner to the United Kingdom
Global Dialogue and Democracy, Palestine Ms. Carolus started her career in 1979 as a
Dr. Ashrawi was born in Ramallah in 1947 and secondary school teacher in Liberia. In 1983, she
lives in Jerusalem. She comes from a Christian took up the post of full-time Provincial Secretary
nationalist family with several members who of the United Democratic Front (UDF) Western
joined the Fatah movement. She studied in Beirut, Cape, and in 1985, she became UDF National
the United Kingdom and the United States before Coordinator. In 1990, she joined the University
taking up her post as head of the English of the Western Cape as Education Resources and
department at Bir Zeit University. Between 1991 Information Project Staff Development Officer.
and 1994, Dr. Ashrawi served as spokesperson for In1991, she was elected a full-time member of
the official Palestinian delegation. In 1994, she the African National Congress National
founded the Independent Palestinian Citizen's Executive Committee and Head of the Human
Rights Commission.Elected in January 1996 as an Development Department of the National
independent candidate, she is now one of the two Working Committee .M s . Carolus became the
Christian members of the Palestinian Legislative National Executive Committee Coordinator of
Council for Jerusalem.Dr. Ashrawi served as ANC policy in 1992; in 1994, she was elected the
Minister of Higher Education until her resigna- party's Deputy Secretary General. She became
tion in August 1998. She currently directs the Acting Secretary General in 1997. She assumed
Palestinian Initiative for the Promotion of Global her post as South African High Commissioner to
Dialogue and Democracy. It is based in Ramallah, London on 2 March 1998. Ms. Carolus holds
where Dr. Ashrawi lives with her husband Emile Bachelor of Arts degrees in law and education
and their two daughters. from the University of the Western Cape. She is
married to Mr. Graeme Bloch.
Mrs. Mary Brownell: Director, Liberian
Women’s Initiative, Liberia Mrs. Nani Chanishvili: Member of
Mrs. Brownell started her career as a school Parliament, Georgia
teacher. In 1993, while the regional Economic Mrs. Chanishvili started her career as a professor
Community of West African States (ECOWAS) of linguistics in Georgia. She was a founding
peace talks were taking place and with civil war member of the university's peace group,
still raging in Liberi a ,M rs . Brownell helped to organising seminars and workshops to promote
found the Liberian Women’s Initiative (LWI). peaceful dialogue and negotiations. Currently,
The group is dedicated to the pursuit of peace and Mrs. Chanishvili serves on the parliamentary
reconciliation, and includes members from all Foreign Affairs Committee and is an active
walks of life and every corner of the country. participant in the political transformation taking
Mrs. Brownell led a delegation of women to the place across the Trans-Caucasus region. She is
ongoing peace talks to advocate for disarmament also a founding member of the Georgian
before elections. They became effective consult- Women’s Parliamentary Club.
ants during the negotiations,meeting with all
parties. Today, Mrs. Brownell continues to run the
LWI, and has expanded its programmes to include
literacy and education for women.
60 Women at the Peace Table: Making a Differ e n c e
Ms. Emma Chirix: Director, Kaqla, Guatemala Ms. Helen Jackson: Member of Parliament,
Ms. Chirix began her career as a nurse, before United Kingdom
joining a national social research centre. She was Ms. Jackson is the Labour Member of Parliament
a founding member of Kaqla, the Guatemalan for Sheffield, and served as Personal Private
Indigenous Women’s Movement, and she played a Secretary to the Secretary of State for Northern
leading role in drafting the 1995 Accord on the Ireland from 1996 to 1999. Her responsibilities
Indigenous Population's Identity and Rights. included consulting with women’s groups and
She is also a member of the advisory committee civil society organisations. In 1998, Ms. Jackson
of the Fund for Public Policy Research, which headed a cross-party group of MPs to meet politi-
provides resources to civil society organisations cal and economic experts in Eire. She was the UK
that are undertaking research related to peace representative to European Parliamentarians for
and policy formulation. Southern Africa in 1999, and observed the South
African elections.Ms. Jackson divides her time
M rs .P i edad Cordoba Ruiz: Senator, Colombia between London and Sheffield.
Senator Cordoba Ruiz studied at the Universidad
Pontificia Bolivariana de Medellín, and specialized Ambassador Georg Lennkh: Director General,
in organizational and family law. Between Austrian Development Cooperation, Austria
1986 and 1988, she was General Secretary of the Ambassador Lennkh obtained his law degree from
Municipality of Medellín. She has also served as the University of Graz in Austria, and joined the
a Representative in the Assembly of Antioquia and Austrian Federal Ministry of Foreign Affairs in
in the National Congress. She has been a Senator 1965. He served as a diplomat in Japan before
since 1994, and currently heads the Senate joining the Austrian Mission to the United
Human Rights Commission and belongs to the Nations. In 1993, he became Director General for
Senate Peace Commission. Development Cooperation in the Federal Ministry
for Foreign Affairs. Since 1998, Ambassador
Ms. Bozgul Dodkhudoeva: Former Deputy Lennkh has chaired the Reconstruction
Prime Minister, Tajikistan Commission at the Arusha peace talks on
As Deputy Prime Minister until December 1999, Burundi. He advocated for the inclusion of
Ms. Dodkhudoeva played an active role in women in the commission, and initiated a number
peace-building and reconciliation in Tajikistan. of informal seminars and roundtable sessions
She was the only female member of the 26-person providing the women observer delegation an
National Reconciliation Commission, which opportunity to voice their concerns and initiatives.
manages Tajikistan's transition to peace. She has
been a strong supporter of women’s organisations Ms. Luz Mendez: General Coordinator, National
working in relief, rehabilitation and development, Union of Women, Guatemala
and is a prominent advocate for women’s rights Ms. Mendez is currently General Coordinator for
and inclusion in decision-making processes. the National Union of Women. She is a member
of the Metropolitan Committee of the National
Women’s Forum and participated in the 1995
UN Fourth World Conference on Women in
Beijing. Presently, she is part of the Secretariat
for International Relations of the Guatemalan
National Revolutionary Unity. Ms. Mendez
trained in Business Administration and Social
Communications.
Notes on Contributors 61
Dr. Marjorie (Mo) Mowlam: Minister for the Her Excellency Ruth S. Perry: Chair, Perry Center
Cabinet Office,Chancellor of the Duchy of for Peace, Stability and Development, Liberia
Lancaster, United Kingdom Mrs. Perry began her career working for Chase
Dr. Mowlam was appointed Secretary of State for Manhattan Bank in Liberia. Between 1986 and
Northern Ireland in 1997, and played a pivotal 1990, she was a Senator during the rule of
role as mediator in accordance with the Good President Samuel Doe’s National Democratic
Friday Agreement.Educated in England and Party of Liberia. She has been an active member
America, she began her career as a research assis- of the Liberian Women’s Initiative and was
tant to Member of Parliament Tony Ben n ,t h en appointed chair of the Council of State of the
became a lecturer and an administrator in adult Transitional Government in 1996 until the July
education at Northern College in Barnsley. She 1997 elections. Currently, she is Chair of the Perry
has been the Labour Member of Parliament for Center for Peace,Stability and Development,and
Redcar since 1987. Dr. Mowlam was elected to the is First Vice-Chairperson of the Organisation for
Shadow Cabinet for the first time in 1992, where African Unity. The widow of a prominent
she was given responsibility for women's issues Liberian lawyer, Mrs. Perry has seven children.
and for shadowing the newly created Office of
Public Services and Science. In 1993, she was Ms. Mu Sochua: Minister for Women and Veteran’s
appointed Shadow Heritage Secretary; she was Affairs,Cambodia
promoted to Shadow Northern Ireland Secretary After 18 years in exile, and six years as a UN
following elections in October 1994. In 1999, relief worker in the Cambodian refugee camps
Dr. Mowlam was appointed as Minister for the along the Thai border, Mrs. Sochua returned
Cabinet Office, Chancellor of the Duchy of to Cambodia in 1991 and founded the first
Lancaster. She lives in London with her Cambodian NGO, Khemara. Its goal is to enhance
husband John. the leadership capacities of women through
economic,social and political empowerment.
Mrs. Alice Ntwarante: Central Committee Mrs. Sochua played a key role in bringing the
member, Front pour la Democratie au Burundi voices of women into the public arena. In 1995,
(FRODEBU),Burundi she was appointed Special Advisor on Women's
Mrs.Ntwarante trained as a lawyer and until Affairs to the Prime Minister. In 1998, she became
recently worked as a banker in Bujumbura. She is Minister for Women and Veterans' Affairs in
a member of the Central Committee of the the Cambodian government.
Hutu-dominated FRODEBU party, and is also
part of the women’s delegation to Arusha.Mrs.
Ntwarante is widowed and currently lives in
Bujumbura.
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64 Women at the Peace Table: Making a Differ e n c e