Aid Effectiveness and the Implementation of SCR 1325 in Nepal Financing Inclusive Peace and Security for Women in Nepal: From the Comprehensive Peace Agreement to the Nepal Peace Trust Fund EC/UN Partnership on Gender Equality for Development and Peace October 2010 UNIFEM is the women's fund at the United Nations. It provides financial and technical assistance to innovative programmes and strategies to foster women's empowerment and gender equality. Using a rights-based approach, UNIFEM focuses on strengthening women's economic security and rights; combating violence and HIV and AIDS among women and girls; promoting gender equality in governance in both conflict and non-conflict situations. It is the executing agency for the EC/UN Partnership at the country level. The European Commission promotes the general interest of the European Union, in particular by presenting proposals for European law, by overseeing the correct implementation of the Treaties and European law, and by carrying out common policies and managing funds. The Commission chairs the Programme Steering Committee for the EC/UN Partnership on Gender Equality for Development and Peace. The International Training Centre of the International Labour Organization contributes to the ILO goal of decent work for women and men by providing training and related services that develop human resources and institutional capabilities. The ITC/ILO manages the www.gendermatters.eu website and on-line learning modules, and makes its practical approach to capacity development for gender mainstreaming available to all EC/UN Partnership partners and stakeholders. Acknowledgements Research and Writing Team Lead Author: Gina Torry Contributing Authors and National Researchers: Bandana Rana, Chandra Bhadra Editors: Elisa Fernandez, Sangeeta Thapa Contributors: Letty Chiwara, Nisreen Alami, Jacinta Mutesha and Lin Dong Mapping Aid Effectiveness and Gender Equality, Global Findings and Key Messages Copyright © 2010 United Nations Development Fund for Women www.gendermatters.eu United Nations Development Fund for Women 304 East 45th Street, 15th floor New York, NY 10017, USA Tel: 212-906-6400 Website: www.unifem.org This publication has been produced with the assistance of the European Union. The contents of this publication are the sole responsibility of UNIFEM and can in no way be taken to reflect the views of the European Union. The views expressed in this publication are those of the authors and do not necessarily represent the views of the European Union, UNIFEM (part of UN Women), the United Nations or any of its affiliated organisations. Designed and printed by the ITC/ILO Turin, Italy Aid Effectiveness and the Implementation of SCR 1325 in Nepal CONTENTS Acronyms ............................................................................................... v Executive Summary ................................................................................ 1 Section I ................................................................................................ 3 Introduction: Responding to the Impact of Armed Conflict on Women..................... 3 The Aid Effectiveness Agenda & Women's Security and Peacebuilding Commitments ... 4 Security Council resolution 1325.................................................................. 5 Security Council resolutions 1820, 1888 & 1960................................................ 5 Security Council resolution 1889.................................................................. 5 Article 25 of the UN Charter & Security Council Resolutions on Women, Peace and Security.................................................................................. 5 Section II ................................................................................................ 6 Financing Inclusive Peace and Security for Women in Nepal: From the Comprehensive Peace Agreement to the Nepal Peace Trust Fund .............. 6 Political and Security Context............................................................. 2 Impact of Armed Conflict on Women & Girls ........................................... 8 Women's Engagement in Peace Negotiations ........................................... 9 Women, the Comprehensive Peace Agreement & Implications for Future Financing............................................................................. 9 CPA-Related Peacebuilding Structures ................................................. 10 The Nepal Peace Trust Fund .............................................................. 12 The Nepal Peace Trust Fund & Women's Security and Peacebuilding Needs ...... 14 Recommendations for Strengthening Accountability to Financing Women's Security and Peacebuilding Needs ............................................................... 20 Annexes Annex 1: Composition of the Negotiation Team and Facilitators in Nepal's Peace Process ................................................................. 23 Annex 2: Funding Scenario of the Nepal Peace Trust Fund ................................. 24 Annex 3: Status of Disbursement of Fund and Expenses of the Approved Projects ..... 27 Annex 4: NPTF Project B1: Special Programme for the Relief and Rehabilitation of the Internally Displaced Persons ............................... 28 Annex 5: Ministry of Peace and Reconstruction and its Mandate .......................... 29 Annex 6: SCR 1325 High-Level Steering Committee.......................................... 30 Annex 7: Guidelines for SCR 1325 Implementation in the Proposal Selection Process ... 31 Annex 8: Peace Support Working Group Work Plan (2009-2010) ........................... 34 Endnotes ............................................................................................ 36 iii Aid Effectiveness and the Implementation of SCR 1325 in Nepal Acronyms AAA Accra Agenda for Action AISC Army Integration Special Committee BBC Beyond Beijing Committee CA Constituent Assembly CAPs Conflict Affected Persons CHMP Cantonment Health Management Programme CIA Central Intelligence Agency CPA Comprehensive Peace Agreement CPN-M Communist Party of Nepal – Maoist DAOs District Administration Offices DDR Disarmament, Demobilization and Reintegration GBS General Budget Support GoN Government of Nepal IDPs Internally Displaced Persons JFA Joint Financing Arrangement MDTF Multi-Donor Trust Fund MoF Ministry of Finance MoPR Ministry for Peace and Reconstruction NOG Negotiations Observers Group NPTF Nepal Peace Trust Fund OECD-DAC Organization of Economic Cooperation and Development/Development Assistance Committee PD Paris Declaration on Aid Effectiveness PSWG Peace Support Working Group SCR Security Council Resolution SGBV Sexual and Gender-Based Violence SSR Security Sector Reform SWAps Sector Wide Approaches UK United Kingdom UNDP United Nations Development Programme UNMIN United Nations Mission in Nepal UNPFN United Nations Peace Fund for Nepal WAPPDCA Women's Alliance for Peace, Power, Democracy and the Constituent Assembly WSPG Women Security Pressure Group iv Aid Effectiveness and the Implementation of SCR 1325 in Nepal Executive Summary Actualizing the promises and potential of Security Council resolutions on women, peace and security1 requires intentional action at the national level by a range of stakeholders. SCR 1889, adopted by the Security Council in October 2009, calls on Member States, in partnership with key actors, to “specify in detail women and girls’ needs and priorities and design concrete strategies.”2 Effective implementation of these resolutions requires the development of truly gender-responsive aid in conflict and post–conflict settings. A 2008 study by UNIFEM3 found that efforts of the Government of Nepal (GoN) and donors to integrate gender priorities in peacebuilding and post-conflict reconstruction processes were limited, and that more harmonization and coordination at the outset may have ensured that initiatives integrated women’s specific security and peacebuilding needs more intentionally, and that funding of peacebuilding efforts was more gender responsive.4 This study builds on these findings by analyzing the extent to which commitments to women’s security and peacebuilding needs are being financed by the Nepal Peace Trust Fund (NPTF), a multi-donor bilateral trust fund, set up in 2007 and run by the GoN to implement the 2006 Comprehensive Peace Agreement (CPA), and subsequent CPA related agreements, which ended a violent ten year civil war. To date, the total budget of the NPTF (2007-2010) exceeds $US120 million dollars, with contributions from the GoN (comprising 64%) and seven bilateral donors (comprising 35%): the United Kingdom (UK), Norway, Finland, Denmark, Switzerland, Germany and the European Commission (EC). Bilateral donors have also provided funding to address women’s security and peacebuilding needs via the United Nations Peace Fund for Nepal5 (UNPFN) (set up to compliment the NPTF) and through direct bilateral support to international and non-governmental organizations. The study, however, looks specifically at the NPTF in its role as a central mechanism for technical and financial support to the peace process and in light of national ownership and state obligations to women’s specific security and peacebuilding needs, including obligations to implement Security Council resolutions 1325, 1820, 1888, 1889 and 1960. Overall, the study found that, since its establishment in 2007, few NPTF projects have addressed or budgeted for women’s needs. Where NPTF projects have contained provisions for the