Access to Justice for Women Victims of Violence in the Americas
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ORGANIZATION OF AMERICAN STATES INTER-AMERICAN COMMISSION ON HUMAN RIGHTS OEA/Ser.L/V/II. Doc. 68 20 January 2007 Original: Spanish ACCESS TO JUSTICE FOR WOMEN VICTIMS OF VIOLENCE IN THE AMERICAS GENERAL SECRETARIAT ORGANIZATION OF AMERICAN STATES 1889 F. St. N.W. WASHINGTON, D.C. 20006 2007 Internet: http://www.cidh.org E-mail: [email protected] OAS Cataloging-in-Publication Data Acceso a la justicia para las mujeres victimá s de violencia [en las Américas] = Access to justice for women victims of violence in the Americas / [Organización de los Estados Americanos Comisión Interamericana de Derechos Humanos]. p. ; cm. ISBN 0-8270-5074-7 1. Women--Violence against--America. 2. Sex discrimination against women--Law and legislation--America. 3. Women--Crimes against-- Government policy--America. 4. Sex discrimination in justice administration--America. 5. Abused women--Legal status, laws. etc.-- America. 6. Justice, Administration of--America. I. Inter-American Commission on Human Rights. OEA/Ser.L/V/II Doc. 68 Document published thanks to the financial suport of Finland. Positions herein expressed are those of the Inter-American Commission on Human Rights and do not reflect the views of Finland. ACCESS TO JUSTICE FOR WOMEN VICTIMS OF VIOLENCE IN THE AMERICAS TABLE OF CONTENTS Page PREFACE ................................................................................................. v EXECUTIVE SUMMARY ............................................................................vii I. INTRODUCTION .............................................................................1 A. Obstacles women encounter when seeking redress for acts of violence: an analysis of the present situation...........1 B. The report’s legal framework: International provisions and standards that apply to the right of women to access adequate and effective remedies when they are victims of violence ....................................................... 10 1. The due diligence obligation..................................... 11 2. Due diligence and access to judicial protection ........... 19 3. Violence and discrimination...................................... 26 a. The duty to amend discriminatory norms, practices and policies ................................... 31 b. Due diligence and positive antidiscrimination measures.................................................... 41 II. INADEQUACIES IN THE JUDICIAL RESPONSE TO CASES OF VIOLENCE AGAINST WOMEN: OBSTACLES TO THE FULFILLMENT OF THE OBLIGATION TO PRACTICE DUE DILIGENCE AND COMBAT IMPUNITY ............................................. 49 A. Administration of justice: inefficacy and impunity in cases involving violence against women ........................... 49 1. Gaps and irregularities in the investigation of cases involving violence against women............................. 50 2. Flaws in the prosecution and punishment of cases involving violence against women............................. 58 3. Ineffectiveness of preventive mechanisms in protecting women from violence ........................... 69 iii Page 4. Barriers which victims encounter when seeking judicial protection ................................................... 71 5. Structural problems within the justice systems that affect the prosecution of cases involving violence against women .......................................... 75 6. Access to justice for indigenous and Afro-descendant women: discrimination and racism ........................... 81 a. Indigenous women....................................... 82 b. Afro-descendant women............................... 85 B. Laws: problems with their design, interpretation and application ................................................................. 89 1. Gaps and deficiencies in the law .............................. 89 2. Flawed application and interpretation of the laws and implementation of government programs ..... 91 III. PUBLIC EFFORTS TO COMPLY WITH THE DUE DILIGENCE OBLIGATION IN RESPONSE TO ACTS OF VIOLENCE AGAINST WOMEN ....................................................................... 97 A. Efforts in the administration of justice sector ........................ 97 B. The adoption of criminal and civil laws about violence and discrimination against women ..................................... 103 C. The creation of government programs to address violence and discrimination against women......................... 111 IV. CONCLUSIONS AND RECOMMENDATIONS .................................. 116 Anexes ................................................................................................ 127 iv PREFACE During the past two years, and thanks to the support of the government of Finland, the Rapporteurship on the Rights of Women of the Inter-American Commission on Human Rights (IACHR) implemented a series of activities to collect and analyze information, in order to obtain a complete overview of the main challenges that victims of violence against women face when they attempt to access adequate and effective judicial remedies. The IACHR wishes to highlight and recognize the contributions of Susana Villarán, as Commissioner (2002-2005) and Rapporteur on the Rights of Women (2004- 2005), in the consultation process that preceded the preparation of this report. The IACHR acknowledges the contribution of Professor Laura Saldivia to the section of legal framework of the report. Her contribution was prepared as part of the investigation project about "International Standards about Access to Justice" developed in the University of San Andrés in Argentina under the direction of Víctor Abramovich. This investigation has the support of the Ford Foundation. EXECUTIVE SUMMARY 1. The Inter-American Commission on Human Rights (hereinafter the "IACHR" or the "Commission") has repeatedly made the case that de jure and de facto access to adequate and effective judicial remedies is essential to eradicating the problem of violence against women, as is the States’ compliance with their obligation to practice due diligence in prosecuting such acts. And yet the work of the IACHR and of its Rapporteurship on the Rights of Women (hereinafter the "Rapporteurship" or the "Women’s Rapporteurship") reveals that all too often prompt and effective recourse to judicial remedies eludes women victims of violence, even after they report the crimes committed against them. As a consequence, the vast majority of these offenses are never punished and neither the victimized women nor their rights are protected. 2. It is for this reason that the IACHR has prepared this report on the situation of women victims of violence. It examines the major obstacles that women encounter when they seek effective judicial protection to redress acts of violence. In the report, the IACHR draws conclusions and makes recommendations about what States need to do to act with the due diligence necessary to offer an effective and prompt judicial recourse when these incidents occur. The report’s analysis is based on findings drawn from the data compiled from a variety of sources, including the administration of justice systems, civil servants and government representatives, civil society, academia and women of differing races, ethnic backgrounds and socio-economic circumstances. The Rapporteurship has been preparing this report for the last two years, with financial support from the Government of Finland. The information compiled has been coupled with the work of the IACHR: its case decisions, the thematic hearings held at headquarters, its thematic reports, the country reports’ chapters on women’s rights, and in loco visits organized by the IACHR and the Rapporteurship. 3. The regional and international human rights protection systems have identified the right of women to live free from violence and discrimination as a priority challenge. The international instruments adopted to protect women’s right to live free from violence reflect a consensus among States and their acknowledgement of the discriminatory treatment that women have traditionally received in their respective societies, which has exposed them to various forms of violence: sexual, psychological and physical violence, an abusive treatment of their bodies. Those instruments also reflect the commitment that the States have undertaken to adopt measures to ensure the prevention, investigation, punishment and redress of such acts of violence. The fact that the Inter-American Convention on the Prevention, Punishment and Eradication of Violence against Women (hereinafter the "Convention of Belém do Pará") has been ratified by more States than any other instrument of the inter-American system and that most States of this hemisphere have also ratified the Convention on the Elimination of All Forms of Discrimination against Women (hereinafter the "CEDAW") and its optional protocol, signals a regional consensus to the effect that gender-based violence is an open and widespread problem requiring State action to ensure its prevention, investigation, punishment and redress. 4. The inter-American human rights system is based on the premise that access to adequate and effective judicial remedies is the first line of defense in protecting basic rights. The binding instruments for the protection of human rights, such as the American Convention on Human Rights (hereinafter the "American Convention"), the American Declaration of the Rights and Duties of Man (hereinafter the "American Declaration") and the Convention of Belém do Pará uphold the right of women to access adequate judicial