Mission Report

Appendix III

Group 1: Project Profiles

Group 1 visited the western highlands of the country in , Solola and Chimaltenango provinces

Project 1.1 Women’s Leather Production Association

Project 1.2 Meeting with the Mayor, Municipal Officials, and NGOs of

Project 1.3 Justice Center Project in Santa Eulalia, Huehuetenango

Project 1.4 Women’s Forum - Post-Conflict Democratisation Project

Project 1.5 CARE’s Civil Society Project

Project 1.6 Meeting with the Mayor, Municipal Officials, and NGOs of , Guatemala

Project 1.7 Defensoria Maya - an Indigenous Peacebuilding Process

Project 1.8 JICA Girls Education Project Project 1.1: Women’s Leather Production Association

Date: March 1, 2001

Place: Chiantla, Huehuetenango

Implementing Institution: CECI (through its Democratic Development Fund (DDF) Project) and K’aslemal (a local NGO that is being supported by CECI via the DDF).

Key Participants Met: Several members of the Women’s Leather Production Association and the Head of K’aslemal. Previous meetings with Lucrecia Arriola de Paniagua, the Coordinator for CECI’s DDF.

Objective: The objective of CECI’s DDF is to provide technical and financial assistance to Guatemalan partners dedicated to improving human rights and the rule of law, establishing an effective system of justice, promoting respect for the identity and rights of indigenous peoples, and strengthening civil society and participatory democracy.

Description: In this particular case, the Women’s Leather Production Association is supported by K’aslemal. The latter is a local NGO that receives assistance from CECI’s DDF. The DDF, through K’aslemal provides mentoring support, confidence building and small amount of start- up funds to the Women’s Association. The Association, which has approximately a dozen female members (as well as some male laborers) dries and cures leather that is sold on the local market.

Findings & Observations: o There is no question that the women, with the help of the DDF project, have built something of which they are very proud. The women’s membership in the Association has apparently improved the confidence of the members and has helped them realize that they do have the skills and ability to create change and improve their standard of living, both economically and also socially. The project is a visible indicator that people, and women in particular, are able to create social change and affect their communities in positive ways. o Because the DDF project also requires that groups that receive support also contribute to their community with some type of community development initiative, attention is focused on the efforts of people making change (in this case the women implemented a road improvement project). This provides a good example to others, in terms of both encouraging community improvement work as well as inciting people to help themselves. o The DDF project, through its partnership with K’aslemal, also included a gender awareness component in its efforts with this Women’s Association. This helped men to understand the changing role of women in society and the value of women’s participation. All of the members reported that their husbands had no problem with them running a business. In fact, all agreed that their husbands were supportive and appreciated the fact that their wives were financially contributing to the household.

2 Guatemala Mission Report

o It appeared that one of the reasons that this leather production initiative was successful was that it was founded on an indigenous tradition that is relatively well-known. One might argue that this could lead to an over-abundance of leather on the market. This was not so in this case. The women were able to target and revive a traditional but apparently dwindling, cottage industry. Helpful in the process was the fact that the father of one of the members was skilled in this trade and was able to technically guide and direct the Association.

Project 1.2: Meeting with the Mayor, Municipal Officials, and NGOs of Chiantla

Date: March 1, 2001

Place: Chiantla, Huehuetenango.

Implementing Institution: CECI

Major Participants Met: The Mayor, Municipal Officials and NGOs of Chiantla, Japanese and Canadian Government Officials and NGOs.

Objective: To study and analyze 1) how effectively the local government of Chiantla responds to and meets various kinds of community needs, 2) what sort of mechanism the local government has to grasp the needs of the society, and 3) how CECI facilitates community members participation in the policy making process of Chiantla.

Description: Local NGOs participate in the decision making process of the local government of Chiantla. The municipal office of Chiantla has a sub-group in each sector such as education, health, commerce and socio-economic infrastructure, and concerned local NGOs participate in one or more of these sub-groups. The local NGOs visit many communities in order to analyze issues and study concrete needs in each of these communities. Then, they provide feedback to the local government. Besides the visits to the community, the local NGOs also participate in the planning and design of overall and sectoral development policies. The Mayor’s office provides coordination and determines priorities based on discussions with the local NGOs. As the result of this policy planning process, it has been agreed between the local government and civil society of Chiantla that health and education are current priority areas.

Findings and Observation: o It is a new and fascinating approach for CECI to focus on partnership between NGOs and the local government of Chiantla. Usually, projects aiming to strengthen civil societies at the grassroots level tend to just focus on organization building of NGOs or other community groups without considering the possibility of teaming-up with the public sector. However, CECI’s successful coordination between the municipal government and the NGOs of Chiantla allows not only CECI’s own projects to be more effective, but also the community as a whole to play a more participatory role in the process of community development.

3 o It is particularly impressive that women actively get involved in NGO activities and that women’s groups fully participate in the policy making process for community development. Specifically, women conduct surveys of community needs and participate in various sectoral meetings. o As the result of this participatory policy planning process, health and education have been identified as high priorities in community development policies.

Project 1.3: Justice Center Project in Santa Eulalia, Huehuetenango

Date: March 2nd, 2001

Place: Santa Eulalia

Implementing Institution: The United Nations Verification Mission in Guatemala (MINUGUA)

Key Participants Met: Gilberto Lopez; Sonia Martinez; José Antonio; and John Pauly, MINUGUA

Objective: To support the establishment of a local justice centre in an ex-conflict zone.

Description: The project aimed at strengthening the Justice Sector Institutions comprising the Justice Centre (the Judiciary, the Public Prosecutor's Office, the Public Defence Institute and the National Civilian Police) so that they might administer justice to the population in a co-ordinated, effective and a non-discriminatory manner, in locally spoken languages and congruent with the socio-cultural values of the zone. Special mention should be made of the 'mediation' activity where cases can be brought without having to enter the official justice system.

Findings & Observations: o According to two (2) different sources on different days and locations, the subject Project has managed to reduce the number of 'lynchings' from an estimated 11 per year to between 3 and 4. The key point to recognize here is the estimated reduction and not the actual number. Santa Eulalia is the second pilot centre - i.e. built on the lessons and successes of the first. o Out of an average of three (3) cases per day, approximately 80% are resolved through mediation. Prior to the Project many of the disputes would have made their way into the official justice system, resulting in extra costs for all parties. In addition, the results were frequently unsatisfactory, which in turn often resulted in 'violence'. o It would seem that a key to the success of the Project was/is its ability to provide legal services and address the justice needs of the local population in their own indigenous language(s).

4 Guatemala Mission Report

o During the general presentation in the pre-departure briefing in , it was mentioned that one of the main challenges facing this Project was the difficulty in attracting qualified lawyers and judges to such a remote region as Santa Eulalia. Although this type of challenge might be common among the projects in outlying areas, having visited Santa Eulalia, we better understood and appreciated the problem.

Project 1.4: Women’s Forum - Post-Conflict Democratisation Project

Date: March 3, 2001

Place: San Ildefonso Ixtahuacan (Department of Huehuetenango)

Implementing Institution: CARE UK

Key Participants Met: Dora Arriola, CARE, Telma Perez, CARE, Four representatives of the Women’s Forum.

Objective: The objective of the Women’s Forum is to promote the greater participation of women in the post-conflict democratization processes and structures in Guatemala.

Description: In order to achieve the above stated objective, the Women’s Forum dedicates itself to a number of activities including: (1) assisting women to obtain their basic legal documents (thereby enabling them to participate in the electoral process); and (2) through a series of workshops, informing women in the local area of their rights and the importance of greater participation in the post-conflict democratization process in Guatemala. The Women’s Forum also participates in the National Women’s Forum and thereby has succeeded in participating in the civil society-government dialogue regarding the implementation of the Peace Accords.

Findings & Observations: o As a result of the efforts of the Women’s Forum, thousands of Guatemalan women in the department of Huehuetenango were able to obtain their legal documents and thereby participate in local elections. Prior to the initiatives of the Forum, women in the area were not concerned about registering to vote in local elections, nor were they aware of their electoral rights. However, after the documents were issued to the women and workshops conducted on their rights, there was a significant increase in the number of women who voted in the last election. Participation is expected to increase in subsequent elections. o Representatives of the Women’s Forum acknowledged that indicators of the project’s “success” are difficult to identify. However, they have noticed a qualitative change in the behavior and attitudes of women in the area. Prior to the efforts of the Forum and the signing of the Accords, Guatemalan women were very silent and reluctant to express themselves. This has since changed, with women becoming more capable of asserting their rights.

5 o The issue of self-sustainability presented itself as a difficult issue for the Forum. The women of the Forum noted that they depended on CARE UK funding for the maintenance and functioning of their small and modest facility. Concern was raised that if CARE were to sever its financial support, then the Forum would be hard pressed to maintain their facility and continue their efforts. CARE UK recognizes that the Forum has not developed to the extent necessary to ensure self-sustainability, and therefore is about to implement phase II of the project whereby funding for the Forum will continue until 2004. While clearly dependent on CARE funding, representatives of the Women’s Forum also understand their need to develop mechanisms and funding sources in order to achieve self-sustainability. o When asked about possible “lessons learned”, representatives of the Forum mentioned the difficulties associated with one person trying to perform multiple functions when beginning such a project/association. Initiatives of this nature require several people willing to assume the numerous responsibilities.

Project 1.5: CARE’s Civil Society Project

Sub-Project: ACINDI (local umbrella association) receiving support from CARE

Date: March 3, 2001

Place: San Ildefonso Ixtahuacan, Heuheutenango.

Implementing Institution: CARE International in Guatemala’s Civil Society Project

Key Participants Met: Karin Magdalena Tello (CARE), Pasquale Perez (President of ACINDI) and several members of various groups that make up ACINDI; previous meeting and presentation by Dora Arriola of CARE.

Goal and Objective: The goal of the CARE project is to contribute to the Guatemala peace process via the strengthening of local post-conflict democratic processes and structures in Guatemala. The objective is to help 60,000 male and female citizens of two municipalities of Huehuetenango to actively participate in democratic processes in their municipalities.

Description: Ixtahuacan was an area of severe conflict during the war. Indigenous people, in particular, were severely affected and, as a whole, found themselves caught between Government and Rebel forces. Young people were being recruited to serve with one side or the other. In reaction, a struggle was launched by the community to stop such recruitment and to fight for basic human rights. This period witnessed the beginning of an informal community mobilization process, which has grown in scope since the Peace Accords were signed. Before the war’s end several local grass-roots citizen’s associations began meeting informally to determine a unified direction for the anticipated post-war period. Their primary focuses were the strengthening of indigenous identity and the socio-economic betterment of their communities. Following the accords, the Government committed itself to legalizing community action groups at the municipal level. However, the legal procedures were complicated and financially restrictive. In this context, CARE was approached for assistance.

6 Guatemala Mission Report

As one of the local groups supported by CARE’s Civil Society Project, ACINDI is an umbrella association made up of several local organizations. The member groups, many of whom were established immediately following the Peace Accords, include, among others, the Committee of Displaced People of Guatemala (COMDEG), the National Widows Association (CONAVIGUA), the Bilingual Teachers Organization, the Committee of Peasant Unity and a Youth conscientious objector group. CARE’s Project assists and supports ACINDI and other groups like it, with various types of support. For example, CARE provided the funds required for ACINDI to obtain its legal status as an organization. Other support includes training, mentoring and guidance and funding and facilitation of networking initiatives.

As explained by ACINDI’s President, Mr. Pasquale Perez, decision-making at the municipal level was always monopolized by local government, with little, if any, participation or involvement from local people or civil society. ACINDI and other like-minded groups are trying to reverse this tradition and make decision-making more inclusive. This is being accomplished through several methods: 1. increased participation of women in civil society organizations, 2. overall increased membership in local associations, 3. internal training of members, 4. organized lobbying of local government, 5. awareness-raising on the importance of political participation and the acquisition of one’s identification documents (in order to able to vote).

Findings & Observations: o From the interviews, there is little doubt that the ACINDI Association wields significant influence in the community. As an umbrella group, ACINDI represents several local community groups from various walks of life - all with one thing in common: they are suffering some form of marginalization and they want to work towards change. Their involvement in ACINDI provides opportunity for training, networking and learning from other members and the confidence-building that participation generates. o The fact that the new municipal government is supportive of ACINDI is important (in fact, the Mayor is a former CARE staff). However, more important is the fact that the association appears to have developed the confidence to engage, lobby and work with the local municipal government. As one member put it, “even now, because of the war and the trauma of the past, we are still afraid to organize. But that is why it is so important to organize!” Related to this is the fact that the local government appears to have recognized that the population has become more conscious of its rights and more politically involved (via voting and lobbying). That said, the local government also appears to recognize that it is no longer possible, nor politically prudent, to continue the exclusive and oppressive practices of past governments. o ACINDI is well organized and its members hold skills in various disciplines. For example, the community development plan that ACINDI had developed in collaboration with the municipality was very impressive. Being primarily an agricultural area, the plan focused on agricultural training and the development of a collection center for agri-marketing. Bringing this project to fruition, members argued, would save money and provide a solution for much of the food insecurity in the region. Other examples of ACINDI lobbying included appeals to the Ministry of Agriculture for lower agricultural-related interest rates and the lobbying of various levels of government (and the international community) to decentralize international development assistance - the latter related to their

7 argument that development assistance is politically-controlled by the central government and does not always reach the areas that need it most. o The support from the outside (via CARE) is very important both in terms of the financial impetus, as well as the solidarity it provides. As discussed above, CARE assisted with funds for ACINDI’s registration, in providing training and awareness-raising on the importance of personal identification, particularly with women. Other assistance included the provision of funds for transport, food, I.D. pictures and other incidentals that individuals would incur while getting their identification cards. However, the support in terms of solidarity that CARE was able to provide to ACINDI was invaluable. Despite the fact that ACINDI and its members were doing most of the work themselves, having an outside international NGO as a partner to occasionally offer guidance and direction, provided a certain degree of well-being and confidence. New, enthusiastic, but tenuous associations sometimes need such support to see them through difficult periods.

Project 1.6: Meeting with the Mayor, Municipal Officials, and NGOs of Cuilco, Guatemala

Date: March 3, 2001

Place: Cuilco, Huehuetenango.

Coordinating Organization: CARE Canada

Major Participants Met: The Mayor, Municipal Officials and NGOs of Cuilco, Dora Arriola (Coordinator of CARE Canada), Japanese and Canadian Government Officials and NGOs.

Objective: To study and analyze 1) how effectively the local government of Cuilco responds to and meets various kinds of community needs, and 2) how CARE Canada facilitates community members participation in the policy–making process of Cuilco.

Description: Cuilco is located in an isolated border area of Huehuetenango, about four hours drive from Huehuetenango. Cuilco’s local government employs the same mechanism for policy formulation as observed in Chiantla. The government establishes sub-groups in each sector such as education, agriculture, health, gender and local NGOs can participate in one or more of these sub-group meetings. As a result of this participatory policy planning process, it has been agreed between the municipal government and civil society groups of Cuilco the following priorities have been identified: the lack of doctors, medical facilities, vaccines, secondary schools and teachers, lack of access to land and credit, prevention of domestic violence, family planning requirements and the establishment of primary health care.

Findings and Observation: o It was regrettable that the group was able to stay in Cuilco for only a short time. About 100 people welcomed and participated in the meeting. Some community members had taken more than five hours just to meet the group but we stayed there for just thirty minutes.

8 Guatemala Mission Report

o Although some issues in Cuilco have common features with Chiantla, such as health and education, Cuilco has unique concerns to tackle, such as drug and emigration problems, because of its proximity to Mexico. o As in the case of Chiantla, CARE Canada also successfully builds partnerships between NGOs and the local government of Cuilco. CARE Canada’s facilitation allows its own projects to be more effective as well as allowing the community as a whole to play a more participatory role in the community development process. o It is especially impressive that community members of Cuilco have tried to build a database and statistics of their community’s needs. Some statistics, for example on the number of doctors and medical facilities needed, have already been prepared.

Project 1.7: Defensoria Maya - an Indigenous Peacebuilding Process

Date: March 5th, 2001

Place: Solola/Panajachel

Implementing Institution: CoDevelopment Canada

Key Participants Met: Ricardo Sulugui, Moises Rosalia (lawyer); Juan Léon in Guatemala City.

Objective: To support the training of indigenous people in high level negotiation techniques, human rights and dispute resolution.

Description: The project aimed at improving the indigenous capacity in human rights and 'indigenous rights' through workshops and the preparation of educational material. A prime objective was to expand the awareness in the non-indigenous population about traditional justice systems. Defensoria Maya emphasizes the need to recover the community spirit and values that guided traditional society. It should be noted that the Project had begun before CIDA's Peacebuilding Fund contribution and this has reinforced that work.

9 Findings & Observations: o Two (2) main types of activities were undertaken. They are: support to the indigenous people when they enter the 'official' justice system; and, mediation between disagreeing parties. o Before the Project: there was some indigenous justice activity but, it was done almost exclusively in a 'clandestine' manner; most indigenous individuals entering the official justice system ended-up in prison due the lack of funds and language difficulties; and, there was little or no support for women's rights. o The main types of disagreements are: marriage; land; and children. And, on average, 100 to 150 cases per month are heard, with the majority being resolved. o The key players involved felt that a key ingredient to success was both moral and financial accompaniment. However, it should be noted that in cases where the decision reached by Mayan Law is not accepted by one party, and therefore is taken to the official justice system, Defensoria Maya covers the expenses for the party who was willing to accept the Mayan verdict. o It is also our understanding that there is greater co-ordination and understanding between Defensoria Maya and the official justice system. With 'justice' officials asking Defensoria Maya for interpretation assistance, the Project has worked to sensitize these officials to the Mayan system. o Sustainability seems to be the black cloud for the Project. Defensoria Maya officials indicated that they would have a very difficult time maintaining the office without external funding. Given the extreme poverty in the region, they are unable to charge, even minimally, the individuals who require services.

Project 1.8: JICA Girls Education Project

Date: March 5, 2001

Place: Solola

Implementing Institution: Japanese International Cooperation Agency (JICA)

Key Participants Met: Ms. Kaori Ariki; staff of departments of Ministry of Education

Objective: The central objectives of the project were the following: (1) To encourage girls to actively participate and study in class; (2) To develop and strengthen incentives for girls to enrol in and attend classes; and (3) To promote understanding of students' parents on the importance of girls' education.

Description: In Guatemala, the literacy rate among women is only 58.9% compared with the men's literacy rate of 74.6%. Furthermore only 70.2% of women enrol in primary school. Women in rural areas are particularly marginalized and have less access to education, even at

10 Guatemala Mission Report

the primary level. This project was designed to meet this very critical situation. The major outputs of the project were: (1) the dispatch of Japanese experts for the planning and administration of the girls’ education program; (2) a series of seminars, both in Guatemala and Japan, on the theme; (3) several departmental girls’ education projects; (4) development of training modules and teachers guides; (5) donations of equipment and books; and (6) construction/renovation of primary schools.

Findings & Observations: o The project certainly seemed to have had an impact on the situation and perceptions of girls within the Guatemalan education system. Teachers noted that more girls were talking about pursuing an education beyond grade six. Such discussions had rarely surfaced during past years. o Educational efforts within the schools must also be complemented by a series of training workshops with the parents and community. If parents do not understand and support what is being taught in the schools, then there is a risk that what is raised in the classroom will be contradicted at home. It is imperative that there is congruence between the schools, homes, and communities. o Administration officials also noted a change in the behavior of the teachers responsible for teaching aspects of the project. It had become apparent that women teachers themselves were also becoming more confident and assertive of their rights.

11